Northern Half. of the State Because of an Already Existing Deficit in Open Space Acreage in That Area

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DOCUMFNT RF StIMF ED 023 495 RC 000 817 New Jersey Open Space Policy Plan. New Jersey State Dept. of Community Affairs, Trenton. Spons Agency -Department of Housing and Urban Development,Washington, DC. Pub Date 67 Note-152p. EDRS Price MF -$075 HC 47.70 Descriptors -City Planning, Community Planning, Community Recreation Programs, *Land Use, P!anned Community, Population Growth, Population Trends, *Recreation, Regional Planning, *Rural Areas, *State Programs, *Urban Environment Identifiers -*New Jersey An Open Space Policy Plan was developed for the State of New Jersey to provide an adequate blueprint for preserving open space and creating a desirable recreational environmentinthe Stateinanticipation of expected increasesin population and urbanization. Consideration was given to local, county, State, and Federal responsibilitiesin the development of an open space statewide program. Emphasis was placed on the priority for open space planning and acquisition in the northern half. of the State because of an already existing deficit in open space acreage in that area. Plans for both the 10 and 20 million levels of population were considered. In effect, the Open Space Policy Plan was designed to make future open space easily accessible by locatingitin, .close proximity to potential and already existing urbanizingareas of the State.(VM) Jr-

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NEW JERSEY N SP C L1CY PLAN

U.S. DEPARTMENT OF HEALTH, EDUCATION & WELFARE

OFFICE OF EDUCATION

THIS DOCUMENT HAS BEEN REPRODUCED EXACTLY AS RECEIVED FROM THE PERSON OR ORGANIZATION ORIGINATING IT.POINTS OF VIEW OR OPINIONS

STATED DO NOT NECESSARILY REPRESENT OFFICIAL OFFICE OF EDUCATION POSITION OR POLICY.

DEPARTMENT OF COMMUNITY AFFAIRS DIVISION OF STATE AND REGIONALPLANNING STATE OF NEW JERSEY DEPARTMENT OF COMMUNITY AFFAIRS PAUL N. YLVISAKER, COMMISSIONER

January, 1968

We are pleased to present this report as a part of the expanded Statewide Planning Program. This is the first in a series of reports concerned with the formulation of a comprehensive statewide development plan and long range development policies for the State.

This report suggests policies with respect to levels of governmental responsibility, standards, and location of open space to serve the needs of the people of the State at the ten million population level (or over the next 25 or 30 years). While land is the primary subject of this report, underlying all of the studies is a concern for the people of the State. The open space plan must be concerned primarily with the needs of New Jersey's expanding population, whether it be for active or passive recreation or for the conservation of resources such as water and wildlife. We are particularly concerned with the relationship of open space to densely populated areas, since one oF the primary functions of the State with respect to open space must be to provide all people with a wide range of recreational experiences, in locations which are readily accessible, and at prices which the less affluent can afford.

In addition to a concern with recreation, the plan also recognizes the continuing role which resources must play in the State's long range development. We are sure that the best use of our scarce land resources will be made by combining recreation activities with conservation and resource development programs. Through proper planning these diverse interests can be made compatible.

A further step in the comprehensive planning process is the development of an outdoor recreation plan which will discuss in detail the development programs which must be carried out in order for this open space land to meet the recreation needs of the people. Work on this plan is nearing completion and has been dovetailed with the open space plan.

This report is presented in the hope of stimulating further thinking and discussion, as well as providing a basis for immediate action in acquisition and development of our open space resources. Your comments and appraisal of the work presented are invited and encouraged.

Sincerely, P Pau; N. Ylvisaker Commissioner ERRATA for

New Jersey Open Space Policy Plan

Page Column Line ,Correction

4 2 7 125,000 to 120,000

17 2 22 with to within

45 Table VI Mega opolitan Acres 110,567 to 110,576 Excess or Deficits -14,456 to +14,456

47 1 4 Megapol itan to Megalopol itan

51 1 33 17,397 to 17,394

51 2 33 35,190 to 36,860

52 1 15 & 16 172,800 to 174 824

52 1 35 to read: When the population standard for the State is applied to New Jersey's projected population at the 10 million level, some 200,000 acres in open space are needed.

57 2 17 impowered to empowered

101 Table XIV Acres Approved Total 214,922 to 215,940 Acres Purchased Total 39,268 to 39,269

Table XV Active Projects Total 16,764 to 16,758

103 2 38 125,000 to 120,000 NEW JERSEY OPEN SPACE POLICY PLAN

STATE OF NEW JERSEY RICHARD J. HUGHES Governor

DEPARTMENT OF COMMUNITY AFFAIRS

PAUL N. YLVISAKER Com )n ission er

B. BUDD CHAVOOSHIAN Assistan t Com missioner

DIVISION OF STATE AND REGIONAL PLANNING

BUREAU OF STATE WIDE PLANNING DONALD H. STANSFIELD Ch ief

BUREAU OF LOCAL PLANNING CURT J. HUBERT Chief

BUREAU OF REGIONAL PLANNING EUGENE J. SCHNEIDER Ch let

'eft The preparationof thisreport was firr anced and aidedthrougha Federal Grant frorn the Departmentof Housing ban Development, and Ur- under the U:13in ning AssistanceProgram authorL...db/ tion 701 of theHousing Actof 1954, amended. as

The remainderhas been financdby an appropriation of the Stateof NLw Jorsur as part of the Co-operative Governmental Pia n ning Progra

DIVISION OF STATE AND REGIONALPLANNING 520 EAST STATE STREET P.O. BOX 1978 TRENTON, NEW JERSEY 08625

Main Phone: Area Code 609 292-2953 PREFACE

In his 1964 Annudl Message theHonorable Richard J. Hughes stated:

In a world as complexas ours, we have come to realize that a beneficial andprosperous future is not ours by right; nor can it be expectedto occur spontaneously.If it is to occur at all, it will be the result of careful planning andpreparation and considerable hard work.

These remarks concisely indicateone of the most critical challenges ever confronted by government.That challenge is particularly acute inopen space and recreation planning; especially in New Jersey, where competition for developmentof the land has historically relegated open space to locations far from its prospectiveusers.

New Jersey is a small state in which land is becomingincreasingly scarce.In order to provide a total living environment for its citizens,the various levels of government in the State must begin to actnow for the time to act is growing short.

Open space planning will adda vital element an element that will make a major contribution to the total quality ofour lives.

The Division of State and Regional Planningoperates under a legislative mandate to promote the orderly development of the State's physicalassets by:

1) assembling and analyzing pernnent facts regardingexisting developmental conditions and trends;

2) preparing and maintaining a comprehensive guide plan and longterm developmental program for the future improvement and development of the State;

3)undertaking the task of achieving fuller coordination of the developmentactivities of the several State departments; and

4)stimulating, assisting, and coordinating local, county, and regionalplanning activities.

In fulfillment of this mandate, a series of planning studieshave been undertaken leading to the formulation ofa State Development Plan.

The purpose of this report, which is part of the overallStatewide Planning Program, is to look at the existing openspace situation in New Jersey and formulate policies,proposals and principles that willencourage and guide the open space planning, acquisition and development in the State to that time when the State's populationreaches ten million persons (circa 1985-90).

The citizens of New Jersey have already exhibited theirdesire to preserve andpro- tect the State's natural environment when, in1960, they authorized (by referendum) the creation of a $60,000,000 acquisitionprogram known as Green Acres.It must be assumed, therefore, that the people of this State have committedthemselves to the preservation of a natural heritage for its present and future citizens.It isin response to this commitment that the following report is presented. THE GOVERNOR'SINTERDEPARTMENTAL

Frank J. Cahill, Supervisor, La-ws, Commissions and Publications Representing Robert J. Burkhardt, Secretary Department of State

B. Budd Chavooshian, Chairman Assistant Commissioner Department of Community Affairs

William Druz, Assistant Chief Examiner and Secretary Representing Thelma Parkinson Sharp, President Department of Civil Service

Lieutenant Colonel Frank E. Dubel, Jr., Director, Engineering Division Representing Major General James F. Cantwell, Chief of Staff Department of Defense

William F. Faherty, Jr., Assistant to the Commissioner Representing Charles R. Howell, Commissioner Department of Banking and Insurance

Alfred H. Fletch', Director, Division of Environmental Health Representing Dr. Roscoe P. Kandle, Commissioner Department of Health

Gregory Farrell, Assistant Commissioner Representing Paul N. Ylvisaker, Commissioner Department of Community Affairs

Samuel Garrison, Executive Secretary, Rural Advisory Council Representing Philip Alampi, Sectetary Department of Agriculture

Irvin A. Gaydos, Chief of Research and Planning Representing Carl L. Marburger, Commissioner Department of Education

iv COMMITTEE FOR STATE PLANNING

Norman E. Hardy, Deputy State Treasurer Representing John A. Kervick, Treasurer Department of Treasury

Louis H. Hartmann, Chief, Bureau of Maintenance Operations Representing Lloyd W. McCorkle, Commissioner Department of Institutions and Agencies

Sidney H. Kiken, Executive Officer Representing William F. Hyland, President Public Utilities Commission

George D. McGuinness, Chief Fiscal and Personnel Officer, Administrative Bureau Representing Raymond F. Male, Commissioner Department of Labor and Tndustry

Frank Nixon, Acting Adininistrative Director Representing Arthur J. Sills, Attorney General Department of Law and Public Safety

Keith M. Rosser, Jr., Director, Division of Planning Representing David J. Goldberg, Commissioner Department of Transportation

Catherine Rowan, Research Assistant to the Governor Representing the Honorable Richard J. Hughes Governor of the State of New Jersey

Abram M. Vermeulen, Director, Division of Budget and Accounting Department of Treasury

Howard J. Wolf, Special Assistant to the Commissioner Representing Robert A. Roe, Commissioner Department of Conservation and Economic Development rt

OPEN SPACE SUBCOMMITTEE OF THE GOVERNOR'S INTERDEPARTMENTAL COMMITTEE FOR STATE PLANNING

CHAIRMAN OF THE OPEN SPACE SUBCOMMITTEE Joseph J. Truncer, Director Division of Parks, Forestry, and Recreation Department of Conservation and Economic Development George N. Alpaugh, Chief Bureau of Wildlife Management Department of Conservation and Economic Development Robert E. Cyphers, Jr., Chief Bureau of Water Resources Department of Conservation and Economic Development Harry W. Ehrenfeld, Chief Bureau of Planning and Traffic Department of Transportation Samuel Garrison, Executive Director Rural Advisory Council Department of Agriculture Irvin A. Gaydos, Chief of Research and Planning Department of Education Eone Harger, Director Division on Aging Department of Community Affairs Louis H. Hartmann, Chief Bureau of Maintenance Operations Department of Institutions and Agencies *Robert R. Klein, Administrative Assistant to the Governor Office of the Governor John Wilford Division of Environmental Health Department of Health Howard J. Wolf, Special Assistant to the Commissioner Department of Conservation and Economic Development

*Mr. Klein has since left the State.

The Planning Staff also wishes to express their appreciation to the following persons who attended meetings of the Subcommittee as alternative representa- tives of their agencies: George P. Howard, Bureau of Wildlife Management Joseph F. Slavin, Division 07i Aging Werner R. Sonntag, Bureau of Planning and Traffic Richard H. Walker, Bureau of Water Resources

vi CONTENTS

PREFACE iii

THE GOVERNOR'S INTERDEPARTMENTAL COMMITTEE FOR STATE PLANNING iv

OPEN SPACE SUBCOMMITTEE OF THE GOVERNOR'S INTERDEPARTMENTAL COMMITTEE FOR STATE PLANNING vi

SUMMARY 1

I THE CHALLENGES AND ISSUES OF OPEN SPACE PLANNING 5

II THE QUALITATIVE ASPECTS OF OPEN SPACE 15

III THE RESPONSIBILITY OF GOVERNMENT IN OPEN SPACE PLANNING 27

IVCURRENT AND FUTURE OPEN SPACE NEEDS 43

V METHODS OF OBTAINING AND PROTECTING OPEN SPACE 56

VI LONG RANGE APPLICATION OF PRINCIPLES 72

VIITHE OPEN SPACE POLICY PLAN FOR THE TEN MILLION POPULATION LEVEL 96

VIIIAN OPEN SPACE POLICY PLAN FOR THE TWENTY MILLION POPULATION LEVEL 104

APPENDIX 105

BIBLIOGRAPHY 121 LIST OF FIGURES Page

Figure 1 Water Oriented Potentials and Problems 20 Figure 2 Land Related Potentials and Problems 22 Figure 3 Physical Characteristics of New Jersey 23 Figure 4 Developed Land in New Jersey 23 Figure 5 Public Open Space Potential Utilizing Presently Undeveloped Land 25 Figure 6 A Suggested Open Space System for Megalopolis 50 Figure 7 Expediency (Unplanned) Concept 76 Figure 8 Natural Features Concept (Composite of Elements) 78 Figure 9 Design Concept: Concentric Rings 80 Figure 10 Design Concept: Wedges and Channels 82 Figure 11 Design Concept: Containers 84 Figure 12 Design Concept: Recreation Cores 86 Figure 13 Open Space Acquisition Area Under Development Pressure (Critical Area) 97 Figure 14 Open Space Policy Plan (For the 10 Million Population Level) 99a Figure 15 County and Municipal Green Acres Projects 102 Figure 16 Summer Camps in New Jersey 105 Figure 17 Campsite Facilities in New Jersey 105 Figure 18 Golf Courses in New Jersey 106 Figure 19 Airports in New Jersey Open to the Public 107 Figure 20 Ski Areas in New Jersey 108 Figure 21 Major Watershed Lands in New Jersey 109 Figure 22 Major Acquifer Recharge Problem Areas in New Jersey 110 Figure 23 Generalized Natural Flood Plains 111 Figure 24 Major Boat Basins and Marinas in New Jersey 112 Figure 25 Public Hunting and Fishing Areas in NewJersey 113 Figure 26 Selected Scenic Roads in New Jersey 114 Figure 27 Selected Canoe Runs Hiking and Bridle Trails in New Jersey 115 Figure 28 Selected Historic Sites and Landmarks in New Jersey 116 Figure 29 Selected Protected Natural Areas in New Jersey 117 Figure 30 Generalized Agricultural Activity in New Jers6y 118 Figure 31 Forest Coverage in New Jersey 119 Figure 32 New Jersey's Mineral Resources 120

LIST OF TABLES

Table I Suggested Acreage Standards Based on Level of Government Responsibility 34 TableII Suggested Open Space Acreage Standards Per Thousand Persons for Application in New Jersey 35 TableIII Comparison of Balanced Land Use Systems (as a Percent of Total Developed Area) 38 Table IV Open Space Standards Applied to New Jersey 41 Table V New Jersey Open Space Needs for 1960, Based on Acres Per 1000 Population Standards 44 Table V) New Jersey Open Space Needs, Basedon Land Use Standards 45 Table VII New Jersey Open Space Needs at ?he 10 Million Population Level (Based on Acres Per 1000 Population Standards) 46 Table VIII Existing Open Space Facilities Having Megalopolitan Significance 48 Table IX Proposed Open Space Facilities Having Megalopolitan Significance 49 Table X Existing Open Space in New Jersey Servinga Metropolitan Function, 1960 51 Table Xl Open Space Serving a Metropolitan Function Currently Being Acquired through the Green Acres Acquisition Program of New Jersey 51 Table XII County Open Space in New Jersey, by County 53 Table XIII Municipal Open Space in New Jersey, by County 54 Table XIV State Green Acres Projects 101 Table XV County and Municipal Green Acres Projects 101 LIST OF CHARTS Chart I Basic Assumptions for a Balanced Land Use Pattern39

As a result of the rapid urbanization of New principles.However, this ideal plan must re- Jersey and increased leisure time, the prob- flect practical considerations such as existing lems of preserving open space and providing urban development and the amount of funds outdoor recreational facilities in the State will presently available to purchase open space. play an increasingly important role in creating Therefore, more emphasis should be placed on a desirable environment for future growth. the multiple-purpose use of both water-oriented Out of the growing recognition of the nature and land-based factors to provide a unified pat- of these problems there exists a widespread tern of open space which will shape and direct acceptance that they will have to be solved by growth and fulfill the recreational needs of the the various levels of government utilizing the State's inhabitants. instruments which are at their disposal such The responsibility for assuring an adequate legislationto preserve open space and as amount of open space to meet both current methods of financing acquisitions in advance and anticipated needs rests primarily with the of immediate need. Both the maximum use of respective levels of government. The public's these tools and the comprehensive approach interest and welfare should be foremost in de- of the planning process are needed in order to adequately meet the increasing leisure time termining the quantity and kind of recreational and recreational demands of the public and and open space facilities to be provided by each level of government, and the relationship of relate open space standards to basic statewide these facilities to other forms of land use. development goals. Consideration must be given to the various At the local level, provisions should be made functions of open space to meet the needs of for relatively small intensively used parcels the present State population and to provide within easy access to those served. County fa- for a desirable environment for its future citi- cilities should be located within easy access by zens.Provision of recreational areas, preser- car or public transportation with an emphasis vation of natural resources and unique sites, on larger scenic sites such as reservoir and creation of breaks in the dense urban areas and natural resource areas. The State should seek the shaping of urban growth are functions of to provide a well distributed and accessible open space which should be included in a com- system of parks and open space, including prehensive plan to assure that each type of unique scenic, historic and geologic sites and open space is made available. recreational facilities of statewide significance. The "Open Space Policy Study Map" at- At the Federal level the primary responsibility tempts to incorporate all proposed and po- should be one of maintaining a recreational tential open space landsinto a Statewide and open space system which embraces areas scheme demonstrating many basic open space and sites of national interest and concern. A

1 secondary responsibility should be the pro- municipal acquisitions in this area have lagged vision of regional parks for large urban concen- behind those of the north and, therefore, should trations and in cooperating with the other levels begin acquiring land now. of government to help fulfill their open space Generally speaking, New Jersey's supply of needs. open space is not sufficient to meeteither its The two types of standards that can be ef- present or future demands. The Green Acres fectively used in determining how much open program has been a powerful forcein provid- space functional-politicaljurisdictions should ing the initiative for acquiring open space in strive to acquire and maintain are the acres New Jersey-,It is hoped that the momentum per 1,000 persons standard and thestandard of that undertaking will be adequate to influ- used to create and maintain a balanced land ence all political jurisdictions toestablish defi- use pattern of development. nitive policies and programs for acquiring and preserving open space in accordance with the Even the most cursory analysis would indi- need and in a manner which will create a de- cate that the highest priority for obtaining open sirable living environment. space at all the functional levels mustbe assigned to the northern half of the State. Not There would seem to be numerous methods only are present deficits greater in the north, of preserving open space at various govern- but, assuming the continuationof present mental levels in New Jersey.However, not trends, these deficits will mount at a faster rate many of these techniques have beenemployed, in the urban north than in the southern part as is evidenced by the fact that virtually allof of the State. Potential resJurces are disappear- the open space in New Jersey has been ob- ing in the urbanized areas at a very rapid pace. tained through either acquistion of title or gift. In all probability these will continue to serve as The 1960 deficit in open space acreage ag- the primary means of preserving open space gregated for all levels in the northern section until new methods are tested. New Jersey plan- of New Jersey amounts to 104, 280 acres while ning laws do not clearly indicate adequate ways the south as a present excess of 82,020 acres. ofachieving orderly developmentof open From 1960 to the 20 million level of popula- space. Imaginative local governments are us- tion about 500,000 acres of land will be needed ing legal tools that were intended to control to fulfill the minimum open space and recrea- other problems in order to preserve open space. tional needs of these levels in northern New An example is the road drainage laws for coun- Jersey. The acreage requirement for the south ty roads that have been used as a tool to pre- at this population level will approach a mini- vent houses from having their driveways on mum of 300,000 acres of land. county roads. The result is a strip of green open land along some county reads. Another This is not to say, however, that open space example is the use of vector control regula- planning andacquisitionshould ceasein tions, such asmosquito controls, to force southern New Jersey.With the possible ex- developers to dedicate stream valleys to local ception of open space at the State functional government. The result is many narrow strips level, southern New Jersey is also deficit at a of green crossing the county. time when its population is increasing at a steady rate.In fact, when the State's popula- Before there can be a definite piece of legis- tion reaches 10 million persons, the southern lation to clear the way for planning tools to portion willcontain approximately twice as solve the problems caused by local confusion, many people as it had in 1960. County and there must be a better understanding of plan-

2 ning. Inherent in the ability to gain new legis- powers which can be used in the procurement lation is the support of the public; support is of open space. They may buy, condemn, or often readily granted when the issues become accept as gifts land or water or rights in land apparent and critical. This creates a situation or water, either inside or outside their munic- where the planner is always running to catch ipal boundaries, if the open spaceso obtained up. The ideal situation for the planner is to is to be used for public recreation. Theyare be able to forsee factors in the society and give also empowered to acquire land for public direction to the events that will shape the fu- plazas, to preserve scenery or to build parks ture. Open space is one of the many factors and parkways. that will make life in New Jersey more desirable or less so in a direct relationship. The advantage in determining how open space needs can be met by the various levels New techniques are being studied to give of government in the State in an orderly long- New Jersey's governmental jurisdictions tools range open space system is to provide the pub- to protect a portion of our remaining unde- lic with a complete range of facilities at proper veloped land.The new techniques are gen- locations while at the same time maximizing erally of two types. One combines different natural and fiscal resources and providing for existing methods to overcome the ineffective- the wise and judicious use of land.It is likely ness or high costs of a single method. A sec- that a minimum of 20% of the State's land in ond type of new techniques calls for legislation public open space will satisfy the needs of the to create new tools. Good promise is shown by 20 million level of population at the Horizon. these new techniques but they will have to be The Horizon, or long-range goals and objectives tested for the desired results.Study should for the future growth of the State, consists of be promoted in both directions. Development Alternatives which will test the The Department of Conservation and Eco- feasibility and desirability of basic land use pat- nomic Development of the State of New Jersey terns. Associated with the Development Alter- has numerous powers which can be used for natives are the basic Open Space Policy Con- open space procurement.The Department cepts which are to provide a more comprehen- may acquire land or rights in land through pur- sive basis for the selection of an over-all open chase, gift, or by eminent domain when the space policy plan and to serve as an input to land is to be used for a State park or forest, or the final refinement of the Long Range State to be maintained as a watershed or a site of Development Plan.The Expediency Concept historic interest.It may accept land from the depends on the availability of money and land, New Jersey Highway Department and develop therefore, it lacks a long range look at the total it for roadside parks or rest areas.It is em- needs for an extensive geographical area. The powered to acquire fresh water, lakes, lands purpose of the Natural Features Concept is to surrounding them and rights in land leading to preserve areas which are largely in their na- the lake areas. tural state. The weakness of this concept is that the open space system would be located New Jersey county improvement authorities entirely on undeveloped land in the outlying may buy, lease or condemn lands or obtain sectors of the State thereby limiting the extent easements in land for recreational use. They to which open space could be used to shape are empowered to issue bonds to pay for these development. The Design Concept and its al- acquisitions. ternative uses are concerned with shapingur- New Jersey municipalities also have broad ban development patterns and with providing

3 facilities in close proximity to those whom it Open Space Policy Plan provides a comprehen- will serve. sive means of directing the continued acquisition of open space in order to keep pace with A combination of many of the elements of the State's rapidly expanding population and each of the Open Space Concepts is necessary development. The Plan shows approximately for the creation of a long-range open space 121/2% of the State in open space and repre- system to meet the needs of the State's Hori- sents about 125,000 more acres than the zon population of 20 million. 480,000 acres of Federal, State and County Finally, the formulation of certain common level open space that our standards would re- principles stemming from the Open Space Con- quire for the 10 million population level. cepts have been established and can aid in the Thus, the Open Space Policy Plan can be a task of acquiring open space lands in order to major device in helping to create a desirable serve a comprehensive open space system for environment within the State and should serve both the 10 and 20 million levels of popula- as a basis for the protection and conservation tion. of valuable open space within our rapidly urbanizing State so that present and future gen- As a result of the severe development pres- erations might have the opportunity to partake sures in the State, especially in the Critical of New Jersey's natural heritage. Area, there is an urgent need to provide open space sites that meet both quantitatively and The Open Space Policy Plan for the 20 Mil- qualitatively the open space requirements for lion Population Level will provide a basic plan the 10 million level of population. The Open at this time (see Fig. 5, Chapter II) for the Space Policy Plan attempts to offer a compre- acquisition of open space to be used both in hensive approach to meet these requirements. the presently delineated Critical Area and in the now existing less urban sectors of the State The Open Space Policy Plan is designed to to guide development, provide multiple-purpose make open space easily accessible to the open space areas, and to protect and preserve people by locating it in relatively close proxim- areas of historic interest, scenic beauty and ity to the urban and urbanizing areas of the natural resources. State.It is also designed as a first step to permit the maximum use of open space by direct- The plan will be dynamic and adaptable to ing and defining future development. Included changing needs and policies as the 20 million in the Plan are areas important to the protec- level of population is approached. Open space tion of our natural resources, public sites of low will, hopefully, complement and promote poli- intensity use and areas important for their na- cies on future land use patterns, and acquisi- tural beauty and historic interest. tions will be used to help shape and define these patterns.Indication of specific items Through the efforts of the State Green Acres such as levels of governmental responsibility, Land Acquisition Program and theFederal actual acreage and specific proposals will not Delaware Water Gap National Recreation Area be attempted at this time. However, the gen- project, total open space acreage has been eral policies and acquisition indicated by the brought close to the aggregate standards for plan, when undertaken by all appropriate levels the estimated 1965 population of 6,800,000. of government, will help to provide a very de- However, the open space needs at the various sirable urban environment for the people of levels of governmental responsibility indicate New Jersey. a considerable void that needs to be filled just to meet present open space standards. The

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' \ ' s'L " r _ 7 '?" _ ''" The Role of Open Space Planning As the work week for most Americans has an opportunity for creativity, refreshment, and grown shorter, increased demands for facilities renewal of energy away from the workday for leisure-time and recreational activities have world. come into being. By 1985, forecasts suggest The provision of opportunities for outdoor that the average work week will be shortened recreation is generally accepted as a primary to 32 hours. Earlier retirements and continued responsibility of the various levels of govern- mechanization of work both in the home and ment. Although there are a number of areas on the job will produce more leisure time for in which outdoor recreational facilities are pro- all members of the family. A distinction must vided by private groups for a limited member- be made between leisure and recreation. Lei- ship or on a commercial basis (golf courses, sure is that time during which the individual swimming facilities, hunting grounds, etc.) for is not sleeping, eating, or working; it is that the most part, open space for recreation re- period in the day when a person is freed from quires the participation of government in its the pursuit of the basic necessities of life. acquisition, protection, and development. The Recreation, on the other hand, suggests a con- expenditure of public funds for the acquisition scious choice or preference in the way people and development of open space areas is justi- spend their leisure time. Recreational activi- fied on the basis that such areas enrich the ties can take many forms. What one man may life of the total community by providing op- consider recreation, another may look upon as portunities for the worthwhile use of leisure a necessary chore. The "do-it-yourself" hob- time and by contributing to the social, physical, byist, for example, derives enjoyment from ac- educational, and cultural tivities which others may consider outside the well-being ofits realm of leisure time. To many, to "recreate" people. means to sit quietly in some comfortable spot Open space areas also serve to protect im- and watch the world pass by ; others seek more portant natural resources and to provide for active outlets for their leisure time playing aesthetic experiences. Water resource areas, golf,hunting,fishing,swimming,boating, areas of timber resources, unique natural sites, camping, etc. Regardless of what may becon- etc., are often protected in conjunction with sidered by an individual as recreation, itis their management asoutdoorrecreational evident that much of our leisure time is spent areas.In such instances, however, careful out-of-doors.Outdoor recreational activities management and controls are required, lest the are viewed by many as the most constructive recreational use of such areas come into con- use of leisure time, since such activities provide flict with conservation objectives.Neverthe-

5 less, open space for conservation is generally Jersey has the dubious distinction of being the recognized as another important responsibility most densely populated state in the nation. of government. For the purpose of this report, Furthermore, New Jersey's population density therefore, open space is defined as : may be expected to increase substantially in the years ahead. It is estimated, for example, That portion of man's enivronment hat over 10 million people will be living in which is characterized by natural scenic New Jersey before the year 1990. With these beauty or openness and which is dedi- increases in population, greater demands will cated to being preserved or kept open in order to enhance urban, suburban, be placed upon New Jersey's land resources by or rural areas and as important physi- all forms of development, and this situation cal,social,recreational, conservation, will be compounded by the competition for aesthetic, or economic assets. adequate space to insure the proper location of industrial, residential, commercial, and other Thus, the distinction must be made between land uses. The question arises, therefore, as to open space and vacant or undeveloped land. how much of this vital land resource should be While the latter category has the potential for preserved for open space and recreational pur- becoming open space as it is defined for the pursuits. poses of this study, it is only after a conscious decision has been made to dedicate or reserve If New Jersey is to continue to offer a de- these lands that they can be considered a part sirable environment for future growth, it must of the overall system of open space. have an adequate supply of open space to provide a balanced land use system that will as- It is generally acknowledged that lands in sure recreational outlets, protect valuable na- agriculture offer an important potential for tural resources, and satisfy the aesthetic needs open space. Such areas are often "...charac- of future generations. This, then is the chal- terized by natural scenic beauty or open- lenge which confronts the public in general, ness ..." However, the dedication of agricul- the respective levels of government in particu- tural lands as open space is temporary. As the lar, and the planner, who must maximize the pressures of urbanization and the incentives effective use of physical, economic, and social for ;ale mount, agricultural areas are likely to resources by providing guidelines for the or- succumb to more intensive land uses.Thus, derly growth and development of our State. agriculture lands, while possessing the potential, would require long-range protective meas- The Objectives of the Open Space Policy Plan ures in order to maximize this potential. The provisions of the recently enacted Farmland It is the purpose of this report to explore some Assessment Law (N.J.S.A. 5A :4-23.6) repre- of the long-range implications of open space sents a first step in this direction. However, planning and to set forth broad goals and ob- the short-term nature of the "roll-back" fea- jectives to serve as guidelines for the future ture of the Law which allows such lands to development of New Jersey, particularly as revert back to a more intensive use, places it in related to the need for an adequate system of the "temporary" category.More permanent public open space. This report is undertaken measures are required if agricultural lands as a part of the Plan Formulation Stage of the are to function as an integral part of the over- Statewide Planning Program.It is the pri- all open space system. mary objective of State Planning, and in particular, this phase of the Statewide Planning With over 900 persons per square mile, New Program, to formulate a comprehensive and

6 long-range State Development Plan to provide phase of the Plan Formulation Stage of the the basis for the sound evaluation of day-to- Statewide Planning Program, is designed to day governmenta' decisions related to the over- provide a series of broad goals and objectives all growth and development of New Jersey now for the future beyond which point it is likely and in the foreseeable future. This State De- that significant changes will have to be made velopment Plan and the continuing planning in the social and economical aspects of our activities which must accompany it, if it is to society as well as in the physical environment, be successful, will establish the foundation upon both natural and man-made. Preliminary es- which decisions as to capital expenditures, leg- timates suggest that this planning "horizon" islative policies, and governmental action at all of 20 million people will be achieved in the next levels can be built. ninety years.In order to provide a set of shorter-range open space objectives which can In contributing to this objective, this report be translated into more immediate open space will attempt to provide answers to a series of policies, an effort will also be made within the questions ccncerning the planning for open framework of this report to formulate an open space : space plan for the 10 million level of population 1. How much land should be dedicated to or half of the "horizon" population. meet future open space needs? A distinction must be made between the basic 2. What functions are performed by open objectives of the Open Space Policy Plan and space recreational facilities and how the objectives of the more detailed New Jersey can these functions be reflected in the Comprehensive Outdoor Recreation Plan being qualit ative aspects of open space? prepared as part of the Statewide Planning Program. The Open Space Policy Plan is con- 3. Whose responsibility should it be to cerned primarily with the long-range land use provide open space areas in fulfillment aspects of open spacehow much land should of these various functions ? be dedicated to meet future open space needs ; 4.In what manher can open space be lo- the location of open space with regard to po- cated to maximize its benefits to the tential users ; governmental responsibilities in potential users of these facilities ? the provision of open space areas; and, the methods available for the protection and con- 5. What methods are available for the servation of open space areas. protection and conservation of open space areas ? The New Jersey Comprehensive Outdoor Recreation Plan, on the other hand, will deal In attempting to answer these questions, this with the more specific aspects relating to the report will explore four basic areas : the quali- development of recreational facilities located tative aspects of open space ; open space stan- upon the various public open space areas. dards ; levels of responsibility ; and alternative While the present study will endeavor to pro- patterns of open space. In order to provide the vide a broad framework with regard to open long-range dimension to this study, the inquiry space ; site selection which will consider the po- into these four basic areas will be geared to a tential for site development, the detailing of "Horizon Population" of 20 million people, or specific recommendations concerning recrea- approximately three times the existing level of tional facilities within these open space areas population in the State. The Horizon Planning will be the primary function of the New Jersey Concept, which forms the basis for the first Comprehensive Outdoor Recreation Plan. This

7 study is being prepared in conjunction with the next two decades, America's 1.9 billion the Division of Parks, Forestry, and Recrea- acres of land will be quite enough to house tion. people, and very comfortably. It will not be enough, however, if land is squandered. The Cho:Menge of Open Space Planning It is in the metropolitan area that most Before embarking upon a discussion of the people are going to be living, and the fact more technical aspects of open spaceplanning, that there will remain thousands of acres it is necessary to explore in more detail the of say, empty land in Wyoming is not go- challenges which face the public, government, ing to help the man living in Teaneck, and the planner in providing an adequate sys- New Jersey. tem of open space to meet current and future In 1960, the New Jersey Department of Con- needs. Each of these broad groups have a role servation and Economic Development pub- to play in concert with one another and the ef- lished a study entitled The Need for a State fectiveness of this partnership, in large meas- Recreational Land Acquisition and Develop- ure, will determine the success of any under- ment Program. This study attempted to as- taking in the planning of open space. sesstheneedforincreasedstate-owned recreation and conservation lands. According THE CHALLENGE TO THE PUBLIC to the report :2 Open space is already a public issue, not only The most important single finding is the in New Jersey, but nationally as well. In re- immediate and compelling need to acquire cent years the alarming disappearance of open additional lands for outdoor recreational space in and about our major urban areas has development and water supply storage fa- been brought to the nation's attention through cilities .A vigorous land acquisition pro- newspapers, magazines, radio, and television. gram of new open lands should be adopted Every aspect, from diagnosis of the causes to at this time... proposed remedies, has been given widespread attention by leaders in many fields. The report concluded with a number of specific recommendations, among them the fol- The nationwide scope of the open space prob- lowing:3 lem was demonstrated by William H. Whyte, Jr., in his article "Urban Sprawl" in the Jan- 1.Immediate steps to be taken to launch uary 1958 issue of Fortune magazine an effective ten year open space and recreational land acquisition program. Withcharacteristicoptimism,most Americans still assume that there will be 2. The problem of providing the neces- plenty of green space on the other side of sary funds be given to a study commit- the fence. But this time there won't be. tee composed of citizens, legislators It is not merely that the countryside is and administrative officials. ever receding; in the great expansion of 3. The acquisition of water storage sites the metropolitan areas the subdivisions of should be planned and coordinated one city are beginning to meet up with the with the needs for recreational open subdivisions of another. space. The problem, of course, is not an abso- 4. Open lands when acquired should be lute shortage of land. Even with the 60- developed under the multiple use con- million increase in population expected in cept already recognized by the legislature.

8 5.Consideration be given to a program of support of various citizen groups to dissem- financial assistance to local levels to inate information concerning the need for open stimulate the acquisition of smaller space. more intensive recreational sites. While there is a growing public awareness This report, and especially the above recom- of the need for and desirability of advance ac- mendations, formed the background for the quisition of space in the face of mounting pres- executive and legislative action which led to the sures of urban growth, the public mustalso placement of the Green Acres Referendum on come to recognize that "quality" open space the ballot in November of 1961. The passage of must be attained. Open space must be con- this Referendum was a public statement that sidered a necessary part of development and the State must assume a major new responsi- not merely relegated to undevelopable or "left- bility in cooperation with county and local gov- over" lands where overlooked needs can be met ernments in the protection of open space for at a later date. public use. The problem is not only one of gaining pub- The objective of the Green Acres Program, lic support for acquisition and development stated in the Act4, is the provision of lands for programs, but also to enlist their participation public recreation and conservation Gf natural in efforts to find answers to the questions of resources. The Aet recognizes theState's re- how open space can be protected and what ends sponsibility in providing public open space that and fundamental objectives should such actions such lands "promote the public health, prosper- serve. ity and general welfare and is a proper responsibility of government."5 THE CHALLENGE TO GOVERNMENT The challenge to government is clear. Gov- The Act also identifies the challenges of open ernments at all levels mus' looperate in seek- space planning by stating that "...lands now ing new methods and must share resources, provided for such purposes will not be adequate whether they be personnel or financial, to ob- to meet the needs of an expanding population tain the objectives of providing adequate open in the years to come. The expansion of popu- space at all levels. lation ,while increasing the need for such lands, will continually diminish the supply and tend The State of New Jersey has a ong history to increase the cost of public acquisition of of public acquisition. The first public lands in lands available and appropriate for such pur- New Jersey were purchased for conservation poses ..."° purposes in 1905 under the Forest Park Reser- vation Act passed in that year. In 1915, a De- Several other states, among them New York, partment of Conservation and Development Connecticut, Pennsylvania, Wisconsin and Cali- wasestablished,bringingparks,forestry, fornia, have also recognized that the pressures water, and geology all within the scope of a of urbanization require that a vigorous pro- single department. gram of acquisition be initiated to insurethe availability of an adequate supply of public From the early beginnings of the state park open space for future generations.In these movement, gifts have played an important role undertakings, as in the Green Acres Program, in adding numerous areas to the public open the states have gained public support through space system. In 1932, a land acquisition pro- an intensive educational program,enlisting the gram was initiated by the Fish and GameAgen-

9 cy, applying fees obtained from hunting and tion of recreation and conservation areas. The fishing licenses to the purchase of public open first of these programs was launched one year space. after the passage of New Jersey's Green Acres Program as a part of Title VII of the Housing Since World War II the State has made sev- Act of 1961. The legislative purposes of this eral important purchases included in the 1950 program are stated as follows :7 Development Plan : the Worthington Tract, the Wharton Tract, Island Beach, and the Spruce To help curb urban sprawl and prevent Run-Round Valley Reservoir Complex.The the spread of urban blight and deterio- maximum multi-purpose use of these tracts ration, to encourage more economic and was envisioned at the time of purchase. desirable urban development, and to helpprovidenecessaryrecreational, The Green Acres Program provides an excel- conservation and scenic areas by assisting State and local governments in tak- lent example of State, county and local coopera- ing prompt action to provide, preserve, tive action in an effort to meet the challenge to and develop open space land which is government of planning for open space. The essential to the proper long-range de- total $60 million in funds provided by the velopment and welfare of the Nation's Green Acres Bond Issue has been divided, $40 urban areas, in accordance with plans for the allocation of such land for open million to be used for the acquisition of new space uses, and beautify and improve State open space areas, and $20 million to be open space and other public urban land, used as 50 percent matching grants to assist in accordance with programs to en- counties and municipalities in the acquisition courage and coordinate local public and of recreation-conservation lands.The Green private efforts toward this end. Acres Program is also designed to develop and test new methods of pmtecting and conserving Under this program, open space grants are open space areas both for recreation and con- made to state and local public bodies to provide servation purposes. This point will be discus- from twenty to thirty percent of the cost of sed at length in Chapter V. acquiring open space land including agricultural land in and around urban areas.Ac- It should be borne in mind that Green Acres quisitions must be based on, and in accordance was never intended to be the entire solution to with, comprehensive plans for the areas. the open space problems in New Jersey. As the State grows, the need for open space will This Federal program, administered by the become more vital. With the impetus provided Department of Housing and Urban Develop- by the major acquisitions made possible by ment (HUD), takes cognizance of two impor- Greem Acres, however, it should be possible to tant aspects of open space planning: (1) the stimulate a continuing program of open space importance of an active open space acquisition development enabling municipalities, counties program in urban areas, which in light of the and the State to maintain an open space sys- high costs of land, requires State and Federal tem by the rational budgeting of resources in participation ;and, (2) the importance of a the future. comprehensive approach to the planning of open space in conjunction with other forms of The Federal government, in recognition of development. With the requirement of a com- its responsibilities in meeting the challenge of prehensive planning approach, this program open space planning, has recently initiated two recognizes that present and future population important programs to assist state and local trends, patterns of urban growth, the location governments in the acquisition and preserva- of transportation facilities, and the distribu-

10 tionofindustrial,commercial,residential, installation services allocated to that purpose, governmental, institutional and other activities and up to 50 percent of the costs of certain must be brought into consideration as they re- lands, easements, rights-of-way, and modifica- late to open space acquisition proposals. tion of existing improvements.

A second program which illustrates recog- THE CHALLENGE TO PLANNERS nition at the Federal level of the need for cooperative open space planning is the recently The planning process has been likened to enacted Land and Water Conservation Fund trying to catch a moving train.It is difficult, Act.8 Passed in September, 1964, this program if not impossible, to board a moving train by provides funds, administered by the Bureau of running perpendicular to its line of movement ; Outdoor Recreation of the U.S. Department of rather one must run parallel to the train, grad- the Interior, to permit the federal government ually gaining speed until it is possible to board to share equally with the state in the acquisi- the train. Similarly, the planner must antici- tion and development of outdoor recreation pro- pate future trends far enough in advance to jects which are part of a statewide comprehen- permit plans to be initiated and implemented sive plan, or part of a land acquisition program, before needs become acute. Plans should not or part of a development program. This pro- only keep pace, but must accekrate to catch gram, designed to run for 25 years beginning moving events. January 1, 1965, derives its funds from a number of sources including :9 (1) admission and The planner, however, must not only inter- user fees at Federal recreation areas which pret future needs but also must deal with the meet certain qualifications ;(2) net proceeds backlog of existing needs. The preparation of from the sale of surplus Federal real property ; supporting data needed to properly guide cur- and (3) the existing tax on motorboat fuels. rent decisions in many cases requires a back- Funds may also be transferred by the State to ground of research that has yet to be fully de- the local units of government, if such projects veloped. It is, therefore, necessary to evolve a are in accordance with the state's comprehen- process whereby long-range goals and ob- sive outdoor recreation plan as approved for jectives are developed concurrently with the participation in this program. making of day-to-day decisions.Fostering a growing interrelationship between these two Two other Federal programs, the Urban Re- factors is the planner's responsibility, and his newal Programn and the Watershed Protection contribution to the decision-making process. and Flood Prevention Act" also provide funds This processisalready underway.This for the protection of open space in specific study, in many instances, discusses material areas. Under the Urban Renewal Program, a and concepts which have already been incor- part of a Federally assisted urban renewal pro- porated into the Green Acres Program. Fur- ject area may be considered a contribution (in thermore, New Jersey is fortunate in being able open space) from the local unit toward its to use planning material that had been pre- share of the cost of the urban renewal project. pared in previous decades. The State Develop- Such an acquisition may also be made with the ment Plan, developed during the 1940's and help of Green Acres Funds. The Watershed made public in 1951, indicates many long-stand- Protection and Flood Prevention Program of ing open space acquisition goals. the Federal government will share up to 50 percent of the cost of water-related basic rec- A more comprehensive examination of basic reational facilities, and will pay all costs for policy objectives, planning techniques, and pro-

11 gramming criteria is needed to guide future confronting both administration and planners. open space actions of State, countyand local There remains, however, many other basic is- governments. This study, as an integral part sues that must be resolvedbefore the most ef- of the Statewide Planning Program, is designed fective use of public resources can be guaran- to accomplish that objective. teed. Not only must each level of government resolve what their respective responsibilities An analysis of open space needs is one of the are with regard to open space,but there must most important studies that the planner must be further clarification where existing jurisdic- undertake as he formulates a comprehensive tions either overlap or are not covered at all. developmentplan.Generallyspeaking,an Questions arise not only in the field of open analysis of open space potential involves a space but also with regard tothe relationships study of the remaining voids yet to be found in of open space and recreational needs with other the growing pattern of urbanism. With the major environmental factors. exception of urban renewal development, all significant future development will be located Many questions yet to be answered relate to in existing vacant space. Many land uses will a series of problems extendingbeyond New compete for the undeveloped land, and it is tile Jersey's boundaries : the relation of open space job of the planner to provide guidance as to in New Jersey to the open space pattern of the best possible use of these areas. Open space surrounding states ; the role of interstate plan- is, of course, but one of the items to be con- ning; the extent to which out-of-state open sidered ; however, the importance of its wise space needs should be met byNew Jersey ; the use in development plans cannotbe denied. role of the Federal government in metropolitan and State open space programs ; and, the role A good plan must bridge the gap between of the Federal government in the purchase of theory and practice. While theoretical solutions municipal and county open space facilities. seldom gain wide public support and popular As the State's responsibility in meeting open solutions are seldom comprehensive enough to delineated further provide a complete solution, the planner must space needs is more clearly seek to satisfy both aspects. The answer would questions arise : the relationship of open space of more sophisti- elements to basic statewide development goals ; seem to lie in the evolution the application of open space standards atthe cated processes of developing widespread public understanding in order to achieve more State and local levels ;the identification of open space elements which arethe State's di- viable and comprehensive solutions to physical rect responsibility ; the identification oftypes and social problems. This is the challenge that of open space need now inadequately met ; the faces planners and the public alike ; both must share the responsibil ity to endow our environ- relation of increasing leisure to recreational demands ; the role of public action in protecting ment with those qualities which will merit the non-public open space elements such as golf respect of future generations. courses and summer camps ;the desirability of developing inlying rather than outlying open The Issues of Open Space Planning space facilities ; the role ofhighway planning ; Both the Federal and the State legislation the determination of governmentalresponsi- offer important tools in the solution of open bility for open space potentials falling on the space needs in New Jersey.Combining these boundaries of two or more political subdivisions State and Federal programs for maximum or facilities crossing stateboundaries ; the con- benefit will be one of the first important tasks tributions of commercial recreational facilities

12 in New Jersey, especially along the New Jersey uses which are yielding to the very develop- shore ; the future of large undeveloped areas ment pressures which make their continued within the State ; and, the problems and po- existence all the more important. These facili- tentialsaccompanying thedevelopmentof ties supplement public parks and recreational Tock's Island Dam and recreation area. areas by providing desirable breaks in the pat- On the local level, important planning ques- terns of urban development. tions must also be given consideration :the What is needed is a more comprehensive ap- priority of open space needs in relation to in- proach to planning; yet the problem goes far dustrial and residential land uses ; the role of deeper than that. The tax structure in New the county in local and state planning; the Jersey has created an environment which tends problems facing large cities in the provision of to discourage the implementation of plans for open space ; the role of suburban areas in sup- open space facilities. While it may be relatively plementing open space facilities of core ur- easy to forecast future needs, it becomes more ban areas; the open space needs of rural and difficult to find a willingness to pay for them suburban areas ; the effects of future popula- in advance. Often when a price tag is put on tion on open space needs in various areas ; the any future facility, the project is set aside, relationship of urban renewal activities and only to be revived at a later date when the best open space ;the use of effective flood plain site is gone and a less desirable site, as the zoning along appropriate watercourses ;and, only remaining alternative, may cost several the discouragement of undesirable development times what the original site would have cost. by local planning. Under such conditions, planning becomes If the growing recognition of open space deficit planning attempting to catch up on needs has not been accompanied by a corres- needs already existing and paying premium pondingly strong concept of what open space prices to do so. If New Jersey is to make the should be, it is because open space is so closely most effective use of both its natural and fiscal related to development that it cannot be dealt resources, new taxing methods, coupled with with in isolation. Open space is part of a broad- advanced planning techniques must be devised er problem : the problem of reserving sufficient to permit needs to be anticipated in time to space for the future. In our rapidly growing afford a savings of sufficient magnitude to urban and suburban areas space must be pro- make adequate facilities financially feasible. vided for many types of facilities. Parks and This is one of the key issues in the planning of recreation lands are just one of the needs. Sites open space. for new industrial lands, shopping centers, highways, and institutions must also be found, The answers to many of these questions have and in many cases, reserved in advance, if the yet to be evolved. Furthermore, answers which opportunity to properly locate such facilities do emerge may not be compatible with each is not to be lost. Unfortunately those agencies other. In short, while there is a growing rec- whose responsibility is the acquisition of pub- ognition of the need for open space, there lic facilities are rarely either the quickest or exists no broadly conceived, unified policy guide highest bidder for what remains. Furthermore, tailored to the particular social and geographic in every urban region there is a variety of conditions within which each level of govern- public, semi-public, and private open space ment exercises its respective responsibilities.

13 FOOTNOTES

1.William H. Whyte, Jr., "Urban Sprawl," Fortune, January, 1958, pp. 102ff. 2. New Jersey Department of Conservation and Economic Development, The Need for a State Recreational Land Acquisition and Development Program, (Trenton: State of New Jersey, 1960), pp. 12-13. 3.Ibid., p. 16. 4.N.J.S.A., 13:8A-1 et seq. 5.N.J.S.A., 13:8A-2(a). 6.Ibid., (b), (c). 7. Housing Act of 1961, as revised by the Housing and Urban Development Act of 1965, Title VII, Sec. 701 (c), Public Law 89-117, 42 U.S.C. 1500-1500e. 8. Land and Water Conservation Fund Act of 1965, Public Law 88-578, 78 Stat. 897. 9.Ibid., Title I, Sec. 2. 10. Housing and Urban Development Act of 1965, Public Law 89-117, 79 Stat. 451, Title HI. 11.Watershed Protection and Flood Prevention Act, c. 656 of 1954, 16 U.S.C. 1001 et seq., 33 U.S.C. 701b.

14 - Much has already been accomplished in the 3.Preservation of distinctive architec- development and management of open space fa- tural, historic, geologic, and botanic cilities through the instrument of government. sites ; The primary concern of the Open Space Policy 4. The creation of breathing spaces in Plan is to explore and further promote the suc- densely settled areas; and, cessful interrelationship of open space policies 5. The shaping of urban growth and the of each level of government, particularly as preservation of natural beauty near these relate to the open space and recreational urban and suburban development. needs and character of specific areas of the State. All of the functions enumerated by Penjerdel Open space is closely related to development are applicable to New Jersey.It is virtually in that it cannot be dealt with in isolation nor impossible to assign priorities to these func- can the qualitative aspects in providing open tions. Although most people would probably space be ignored. Public open space require- consider recreation first, in a small urban state ments cannot be adequately met merely by pro- such as New Jersey, the other functions are viding vast areas of undeveloped land. There vitally important. The wide range of develop- are several functions of open space that must ment and population densities of the State be considered in dealing with the needs of the make all of the above uses important. existing State population and in providing for growth. A comprehensive policy is necessary RECREATION to assure that enough of each type of open space The need for open space for recreation was is made available.This chapter will discuss undoubtedly the most important factor in the these qualitative aspects or functions of open voters' approval of the Green Acres Program. space and New Jersey's potential for meeting It is not unusual for residents of New Jersey these needs. to see land used as informal play areas by neighborhood children become occupied almost The Functions of Open Space overnight by apartment houses or other forms Five basic functions of open space have been of development. Recreation areas throughout identified by Penjerdel. These include :1 the State, that should have been publicly owned to insure their permanence,were never ac- 1.Provision of recreational areas ; quired and consequently have disappeared. In 2.Protection of natural resources ; many areas, the street is the only obvious and

15 convenient place for neighborhood recreational Much of the present open space system is pursuits. Signs of "SorryFull" have begun designed for users with automobiles. However, to appear with greater frequency, providing in urban areas as high as 40 percent of the evidence that our State's open space system is families do not own their own automobile. inadequate at present to fulfill public demand. Therefore, the State as well as the counties must begin to make provisions for an open The problem is not merely insufficient space space system which is accessible to the urban for recreation. The problem is also one of pro- population who must rely on public transpor- viding effective spaceareas of land and water tation. which are both accessible to the public and which are useable for specific types of recreation. Sur- Public expectations for various types of in- veys have indicated that for reasons of location tensive uses and services provided by recrea- or management, many areas of public open tion are changing ;at the same time, some space nominally designed for recreation are forms of recreation are becoming inconsistent not available for general public recreation use. with the spread of urbanization. These factors Large acreages lie beyond convenient traveling must be taken into consideration in developing distances from urban areas where the demand an overall open space policy. is the greatest. Correcting this imbalance is a basic policy problem, incorporating both legis- PROTECTION OF NATURAL RESOURCES lative and administrative aspects of decision making. The rapid urbanization which has taken place within New Jersey has placed unpre- In selecting lands which provide a balanced cedented pressures upon the State's natural system of recreational opportunities, the great- resources. A failure to respect the balance of est challenges lie in finding lands which are nature, in some instances, has resulted in de- properly sized and which are located in those trimental changes in the environment. High places where public needs develop. Too often prices must be paid by subsequent generations recreational lands are one of the last urban to restore and maintain the natural environ- needs to be considered. ment. For example, flood damages have been severe in the State, yet upstream natural areas Densely populated urban areas often do not which normally absorb significant amounts of have the acres of space recommended for rec- excess water have been filled in, thus aggravat- reational facilities, nor is it reasonable to as- ing downstream drainage problems. Hunting sume that highly priced land in these areas and fishing have increased in popularity, yet a will be redeveloped to provide large amounts rising number of wildlife species are in danger of open space. The need for recreation in ur- of extinction and numerous rivers are polluted ban areas, now and in the future, must be met to the degree that many forms of fish life can- by intensive recreation programs in public fa- not survive. Wells have run dry, yet aquifer cilities coupled with a planned program of recharge areas that should have been protected small park acquisition. In the developing ur- or judiciously developed have been paved with ban fringe, the potential for providing various streets, parking lots and homes. Irreplaceable types of larger parks still exists. In such areas, wildlife and natural areas, including marshes advanced planning is vital to insure that the and forested areas, are being destroyed by the amount of land needed, its location, and ac- rapid suburbanization of the State. tivities to meet changing needs are properly considered.

16 ,

Natural resources play a vital role in the should be abandoned to other uses prematurely, State's economy.Industrial and residential far from it. Land should be protected until the growth require an adequate supply of water. development of its value is maximized. When The yield from New Jersey's agricultural lands, land has been built upon and values have which are so rapidly disappearing, has the changed accordingly, it is very difficult to alter highest value per acre of any State in the coun- that use, particularly for open space. try. Salt marshes are important to fishery resources since such areas provide both food and The protection of our wildlife resources is nursery areas for many forms of marine life heavily dependent upon the existence of natural which are of commercial value.Natural re- areas. Specific kinds of habitats are required sources, likewise, have aesthetic and recrea- by the life cycles of some types of wildlife. A tional value for the State's residents. For ex- prime consideration in the formulation of a ample, the State's forests in many areas pro- comprehensive open space policy must be the vide a welcome relief from the seemingly end- assurance of an adequate variety of wildlife less ,urban sprawl which has become prevalent habitats. in urbanized New Jersey.The recreational value of forests is increasing in importance as PROTECTION OF UNIQUE SCENIC oadoor activities such as hunting, fishing, and AND NATURAL AREAS camping become more popular. There is great diversity among the many subtle scenic attractions found in New Jersey. At some point in New Jersey's future, agri- While lacking spectacular features such as the culture, forestry, fishing, and mining as eco- Grand Canyon, New Jersey can present to resi- nomic activities will not be able to compete dents and visitors alike highly rewarding land- with urban development demands for land. scapes with a relatively short traveling time. This does not mean, however, that the land

17 Nevertheless, genuine concern can be expressed States has no noticeable open areas between as to what has been happening along our suburban and suburban regions, for the land is urban and rural roadways.Familiar scenic developed with a spotty pattern in endlesscon- and natural landmarks, imparting unique char- tinuation. The need for shaping urbanareas acteristics, have disappeared in the path of de- and differentiating them from the ruralen- velopment. vironment has long been one of the fundamental objectives of the planner. The principle New Jersey does have its own historical, of providing "breathing spaces" withinan ur- architectural, botanical, geological, and orni- ban environment can be applied ata large re- thological attractions which are of continued gionalscalethroughthedevelopmentof public interest for educational and cultural "greenbelts," open space "wedges," or other reasons. These are likely, however, to yield concepts which are directed toward the shap- to development trends, unless theyare specific- ing of urban regions. The preservation and ally protected for future generations. enhancement of natural beauty near urban settlements is a further role of open space as BREATHING SPACES IN URBAN AREAS a shaper of growth. While many areas cannot The need for "breathing spaces" is becom- be held open merely for aestheticpurposes, ing acute in the densely populatedareas of when combined with other purposes, aesthetic New Jersey. Central Park and thesoon to be considerations can be accorded a rightful place. constructed Liberty State Parkon the Jersey Any areasconsiderednecessarytoshape City waterfront present the opportunity to both growth must be designed to servea multiple inhabitants and visitors to divorce themselves purpose,includingrecreation,conservation, from the pulsating life of the cities whichsur- aesthetics and the preservation of uniquena- round them. tural resources. The concept of multi-purpose use is the economic rationale for patterns of Playgrounds, small parks,squares, commons, open space. The more functions served, the etc., though smaller in scale than the above more valuable is the facility in and of itself examples, can also play a vital role in offering and the more justification for having it. this diversion to the people in relief of the mile upon mile of urban development that typifies Potential Open Space in New Jersey the Northeast United States. While many valuable lands have already been The need for urban "breathing spaces" is incorporated into State, county, and local park not an easily measurable need. The history of systems, an awareness of the need for addi- park acquisition has demonstrated thata rela- tional open space has led to studies bynumer- tively small amount ofopen space, if properly ous private and public agencies. These studies located, can increase the overall value ofan area range from nationwide reports such as those to a considerable extent. Some progressive land made by the Outdoor Recreation Resources Re- developers are aware of this and have been view Commission, the Bureau of Outdoor Rec- among the leading supporters of the qualitative reation, and the National Park Service, to aspects of the open space system. regional studies undertaken by suchgroups as the Regional Plan Association. Many of SHAPING URBAN GROWTH AND these studies have supported State proposals PRESERVING NATURAL BEAUTY and have advanced other proposals andsug- gestions for the preservation of specific sites Unlike many European countries, the United

18 within New Jersey and have identified specific County planning for open space varies from natural assets which should be protected, de- comprehensive county park systems to limited veloped and incorporated into the overall pat- isolated park proposals. A number of more tern of urban development. In addition, studies urban counties presently have extensivesys- at the county and local levels deal with specific tems ; some of the more rural counties have not local needs within their respective jurisdic- as yet acknowledged the need for planned open tions. space, despite the approaching urban encroachment. The first items to be compiled and mapped were open space proposals and lands already Open space proposals made ina large num- in public open space. All available sources of ber of local master plans, many of whichwere proposals, including local and county plans, produced under the auspices of the State and were then reviewed and mapped in order to Federal 701 Local Planning Assistance Pro- obtain a complete picture of open space think- gram, were plotted and analyzed. A common ing at each level of government. attribute of these plans seems to be that adequate amounts of open space are often pro- EXISTING AND PROPOSED OPEN SPACE posed, but these proposals are not subsequently acted upon. Federal open space proposals in New Jersey center heavily upon the authorized Delaware WATER ORIENTED POTENTIALS Water Gap National Recreation Area, where a major national recreation area will be com- The existence of water is an important pre- bined with water resource control and flood requisite in the development of recreational prevention measures elong the upper Delaware. areas. Any number of conservation and open Other important federal proposals include : (1) space needs are also directly related to water. an expansion of the Brigantine Wildlife Refuge The map entitled Water Oriented Potentials in Atlantic County ;(2) Goose Pond (4,076 and Problems summarizes some of the factors acres) an extension of the Killcohook area significant to open space planning. These in- along the Delaware ; and, (3) the ultimate ex- clude such aspects as reservoir needs, water- pansion of holdings at Great Swamp in Morris sheds, aquifer needs, flood problems, recrea- County to 8,000 acres. tional uses of streams, shellfishing problems and the use of wetlands. A major basis for State acquisition has been the 1950 State Development Plan and the un- Reservoir sites have a double value in an published Pilot Open Space Plan which de- open space system. Not only are reservoirs lineated both existing and potential Fish and necessary as impoundment areas for the otor- Game lands, seashore parks and watershed age of water, but they can also double as rec- lands.In addition to existing parks, forests reation facilities. Topography and geology dic- and recreation areas, the 1950 Plan specified tate where reservoirs can be located, and, if general purpose areas of limited development these unique sites are to be available for future potential which should be studied further as water supply, they must be preserved well in potential State park and conservation areas. advance. Many of the current Green Acres proposalsare It is difficult to determine at what point de- an outgrowth of further investigation as to the velopment makes a potential reservoir site im- recreational potentials within these general practical for further consideration. However, purpose areas. such development occurs and the cost of site

19 acquisition becomes prohibitive. While water needs of the future may make some reservoir sites essential at any cost, in the meantime, encroachment of development upon a number of potential sites continues to increase in inten- F pure I sity. Existing public and privately owned watersheds are important factors in open space considerations. By their very nature they are undeveloped lands reserved for the collection of surface water runoff. Like reservoirs, they offer a recreation potential. As the intensity of urbanism restricts single purpose uses of such large areas, it is likely that it will become necessary for this potential to be utilized more fully. The preservation of acquifer recharge areas WATER ORIENTED is vital to the State's ground water supply. POTENTIALS AND Aquifers are underground water-bearing strata PROBLEMS and are of particular importance to southern New Jersey, which possesses one of the finest ground water supplies in the Nation.The aquifer recharge area is best served if it remains in a natural undisturbed state, thus minimizing pollution and maximizing infiltration.Typically, the development of streets, buildings and parking lots decreases infiltration by up to thirty percent. Because of the extensive areas involved, it is unlikely that complete protection would be feasible. However, with STATE OF KR DIY coordination of open space planning, much can DEPARTMENT OF COMMUNITY AFFAIRS be achieved to minimize losses. MON Or VATE BB OMB ?WM The banks of many rivers and streams are subjectto periodic flooding, with resulting property damage, personal injuries, and fa- SELECTED NATURAL FLOOD PLAINS talities. The flood plains of streams, however, SELECTED STREAMS WITH A POTENTIAL FOR CANOEING could provide an important addition to the open WETLANDS IMPORTANT TO WATER FOWL space system. While not all portions of the EXISTING RESERVOIRS a WATERSHEDS flood plains may be adaptable for recreational MIN IDENTIFIED RESERVOIR SITES COASTAL AREAS WHERE POLLUTION purposes, they should be kept free of intense HAS AFFECTED SHELLFISHING development, and can often be maintained as SELECTED AQUIFER RECHARGE PROBLEM AREAS play areas, naturai scenic features and hunt- SOURCE: Compiled by the Olralon of State and Roalonal Planning 151117 ing and fishing areas.

20 The coastal bays and estuaries of the New identifies such factors as agriculture, unique Jersey coast are important for recreational and natural sites, scenic areas, trails, golf-courses, commercial shellfishing.However, pollution airports and natural resources, which are re- resulting from intensive development has led lated to a comprehensive open space system. to extensive areas along the coast being closed. The Department of Health, in closing these New Jersey kw i witnessed the disappearance areas, has reported a direct correlation between of thousands of acres of agricultural landsas pollution and development of lands adjacent a result of suburban expansion. Not only is to bay areas. agriculture presently important to the State's economy, but its value as a form of open space The coastal marshlands of New Jersey have is also significant. long been recognized for their importance to migratory waterfowl as a part of the flyway Certain areas of the State, because of their along the east coast. More recently, studies in soil qualities, lend themselves toa high level of other coastal areas have also indicated the high agricultural productivity while other areas of potentiality of these marshes as spawning lower quality soils may also have a role as pas- grounds for fish, and as production areas for tureland or for growing specializedcrops. food and nutrients essential to shellfish and While the continued loss of agricultural lands other marine life existence. Pressures of de- appears to be inevitable, where continuation of velopment stemming from the nearby metro- agriculture can be justified in conjunction with politan areas of Philadelphia and New York other open space needs, its perpetuation as a combined with the commercial-recreational de- facet of the total open space system is highly mands of coastal resorts has brought about the desirable. disappearance of large acreages of marshland. Diminishing coastal marshlands reduce feeding New Jersey has more than its share of and nesting areas, directly affecting coastal unique natural features that are of interest to waterfowl and wildlife hunting, while at the the student of conservation and weekend ex- same time endangering sport and commercial plorer. An attempt has been made to pinpoint fishing and shellfishing activities through the the location of many of these sites. A number destruction and pollution of spawning grounds. of State agencies are doing research in this field including the Natural Areas Section and A number of the State's smaller streamsare the Historic Sites Section of the Department ideal as potential canoe runs and boatingareas. of Conservation and Economic Development, Making such streams of use would involve the and a number of specialists in botany, soils, removal of fallen trees and other obstacles,na- geology, etc. tural or man-made, and the provision of suitable launching sites. It should be noted that there are a number of man-made elements whose preservation may be LAND RELATED POTENTIALS warranted. These include such items as old iron bridges, stone and arch bridges, old mills, Having inventoried water-oriented factors, canal sites, furnaces, etc., which are represen- it is now appropriate to focus upon significant tative of the level of engineering development land based factors which provide an open space of various eras in the State's past. Hopefully, potential. They are summarized in the map these can be //lappet, in the future and the Land Related Potentials and Problems, which specific reasons for preservation documented.

21 Figure 2 Because motoring is the nation's number one form of recreation, it is important that major portions of scenic highways and byways be protected fromunsightlyadvertising and other forms of development that detract from the beauty of the landscape. Again, a major survey must be made to specifically identify any of these scenic vistas and features. For the more hearty of the State's residents, hiking and riding trails should be provided and maintained. To this end, a number of abandoned railroadrights-of-way,pipeline and LAND RELATED powerline easements, etc., were surv eyed to dis- POTENTIALS AND cover their potential as part of an intercon- PROBLEMS nected swtem of trails. A basic goal of an open space system should be to afford the hiker or horseback rider the opportunity to explore var- 411, ious portions of the State. statplkiltalt Despite the increased popularity of golf throughout the State, numerous golf courses likpr have been replaced by more intensive forms of development.Many camps eventuallyfind v themselves surrounded by new subdivisions, shopping centers, and the like. Airports, too, STAR OF 11111 MISIT have suffered heavily from urban encroach- DEPARTMENT OF COMMUNITY AFFAIRS ONISIII Of STAR MD MU NNW ment.

4" More detailed accounts of the problems facing the above uses can be found in themono-

PRIME AGRICULTURAL graphs Golf Courses in New Jersey, Summer

EXISTING GOLF COURSES Camps in New Jersey, and Air Facilities in New

O IMPORTANT GEOLOGICAL SITES Jersey which were written by the Division of

IMPORTANT BOTANICAL SITES State and Regional Planning.

IMPORTANT ORNITHOLOGICAL SITES

EXISTING AND POTENTIAL FOOT ond/or RIDING TRAIL LOCATIONS

SOURCE: ComplIod by th Division of Stele one Reston/I Pi en nine IMP

22 Physical features of the State often limit development.Figure 3 indicates areas of the State that are over 12 percent slope, swamp and marshlands. Areas in these categories ordi- Figure 4 narily have limited capability for supporting intensive urban development while they frequently do possess recreation, conservation, or scenic potential. The shape and direction of urban development will, in part, be affected by such factors.

Figure 3

DEVELOPED LAND IN NEW JERSEY circa 1960

PHYSICAL CHARACTERISTICS OF NEW JERSEY MU MUM OF COMM AMES WWI IF WI W iai UM

SOURCE, Compiled by MoOklaloo of SW. end Iteglool Plonnin ISS?

Plans for open space will also have to con- UM If IN MT MOW OF MUM 1111A111 11111211 P 1111I IN NM WON sider what lands are no longer available. Figure 4 above indicates urban development in the State. This data was compiled from existing land use studies of local master plans and shows the remaining void in inlying areas which must AREAS OVER 12% SLOPE be carefully studied to find the remainingopen MAJOR RIVER. LAKES, AND WETLAND AREAS space potential within them. SOURCE: ComplIN lay fho Mv Won of SUM orol lielonst Plating I11?

23 Open Space and Development Objectives not be possible to spend unlimited funds on open space, it becomes necessary to learn from The "Open Space Policy Study Map"2 at- this ideal plan in order to reflect practical con- tempts to incorporate all of the proposals and siderations. The resultant plan indicates sev- potentials into a unified pattern. A far greater eral basic principles. portion of the State than could be rationally justified would be dedicated to open space if all First, it is evident that the character of open areas of open space potential were incorporated space changes from inlying to outlying areas into a statewide scheme. Therefore, further just as does the character of urbanism. In in- planning must be selective, with local, county and tensely developed urban areas, what open existing State proposals being identifications spaces are found, exist as isolated islands of of areas acceptable as portions of the open green space in what is otherwise an unbroken space of each respective level of jurisdiction. framework of development. Conversely, in the Figure 5 shows a composite of existing and con- outlying, predominantly rural areas, open space ceivable public open space. Where proposals completely surrounds isolated areas of urban do not exist, patterns similar to comparable development. existing systems elsewhere have been projected. Secondly, as the density declines from the ur- All major potential reservoir sites were in- ban centers outward, there is a tendency for corporated into the scheme on the assumption open spaces to connect in linear park systems. that, if not needed, they could serve other open The existing county park systems of Union, space needs or be released. All existing water- Essex, Camden and Bergen Counties are ex- sheds and reservoirs are also included with the amples of this tendency.In the more rural assumption that these elements can often be areas, where similar systems are currently pro- developed for recreation purposes. The scheme posed, these systems tend to become even also assumes some form of local, county or stronger elements completely interconnected State control along the major stream courses in such proposed schemes as those of Somerset, and flood plains of the State, since these areas Morris and Mercer Counties. In existing and have scenic or recreational potentials as well. proposed areas, these systems are strongly The map also attempts to illustrate how var- water-oriented and tendtofollow stream ious major open spaces could be linked by trails courses and make use of marginal lands hither- so that boating, hiking, riding and bicycling to unconsumed by development. These pro- could be provided within and between major posals protect major natural scenic features urban regions. The scheme further assumes along major rivers, and give a measure of flood that major forests and mountain areas which plain protection in addition to meeting water- have a limited development potential should be oriented recreation needs. held in some form of land management or conservation status. Finally, the map is designed A third important consideration is the larger to maintain certain major agricultural areas conservation-oriented areas.The Pinelands, for farming; encompass all unique natural, where the forests require comprehensive land scenic and historic areas ; and, also tie in with, management and conservation measures to and relateto, major existinginstitutional minimize forest fires and to maximize water areas. resource potentials, the Delaware Bay area, the Upper Delaware (Tocks Island) area, the The Open Space Policy Study Map illustrates Hunterdon Plateau, the Lakeland area and the many basic open space principles. Since it will Lower Pinelands in Atlantic and Cape May

24 Counties are examples of major conservation regions.Also worthy of consideration are three major farming areas :the Gloucester- Cumberland-Salem complex ;the Burlington-

Mercer-Monmouth complex ; and the Sussex- Figure 5 Warren-Hunterdon County areas. Each is sufficiently important as an agr;cultural area to warrant planning measures to forestall un- necessary premature abandonment of agricul- turallandsinthefaceofdevelopment pressures.While theState'sresponsibility would appear to be more properly fulfilled in relation to the outlying areas requiring major land management and conservation leadership, there appears to be need for modification of the basic division of open space responsibility. This will be more fully developed in the following chapter. PUBLIC OPEN SPACE POTENTIAL A fourth consideration is that open space areas need to be strongly water-oriented, es- UTIL I Z ING PRESENTLY . , peciallyin already developed urban areas. UNDEVELOPED LAND Marginal lands hitherto undeveloped and usually closely related to water courses will also arr have to serve as potential supplies of open space needs. _,,,y-1..59. "Most peopleseeking outdoorrecreation want water to sit by, to swim and fish in, to AL711b- \ ski across, to dive under, and to run their boats %latIAIL over. Swimming is now one of the most popular outdoor activities and is likely to be the most popular of all by the turn of the century. Boating and fishing are among the top ten activities. Camping, picnicking and hiking, also STATE OF NEVI RISE? high on the list, are more attractive near water DEPARTMENT OF COMMUNITY AFFAIRS sites."3 ENVISION OF STATE ANI REGIONAL PLANNING Finally, in the most urbanized areas, marginal areas are very often the last remaining potential location for open space needs of all SOURCE: Opttn Space Policy Study Mop, 1962 Division of State & Flogionol Planning sorts.Many existing agencies such as the January 1967 Union County Park Commission have long had a policy of developing the marginal lands of the county for county park sites. With proper fill and effective landscaping, areas not ideal

:a. for intensive development often have a "na- nounced system of interr2lated open spaces as tural" potential for park and recreation areas. the opportunity for this increases from urban Considering the competitive costs of lands in centers outward. many devcloping areas, the lower pricedstream course, swamps, and flood plains are veryoften While the shaping of urban development in the only possible areas for providing the large already urbanized areas may seem to be one of amounts of open space that are called for. the more impossible tasks of the planner and the public alike, the guidance of further growth All in all, there would seem to be a pattern in yet-to-be-urbanized areas is one of the ma- emerging from what has already occurred in jor challenges facing us today. Here the plan- open space. The pattern isdifferent from the ning of open space can be a major tool in classical"Greenbelt"conceptbutperhaps creating sound, stable living areas for future equally valid. In effect, it calls for a more pro- generations.

FOOTNOTES

1. Ann Louise Strong, Open Space in the Pen jerdel Region: Now or Never, (Philadel- phia: Penjerdel, March,1963), pp. 7 ff. 2. Division of State and Regional Planning, A Pilot Open Space Plan for New Jersey, (Trenton: State of New Jersey, 1962). an unpublished planning report, pp.II-43ff. 3.Outdoor Recreation Resources Review Commission, Outdoor Recreation for America, (Washington: U.S. Government Printing Office, January,1962), p. 4.

26 E RESPONSIBILITY OFGOVERNMENT IN OPEN SPACE PLANNING The responsibility for assuring that an ade- The Functional Aspects of quate amount of open space is available to meet Open Space Planning both current and future needs lies primarily with the respective levels of government. Tra- As pointed out in Chapter I, the primary ob- ditionally, government has assumed this re- jective which all levels of government share in sponsibility, particularly as it relates to outdoor the development of park and recreational areas recreational facilities,since the acquisition, and in the protection and preservation of na- development, and maintenance of such fa- tural resources is the concern for the public cilities are generally beyond the means and/or welfare. This is a joint responsibility, how- interestofindividualsorprivategroups. ever, the various levels of government (each Closely allied to this concern is the responsibil- assuming theirproportionateshare)fulfill ity which must be assumed by the various levels these responsibilities in a different manner. of government in the conservation, protection, Tot lots and local playgrounds, for example, are and recovery of natural resources. These needs most appropriately a function of the individual have long been and will continue to be of such municipality.In addition to larger natural volume as to require governmental action. wooded areas or conservation areas, the county should provide a more intensively developed Two aspects of the open space responsibili- system of parks, public golf courses, and areas ties of government must be examined in detail. for such activities as picnicking, swimming, First, there are the functional aspects,i.e., and boating. The state's primary responsibility what kinds of recreational and open space fa- tends to be the acquisition and development of cilities must be provided by the various levels large areas for hunting and fishing, camping, of government, and what relation should they and other low to medium intensive forms of bear to other forms of land use. Secondly, there recreation ; the preservation and conservation are those factors of open space planning which of large tracts of land to insure their effective relate to the quantitative responsibilities of management is also within the state's realm. each level of government, i.e., how much open space should be provided to meet the needs of As a rule-of-thumb, the higher the level of current and future populations. A discussion government the greater the percentage of the of these two interrelated aspects of open space open space holdings that should remain rela- planning will be provided in this chapter. tively undeveloped and held primarily for conservation purposes.Furthermore, the lower

27 the level of government, the greaterthe per- as neighborhood andcommunity-wide parks. centage of open space that should bedeveloped Additional responsibilities often assumed at the for more intensive recreational use. municipal level include :1) providing organized recreational programs in the form of A second point with regard to the functional sports leagues for various age and interest differences among the various levels of govern- groups ; 2) conducting musical,dramatic, craft, ment in the sharing of open spaceresponsibili- and other cultural programs ; 3) extending rec- ties relates to the size of the parcelsacquired. reational services to churches, civic organiza- Each successive level of government must as- tions, and other semi-public groups ; 4) con- sume a greater responsibilityfor providing ducting courses for the training of recreational larger areas of open space. This followslogi- personnel ; 5) promoting home and family lei- cally from the first point. At the local level, it sure-time activities ; and, 6) working in con- is possible to offer intensive recreational ac- junction with other agenciesin providing tivities on relatively small parcels. At the coun- recreational programs in various institutions. ty level, to accommodate the types of facilities A further responsibility often assumed by provided, larger parcels are needed. At the municipalities is the operation of recreational state and Federallevels, where a greater facilities in conjunction with or on property of emphasis is placed on natural or wilderness other public or private agencies such as schools, areas, much larger holdings areneeded to ade- water department property, and industrial land quately meet these responsibilities. and buildings. This is particularly prevalent A final point must be made before proceeding in more urbanized communities where de- to the more specific discussion of the functional velopment conditions necessitate a multi-use aspects of governmental responsibility ; this re- approach. These functions on the property of lates to the problems of time and distance. other agencies supplement the adminstration Local parks, ideally, should be within easy ac- of the parks, beaches, pools, golf courses, ten- cess to those served, say 15minutes walking nis courts, and other facilities under the mu- time. County recreational areas should be lo- nicipal recreation agency's own jurisdiction. cated to maximize their accessibility within It may be observed that municipal recreation about 30 minutes by car or public transporta- systems function primarily as user-oriented fa- tion. State parks, although more remote, should cilitiessince provisions must be made for be spaced so that all people living in urban con- recreational activities for all age groups within centrations are within 45 to 60 minutes driving easy access of every home. The local recrea- time of adequate state facilitiesproviding tional program should be brought daily into some, if not the entire range ofrecreational the lives of the population. As a result, nearly experiences which are associated with state 75 percent of the total municipal open space areas. system should be devoted to more intensive recreational uses. THE LOCAL LEVEL The recreational responsibilities which tra- THE COUNTY'S RESPONSIBILITY ditionally have been placed on the municipal The county's open space responsibilities are level of government are extremely complex. particularly challenging in light of the rapid The primary responsibility of local government urbanization which is evident in most sections is the provision and administration of a sys- of New Jersey. The findings of the Outdoor tem of totlots, playffrounds, playfields, as well RecreationResourcesReviewCommission

28 (ORRRC) suggest two prime opportunities for park systems must also make provision for counties with regard to open space planning: nature trails, bridle trails, wildlife sanctuaries, 1) to protect the scenic and outdoor recreation large meadows or greens, large scale picnic values of the total environment of the county ; areas, beaches, wooded areas, and at times, and, 2) to acquire and develop for public use golf courses, archery ranges, botanical or zoo- portions of the landscape of highest value for logical gardens, swimming pools, skating rinks, outdoor recreation. The responsibilities have and other more intensely developed facilities been accepted officially by the National Associa- for more active recreational experiences. tion of Counties (NACO).Recently this vol- untaryassociationofcountyofficialshas Officials in these urban and suburban coun- adopted a National Policy for County Parks ties are also faced with a number of concurrent and Recreation which recognizes the impor- problems stemming from the rapid advance of tance of outdoor recreation,and which recom- development, for example, increased street and mends a logical sharing of responsibility with highway maintenance, traffic congestion or the private enterprise and the municipal, state and threat of congestion, water supply needs, sew- federal levels of government.In part, this er facilities, problems of drainage, demands policy statement reads as follows :1 for institutional and educational facilities, etc. This situation often is further compounded by The special role of the county is to the fact that often these problems must be dealt acquire, develop and maintain parks and with in a governmental framework which has to administer public recreation pro- not progressed sufficiently from its rural be- grams that will serve the needs of com- ginnings to cope adequately with such respon- munities broader than the local neighborhood or municipality, but less than sibilities both in terms of the fiscal burdens and statewide or national in sce. in terms of the structural organization. Parks and recreation should be in- In the more rural counties there is the op- tegral elements of all county land use planning and zoning. Maximum use portunity for deliberate planning in advance should be made of zoning and other of crises to meet the outdoor recreational needs regulatory powers to preserve open of local residents, to eliminate the creation of space, protect scenic values and other- future service problems such as storm sewers, wise enhance recreational opportunities. etc., and to realize the economic benefits of serving recreation seeking visitors from the In urban and suburban counties there is an urban areas. Unfortunately, a parochial atti- urgent need for both planning and action to ac- tude often exists in such areas which at times quire additional open space areas and to de- makes effective planning difficult. velop facilities and programs to make these resources accessible and enjoyable to the gen- Despite the many problems which have beset eral public, living generally in a large number counties in their efforts to deal with their open of small municipalities. In such counties, park space responsibilities, county park and recrea- and recreational systems occupy nearly the tional systems in New Jersey have enjoyed a same position today that major city parks in long and relatively successful history. Essex large cities held fifty years ago. While they County was a pioneer in this regard, creating may not be as intensively developed as city the first county park in 1895.2 Many of the parks, county park systems provide many of counties of the urban northeast section of the the same facilities and recreational experiences State soon followed Essex County's lead, and found in city parks and playgrounds. County today several of these county systems are held

-4:..4.4X,ZET,U64,,UZWZIV;41 374-7-ekvq- up as models illustrating what can be accom- including recreation and flood protection plished in urban areas through advanced plan- could be achieved). Intermunicipal facilities ning and acquisition. Many of the more rural also might be completely contained within the New Jersey counties have also instituted their boundaries of a single municipality but de- own park and open space systems.In such signed so as to serve the recreational needs of cases an effort has been made to retain more of seve,-Al municipalities. the natural character of the environment and such facilities are often developed in con- In fostering this intermunicipal approach to junction with other county needs. recreational facilities, the county must play a key role in providing the leadership and en- County facilities should be located in sucha couragement for such development and, where manner as to afford relatively easy access by appropriate, by providing planning and fi- car or public transportation for a population nancial assistance to local municipalities. Such which may use the parks several times a month. intermunicipal open space can provide an ef- Facilities maintained by county governments fective "shaper" of county-wide development are less likely to be as user-oriented as those by guiding land use along certain desirable at the municipal level, although as has been patterns. Therefore, it is proposed that the ac- pointed out, county parks are assuming a more quisition and development of appropriate inter- active recreational character. However, more municipal facilities should properly be consid- attention is being given by counties to larger ered as an extension of the county's open space scenic sites often in conjunction with reservoir responsibilities. facilities, stream valleys or other natural resource areas. THE OPEN SPACE RESPONSIBILITIES OF THE STATE The state has the primary responsibility of The foregoing discussion of county open acquiring, developing, and maintaining recrea- space facilities suggests a secondary area of tional and open space resources which are responsibility which county governments may neither of national interest on the one hand nor be called upon to assume with greater fre- a county or municipal responsibility on the quency in the future. This relates to the pro- other. State parks differ from national parks. vision of intermunicipal facilities as a part of in both their drawing power and their distribu- the over-all county open space system. With the tion with regard to the proximity to the pop- fragmentation of the State into 567 separate ulation to be served.Most state parks are municipal units, it becomes economically ill- limited in patronage to residents of the spon- advised to attempt to meet all of the local park soring or neighboring states. While people may demands on an individual municipal basis. visit a national park only a few times in a Many smaller communities lack the resources lifetime, if at all, it is practical to enjoy state (both financial and physical) to provide for recreational facilities several times in a single various recreational facilities which (in con- year. With regard to distribution, some states cert with, neighboring communities) could be have been able to acquire and maintain a developed through intermunicipal cooperation. major state recreational facility within twenty- Such recreational facilities might be developed five miles of every urban center of any size. along the boundaries of two or more municipalities However, an average distribution of state fa- (whichisparticularlyappropriate cilities is on the order of thirty to forty miles. since stream courses often serve as municipal In recent years, it has been recognized that ac- boundaries and thus a multi-purpose approach cessibility (measured in travel time rather than

30 -

distance) is an important consideration in lo- a given sector of the state rather than the state cating state parks. Such an objective which as a whole. provides for the development of a state recreation facility within 45 minutes to an hour THE FEDERAL LEVEL travel time by car or public transportation for each resident of a major urban center, reflects The primary responsibility at the Federal the growing awareness that people living in level of government is the maintenance of a cities must have access to an adequate system recreational and open space system which em- of open space for their leisure time activities. braces areas and sites of national interest and concern. National parks should contain mag- The primary role of the state's recreation nificent and rare natural wonders, scenery of areas is to provide nature-centered experiences grandeur and unique natural characteristics, for its citizens. The state seeks to provide a while national forests should consist of areas well distributed and accessible system of parks of large expanse meriting forestation and con- and open space, including scenic, historic, and servation. The Great Smokies and the Grand geologic sites that are of statewide significance. Canyon are examples of such areas which have State facilities should provide a variety of in- been set aside and are protected by the Federal formal types of recreational activities and in- government for the use and enjoyment of the terests,facilitiesand accommodationsfor nation as a whole. In addition, historic sites camping, picnicking, hunting and fishing, and of national importance, places of great battles, generally bring the public into contact with the birthplaces or homes of national heroes, scenes state's natural resources so they may learn to of pioneer events and places of discovery and enjoy and assist in conserving them. invention all merit national significance and, therefore, preservation by the Federal govern- The state's open space system is largely re- ment. source based. The primary consideration in site selection has been the natural resource With few exceptions, areas incorporated in- or scenic qualities of the site itself, and sec- to the national park system are located at great ondarily, the proximity of the site to popula- distances from the major concentrations of tion centers. Consequently, much less of the population. These areas represent the ultimate state park system will be devoted to developed in resource-based facilities. User accessibility recreational facilities than is the case at the is not a consideration in such cases and, in county level. However, as with the counties, it fact, it has been estimated that many portions may be anticipated that the state will be called of Federal open space holdings are totally in- upon to assume a secondary responsibility in accessible by automobile. the provision of open space facilities designed to serve an intercounty or regional function. The Federal government, like the state and Since many county boundaries in the State are county, must be expected to assume a secon- natural waterways which offer the potential dary responsibility in the provision of an over- for recreational areas, and because of the costs all national system of open space. This secon- and administrative problems involved in the dary responsibility has arisen because of the development of such areas, it is logical that the unique forms of populationconcentrations responsibility for this type of intercounty park which have resulted from the nation-wide trend should go to the next higher level of govern- toward urbanization. In many instances, urban ment. Such facilities would be primarily of areas are no longer separated from one another regional significance serving the population of by undeveloped areas, but the outward spread

31 of development from one metropolitan area average natural endowment but with less sig- has merged with that of the next. The best nificance than the unique scenic and historic example of this is along the eastern seaboard elements of National Parksor of less resource of the United States where one relatively con- value than National Forests and landmanage- tinuous belt of urbanization extends from ment areas.National Recreation Areas will southern Maine to northern Virginia. New augment present outdoor recreationareas, es- Jersey is in the center of this immense urban pecially in localities where the recreationalde- region called "Megalopolis." The Federal gov- mand is not currently being adequatelymet. ernment must assume the responsibility for They will be managed byon( or more existing providing sizable regional parks for these Federal agencies or under State-Federalagree- large urban concentrations. An example of ments. In announcing thisprogram, Secretary new Federal policy in this regard is the Dela- of the Interior Udall stated :3 ware Water Gap National Recreation Area now being purchased for the upper Delaware River. The policy provides for Federal invest- DWGNRA will be within 75 miles of 20,000,000 ment in areas primarily needed to satis- people and 100 miles of 30,000,000. In addition, fyoutdoorrecreationdemandsas one-third of the national population will be contrasted with other areas established within one day's driving time of the project. primarily to preserve unique naturalor historic resources, to developor con- Other possible recreational areas thatare ex- serve public lands and forests, or to amples of where Federal responsibility could meet requirements for water resources be or is being exercised are the Pocono, Catskill development... and Berkshire mountains, the Intra-coastal Waterway, and sizable ocean beaches. The Quantitative Aspects of Governmental Responsibilities Also included in this secondary level of Fed- eral responsibility is the provision ofopen Over the years, numerous attempts have space facilities in more immediate proximity been made to quantify the functionalrespon- to major urban concentrations. Justas there sibilities which each level of government must are open space needs at the intermunicipal and assume as a part of the total open space sys- intercounty levels which should be met through tem. Such guides for evaluating existing fa- cooperative efforts of the appropriate levels of cilities and for future facilitiesare called government, in major metropolitanareas there standards. As Webster's Dictionary defines it, exists a regional or interstate need whichmust a standard is : "a criteria, guage, yardstick, or be fulfilled through cooperation betweenap-- touchstone ; a policy ; an abstraction; an au- propriate Federal and state agencies. The Fed- thoritative model or measure ; a pattern for eral Open Space Program administered by the guidance, by comparison with which thequan- Department of Housing and Urban Develop- tity, excellence, correctness of other thingsmay ment provides fifty percent of the total cost be determined." for the acquisition of land foropen space facilities to agencies having regionalopen space Open space standards are usually expressed responsibilities. In recognition of this second- in terms of a given number of acres per unit aryresponsibility,in1963 the President's of population. Not all forms of recreationcan Recreational Advisory Council endorsed the be equated to a quantitative standard, how- establishment of a system of National Recrea- ever. For example, according to the studies of tion Areas designed to includeareas of above ORRRC, driving for pleasure is the nation's number onerankingrecreationalactivity.

32 Such leisure-time pursuits are difficult if not per user ratios for wilderness areas, hunting impossible to quantify.It becomes obvious and fishing areas and camp sites. that the development of a standard or standards for open space needs must be limited to those While recreational standards based on acres aspects of anticipated land requirements that per thousand population provide useful guides can be stated quantitatively.At the same to assist the various levels of government in time, however, the qualitative aspects of open their appraisal of existing conditions and fu- space must play an important role in the selec- ture needs, such standards make no attempt to tion of future open space areas. limit or define the amount of land which can be justified as open space in highly urbanized There are at least two types of standards areas. The following example illustrates the that can be effectively used to assist in deter- shortcomings of applying an acres perthousand mining how much open space political jur- population standard in urban areas. It would isdictionsshouldstrivetoacquireand require over 2,760 acres of land to meet a 10 maintain. One standard is based upon a ratio acres per thousand standard in Jersey City. between people and acres of open space, the This acreage would be equal to nearly one-third other is based upon attempts to create a bal- of the total land area of this city. anced land use pattern. The second type of recreational standard A number of recreational standards of the the balanced land use standardsuggests that former type have been developed by nationally in the more urbanized regions of the country it recognized recreational groups, planning or- is necessary to establish standards which are ganizations, and governmental agencies. Such based on a specific percentage of a given land standards for active and passive recreational area to be dedicatee to recreational and conser- facilities have been applied most frequently at vation usage regardless of population density. the local level.There has been considerable experience and research at the municipal level The following two sections of this chapter as to how far different age groups will travel will examine each type of standard as it might for recreation and how much area is needed be applied to the open space needs of New for their activities.Many master plans for Jersey. cities of varying sizes have adopted standards, and research on local standards has been car- POPULATION STANDARDS ried out by many groups and agencies. How- Acreage-populationrecreationalstandards ever, each of these standards was formulated have been discussed at length in a study under- to apply to a unique situation, and none can be taken by the Division of State and Regional used alone to guide all levels of government. Planning as a part of the Inventory Stage of Only in more recent years has a start been the Statewide Planning Program. This study, made on the development of technically sound entitled Park and Recreational Land Use in standards for county, state and national levels New Jersey, examined existingpopulation of responsibility. It may be that much time will standards and attempted to formulate suitable pass before sufficient research will be made to and achievablerecreation standards for the complete a set of standards generally acceptable local, county, and state levels of government by to all levels of government, especially the state combining the best features of these various and county levels. For instance, much research standards. The results of this analysis are pro- is needed in order to define the proper acreage vided in Table I.

33 In light of the highly developed nature of distributed as shown in Table I, withthe sec- many municipalities in New Jersey, the most ondary function of providingintermunicipal universally accepted quoted standard of 10 facilities at 4 acresper thousand. This leaves acres per thousand is somewhat more than 8 acres per thousand for countywiderecreation could be easily achieved at the locallevel. facilities. Recognizing the secondary responsibility of the county level, as discussed in the previoussec- Since very little work had been undertaken tion, the 2 acres per 1,000persons to be de- in the area of state standards,the suggested voted to the larger municipal parkswas trans- quantitative guidelines had to be derivedsome- ferred to the county, leaving 8acres per thou- what independently of existing concepts.The sand at the local level to be distributedas National Park Service has suggesteda standard shown in Table I. of 45 acres per thousand to includeboth state recreational areas and land managementhold- It was the general concensus of the various ings. This total is divided 15acres per thou- standards examined that the county level of sand for more intensive recreationalareas and government should provide a minimum of 10 30 acres per thousand for naturalareas. While acres per thousand population. With the ad- such a standard providesa general rule-of- dition of the 2 acresper thousand transferred thumb in themore urban states such as New from the municipal level, the suggested county Jersey, it is becoming increasingly difficultto standard becomes 12 acres per thousand of the quantify the amount of openspace that should county's population. This acreage standard is be reserved for conservationpurposes. In such states, an active program of acquisition and protection must be initiated to protecteven the minimum amount of naturalresource lands. Table I Therefore, in developingan open space standard for New Jersey, the assumptionwas made SUGGESTED ACREAGE STANDARDS BASED ON LEVEL OF GOVERNMENT that at least 20 acres per thousandpersons RESPONSIBILITY should be set aside for statewide recreational Level of Government Acres Per Thousand facilities. Again in fulfillment of its secondary MUNICIPAL function it is suggested thatan additional 4 Totlots & Playgrounds 1.5 acres acres per thousand be assumed as a Statere- Playfields 1.5 acres sponsibility in the form of Neighborhood & Community Parks 5.0 acres more intensely developed intercounty recreationalareas. 8.0 acres The previously mentioned study, Park and COUNTY Active Recreation (Golf Courses, Playfields, etc.) 3.75 acres Recreational Land Use in New Jersey, madeno Swimming & Boating 1.25 acres recommendations as to quantitativerecrea- Picnicking 3.00 acres Parks and Natural Areas 4.00 acres tional standards for the Federal level ofgovernment. Again the National Park Service has 12.00 acres provided a suggested standard basedon both STATE recreational facilities and land management Medium to High Intensive Use Areas (Intercounty) 4.0 acres areas. As with the NPS standard for state Low Intensive Use Areas (State Parks & Forest, Fish and Game Lands, etc.) 20.0 aCre5 open space, this suggested standard of 300 acres per thousand is split two ways. One-third 24.0 acres for recreational open space and two-thirds for wilderness areas. Reflecting the previous discussion of the functional aspects of Federal open space responsibilities, it is suggested that Table II as a minimum between 48 and 52 acres per SUGGESTED OPEN SPACE ACREAGE STANDARDS PER THOUSAND thousand persons of the Federal recreational PERSONS FOR APPLICATION IN NEW JERSEY facilities should be developed in sucha manner as to be accessible to the large concentrations of Level of Primary Responsibility Acres Per Thousand Persons population along the eastern seaboard.It is Local 8 acres further suggested that this standard be divided as follows :1) approximately 32-36 acres per County and Local 4 acres thousand (based on a region-wide population (Inter-Municipal Open Space) figure) to satisfy the primary responsibility of County 8 acres the Federal level of protecting outstanding natural features ; 2) 12 acresper thousand to be State and County 4 acres devoted to large regional parks designed to (Inter-County Open Space) serve a megalopolitan population, related to State 20 acres New Jersey's share of the megalopolitanpopu- lation, (such as the Delaware Water Gap Na- Federal and State 4 acres tional Recreation Area) ; and, 3) 4acres per (Inter-State Open Space) thousand to meet metropolitan or interstate 12 acres recreational needs. Federal Total 60 acres Thus, with this suggested acreage-population standard, it is possible to complete the quantitative aspects of governmental responsibilities as they relate to New Jersey. sons per square mile, 96 acres or about 7.5 per- BALANCED LAND USE STANDARDS cent of the community should be set aside for open space. At 10,000 persons per square mile, As has been pointed out, recreation standards a population density common to many of our based on a fixed acreage per unit of population urban communities, some 240 acres would be have certain limitations when they are applied required, an amount equal to over 18 percent to highly urbanized patterns of development. of the community. If this much land were to Since such standards are increasing, that is, be devoted to open space, competition among they suggest a continually increasing portion other land uses in seeking suitable locations of the environment to be set aside for recrea- would be acute. Therefore, an alternative basis tional facilities as the population increases,acre- must be devised for determining what con- age-population standards break down beyond a stitutes a reasonable pattern of open space in certain level of population density. For ext. the more densely populated areas which implies ample, applying a 12 acres per thousand stan- more intensively used areas.Since forecasts dard to a hypothetical community two-square suggest that many sectors of the State will miles in area and with a population density of ultimately reach higher levels of population 2000 persons per square mile would suggest density, a long-range open space policy plan that 48 acres of land or about 3.75 percent of must apply a "standard" which is applicable the community's total land area should be re- to such situations. The basis for such standards served for recreational purposes. If, however, would appear to lie in the theories of balanced the density of the community were 4000 per- land use systems.

35 Many attempts have been made to formulate central city, its satellite communities, and all a balanced system of land uses.In the 1920's, of the developed area within the urban sphere Harland Bartholomew, a much quoted authority of influence. On a regional basis (as opposed in the field of planning, advanced certain to municipal boundaries) an analysis of the theories as to the desirable apportionment of percentage of land use begins to assume more the various land use functions of a community. importance. Certain land uses such as resi- Since that time other planners, economists, dences, industry, and open space, shape de- housing experts, regional scientists, etc. have velopmentpatternswhileotherusesare studied this problem. The purpose of an ideal subordinate to them. Therefore, by working apportionment would be to achieve a balance of with regional areas, wide variations in cate- land uses which could be mutually self support- gories which plagued earlier attempts to de- ing, thereby making the unit economically self- velop a balanced distribution of land uses, can sustaining. be minimized, thereby making it possible to advance certain land use assumptions which The more recent writings of HarlandBar- would be more applicable to an ultimate pattern tholomew on the subject of a balanced land use of development. system illustrate the extensive modifications and refinements which have gone intowritings Although the predominence of mid-western in the field since the concept wasfirst ad- cities in the sample introduces a bias with re- vanced. In his 1955 book,4 Bartholomewat- gard to theapplicationof Bartholomew's tempted to establish a set of averages for the findings to New Jersey, they provide a sub- various land use classifications in developed stantial foundation for developing land use areas based on a survey of 86American cities standards which can be applied to the State. and eleven urban areas. He divided the cities While these theories, at this point, must be under two headings : 1) the "center city," or considered preliminary in nature, it is hoped self-sufficient municipality in which the major that they will provide the missing element in social and economic acthities of an urban area the long-range allocation of open space in New are centered ; and, 2) the"satellite city," or the Jersey. community adjacent to a larger municipality, which is dependent upon the larger center for Generally speaking, the basic land use cate- its economic and cultural well-being.Thus, gories can be grouped under three headings : Bartholomew has recognized the resultant dis- residential, transportation, and other ( which tinction in land use patterns which emerge includes commerce,industry,,and, public fa- from the functional differences in communities. cilities ).Residential land uses occupy the single For example, in the satellite communities, there largest segment of the developed portion of any is a greater prevalence of residential develop- urban region, ranging between 30 and 40 ment, especially single family dwellings, while percent.Streets and railroads rank a close in the center city, a greater portion of land has second, ranging from 25 to 38 percent of the been set aside for industry and commerce. development. The second important modification in Bar- In an ultimate pattern of development, it is tholomew's more recent writings is the recog- reasonable to assume that these two basic land nition of the potential application of land use use categories will begin to reachequilibrium, standards to a unit of analysis other than the with each category occupying about a third of fixed boundaries of a political or governmental the developable portion of the environment. unit. Bartholomew's "urban area" includes the Thus, the remaining land use categories must

36 be accommodatedon the remaining one-third With urban renewal and the higheruses of of the land area. The remaining one-third must land which it promotes, it is possible to design accommodate all of the industry andcommer- an urban open space system which comple- cial activities which provide the economic base ments development and which, at thesame of the region and meet its retail and service time, indirectly provides an economic return needs, all of the schools and other public build- far greater than the land uses it displaces. ings, all of the semi-public facilities, utilities, and of prime concern to this study, all of the The balanced land use patterns suggested by "more intensively developed" recreational and the foregoing discussion are presented in Table open space areas. In any region there are mar- III and summarized as a theoretical balance in ginal lands which cannot economically support Chart I.It is of interest to note that roughly many forms of land use other than open space. 50 percent of the land use is in privateowner- However, as has been pointed out, themore ship, while the other fifty percent is generally intensively developedor user-oriented forms in public ownership. of recreational facilities should be in close proximity to the population served and, in Of the various land use categories,open many cases, must occupy developable land. space and recreational areas are by far the most variable, for it isa qualitative issue as In order to insure sufficient lands for indus- much as it is quantitative. A poorly designed trial growth and expansion, it is suggested that and inaccessible open space system occupying a minimum of 7 percent of the developable as much as twenty percent of the total develop- area of a region should be set aside for indus- able land area of an urban region would be less trial land use. This, ofcourse, will vary from desirable than a smaller system which is closely the more urban portions to the suburbanareas, integrated with the other forms of landuse, but again it must be stressed that this alloca- thereby providing ample opportunity fora vation is made as an average for the entire urban riety of recreation experiences to the maximum region. Commercial facilitiesmay be expected number of the population. to occupy some 3 percent of the developable portion of the region. Past experience indicates In urban areas, openspace considerations that between 10 and 15 percent ofan urban must be dominated by those facilities which region must be reserved for schools, public serve the younger segments of the population buildings, semi-public facilities, andutilities. (totlots, playgrounds, and playfields) and those On this basis, with theoretical needs of each of which serve a passive recreational need (neigh- the various forms of landuse apportioned, only borhood and community parks). In suburban 10 percent of the developable landarea remains areas, there is a lesser demand for youth-or- for public open space. iented facilities, since backyards and schools may adequately serve this function, however, In the highly urbanized portions of the State, there is a greater need and opportunity toac- 10 percent of the developable land foropen quire larger segments of the landscape for space may seem an all ottment which would nature-oriented and generalpurpose recrea- not be easily obtained either physicallyor ec- tional activities. onomically. However, the provision ofrecreational opportunities for our urban citizens and These theories of balanced landuse must for their children's children isone of the most now be converted into a recreational standard important of the many objectives of planning. to be applied at the various governmental levels

37 Table III

COMPARISON OF BALANCEDLAND USE SYSTEMS (AS A PERCENT OFTOTAL DEVELOPED AREA)

Land Use Category Segoel Webster2 Bartholomew3 Central City Satellite City Urban Areas

Residential 40.0% 40.0% 39.61% 41.98% 27.99% Single-fami ly 32.0 31.81 36.18 25.05 Two-family 8.0 4.79 3.31 Multi-family 1.63 3.01 2.49 1.31

Commercial 3.0 2.0-5.0 3.32 2.54 2.65 Industrial 7.0 10.0-15.0 6.44 7.86 Light Industry 5.64 2.84 1.87 Heavy Industry 3.60 3.77 Railroad Property 4.0 5.0 4.86 4.65 6.22

Streets 30.0 25.0-33.3 28. 19 27.67 27.61 Parks and 6.0 10.0 6.74 4.37 Playgrounds 4.59

Other Public 6.0 Property

4.0-20.0 10.93 10.93 25.30 Semi-Public 4.0 Property

Total 100.0% 100.0% 100.0% 100.0% 100.0%

Source:

1.Ladislas Sego", Local Planning Administration,(InternationalCity Manager's Association, Chicago, 1941). 2.Donald H. Webster, Urban Planning and MunicipalPublic Policy,(Harpers Bros., New York, 1958). 3.Harland Bartholomew, Land Uses in AmericanCities,(Harvard 1955). University Press, Cambridge,

u-, of responsibility. The regional analysis is converted to an analysis of the county and local levels of government. The responsibility for Chart 1 preserving 10 percent of the regional area in BASIC ASSUMPTIONS FOR A BALANCED LAND USE PATTERN open space use is divided between the county (7 percent) and the municipality (3 percent). Of this 7 percent which the county must provide, 2 percent will be devoted to the county's secondary function, the provision of intermunicipal facilities. Based on this concept approximately 190,000 acres would be put in countywide facilities, 63,000 acres in intermunicipal and 126,000 acres in municipal parks. These rather closely reflect the acreages required by the population standard. At the county and local level, the 10 percent was applied to what has been termed "developable" land area, or that portion of total land area which remains after swamp land and areas of excessive slope (over 12% slope) have been subtracted. It is felt that the preservation of this type of marginal terrain logically falls to the State and Federal levels of government.County and municipal recreational systems are concerned with more intensively developed facilities. As mentioned above, it has been suggested in the acreage-population standard, that the State should match the acreage provided by the two lower levels. Applying this concept to UNTAXED TAXED MIXED the theories of balanced land use would suggest Public Land & Facilities 46- 2/3%, that 10 percent of the total land area of the Streets and Highways 30 % State should be set aside as a State responsi- Open Space 10 % bility to match the 10 percent allocated on a Public Property 6- 2/3% Private Land & Facilities 46- 2/3% regional basis.This 10 percent of State re- Single Family Residential 30 % sponsibility is allocated between statewide and Industrial 7 % intercounty facilities in the same proportion Multi-Family 3- 1/3% as the 24 acres per thousand standard. A ratio Railroads 3- 1/3% of 5 to 1 was used in both cases. As is the case Commercial 3 % with the 10 percent of open space at the county Semi-Publi c Property 6- 2/3% and local level, 2 percent was allocated for secondary function facilities at the intercounty level and 8 percent for primary function facilities of statewide significance.

39 In addition, the parallel responsibility of the STATE RESPONSIBILITY Federal government cited in the discussion of recreational standards must also be included in 10 percent of the total land area of the the balanced land use theories. Again a review State, or 480,000 acres to be set aside in of the relationship between the responsibilities open space facilities by the State of New of the local municipalities, the counties, the Jersey. A substantial portion of these fa- State and those of the Federal government in- cilities should be oriented to serve the dicates that the Federal responsibilities are areas of population concentration, and equal to those of the three lower levels of gov- thus the acreage must be allocated be- ernment, or 20 percent of the nation. The tween the northern and southern portions majority of this Federal open space will be lo- of the State based upon anticipated popu- cated in the western portion of the country; lation distributions.Of thistotal, we however, a portion of this Federal open space suggest that 96,000 acres or 2 percent of should be located in the more densely populated the total land area of each Class III Re- portions of the nation. It is suggested that an gion° should be assigned to function as area equal to approximately 2percent of the intercounty facilities. In addition, a por- total land area of megalopolis should be in- tion of the State's acreage responsibility cluded as a part of the total op ..n space system willbeplacedinmetropolitan park developed under the theories of balanced land facilities. use. COUNTY RESPONSIBILITY The balanced land use standard as applied to New Jersey at 20 million population is 7 percent of the "developable" land area of the State or approximately 266,000 stated below.. acres will be set aside by the county governments. Of this, 5 percent of the de- FEDERAL RESPONSIBILITY velopable area of each county will be 4 percent of the total area of New Jer- placed in county facilities and 2 percent of sey, or 192,000 acres, to be set asidein the developable area will be applied to the open space facilities by theFederal gov- Class IV Regions° and will serve as inter- ernment.These parcels should be pri- municipal parks. marily megalopolitan and metropolitan facilities whose function is to serve the LOCAL RESPONSIBILITY urbanized portion of the eastern seaboard. These facilities are to be part of the Fed- 3 percent of the "developable" area of eral government's much broader interests the State or about 114,000 acres will be that serve all of megalopolis. A portion placed in municipal facilities to be distri- of this acreage will be provided in facili- buted throughout the State's 567 mu- ties of a metropolitan scope and in the nicipalities. preservation of unique natural or historic The following table provides a comparison areas. This is a responsibility which is of the two basic types of standards discussed shared, however, by Federal and state in this chapter as they might be applied to New governmen C. Jersey. Both are valid and useful methods of

40 Table IV

OPEN SPACE STANDARDS APPLIED TO NEW JERSEY

Acres/1000 Population Standards Balanced Land Use Standards

Land Required Land Required Governmental Functional Standards for 20 Standards for 20 Level Level Million People Million People (acres) (acres)

Federal Megalopo I i tan 12 acres/1000 240,000 2% of total Stateb 96,000

Federal & State Metropo I i tan 4 acres/1000 80,000 2% of total State 96,000 Northa 48,000 North 57,600 South32,000 South 38,400

State State 20 acres/1000 400,000 8% cf total State 384,000 North 240,000 North 230,400 South 160;000 South 153,600

State & County Inter-County 4 acres/1000 80,000 2% of total State 96,000

County County 8 acres/1000 160,000 5% of total State 240,000

County & Local Inter-Municipal 4 acres/1000 80,000 2% of total State 96,000

Local Municipal 8 acres/1000 160,000 3% of total State 144,000

Total 60 acres/1000 1,200,000 24% of total Stcte 1,152,000

a. At the 20 million level it is assumed that the population will be distributed 60% North; 40% South. b.At the 20 million level it is assumed that the State will be totally developed.

41 assessing open space needs but each has a par- The point at which the acreage recommended ticular value when applied in certain circum- by these two standards coincides is approxi- stances.The population-acreage methodis mately at the 20 million level of population, most useful in measuring over-all need.It is which has been chosen as the State's planning also a good programming guide for measured Horizon. At this point, approximately 1,000,- periods of time. On the other hand, the bal- 000-1,200,000 acres or slightly more than 20 anced land use standard is valuable when ap- percent of the land area of the State is re- plied to specific areas. It serves as a good in- quired by both the population-acreage stan- dicator of needs which are noi; contingent upon dard and the balanced land use standard in time or population level but rather upon full order to meet the State's minimum open space development. needs.

FOOTNOTES

1. National Association of Counties, County Action for Outdoor Recreation, (Wash- ington: National Association of Counties, 1964), p. 6. 2. National Park Service, "Recreational Use of Land in the United States," Part XI of the Report on Land Planning, (Washington: U.S. Government Printing Office, 1934), p. 30. 3. Stewart L Udall, Secretary of the Interior U.S. Department of the Interior, News Release, April 10, 1963.

.4. Harland Bartholomew, Land Uses in American Cities, (Cambridge: Harvard Uni- versity Press, 1955), see generally. 5. Division of State and Regional Planning, The Setting for Regional Planning in New Jersey, (Trenton: State of New Jersey, December, 1961), see generally. 6.Ibid., see generally.

42 CHAPTER ...Ay MS -1 411611411.11111". ":11*

AIll

11. ' eumblt

As discussedearlier,openspaceserves adequacy of existingopen space facilities in different functions and has varyingcharacter- New Jersey as wellas to determine the extent istics at the different functionaland govern- of needs at the 10 million and 20 millionpopula- mental levels.This chapter will attempt to tion levels. The balanced landuse standards survey the adequacy of existingopen space at will be applied to indicate the ninimumamount each respective level to determinethe extent of of acreage which should be devoted future open to open space needs.Functional levels space and recreational land use as the Stateap- rather than levels of governmentalresponsi- proaches total development. These figuresare bility will be treatedseparately. Thus, mega- presented in Tables V, VI, and VII. lopolitan,metropolitan,state,intercounty, county, intermunicipal and municipallevels of Since Intercounty needsare concerned with open space will be discussed individually with serving a group of people living inparts of regard to their present adequacy,the acreage more than one county, the regional areas1 of needs at the 10 million and 20million popula- New Jersey were usedas a basis for distribution levels and also the needsindicated by the tion of this functional level ofopen space balanced land use standard forNew Jersey's throughout the State.This is not meant to Horizon. imply that these regions haveany official status, but rather, that theyprovide a useful The population standards developedin the basis on which to distributethis particular preceding chapter will be usedto indicate the level of open space.

43 Table V

NEW JERSEY OPEN SPACE NEEDS FOR 1960, BASED ON ACRES PER 1000 POPULATION STANDARDS

Open Space Need for 1960 1960 Open Space Acreage Excesses Functional Level Existing Public Open Space, 1960 Basod on Population or Deficits for 1960 (acres/1000 population Acres/1,000 (acres) standard) Population Standard Unit Acres (acres)

+37,800 Megalopoli tan New Jersey Portion 110,576 6,006,780 72,800 (12 acres/1000) - 6,900 Metropol i tan New Jersey Portion 17,394 6,066,780 24,270 (4 acres/1000)

96,640 -40,480 State North° 56,161 4,832,170 +93,970 (20 acres/1000) South 118,663 1,234,610 24,690

Inter-County Distribution Based on (4 acres/1000) 18 Class III Regions

Asbury Park-Long Branch- The figure below Red Bank Any existing lands 330,720 1,320 represents the total Mantic City,Pleasantville which may be 212,790 850 deficit for Class III Bridgeton-Millville-Vinaland serving this funct- 130,760 520 regions. Camden ional level are 680,950 2,720 El i zabeth included in State 389,830 1,560 Hackensack-Englewood and county totals. 501,730 2,010 Jersey City 398,760 1,600 Morristown-Dover 255,430 1,020 Newark 1,034,750 4, 140 New Brunswick-Perth Amboy 445,730 1,780 Newton-Port Jervis 45,510 180 Paterson.Passaic 696,700 2,790 Phillipsburg-Easton 92,720 370 Plainfield-Somervi Ile 232,970 930 Toms River 42,440 170 Trenton 363,400 1,450 Union City 160,890 640 Wilmington 50,700 200

Total (Class III Regions) 6,066,780 24,250 -24,250

County (8 acres/1000) Atlantic 9 169,880 1,290 The figure below Bergen 3,192 7.10,260 6,240 represents the total Burlington 224,500 1,800 deficit for counties. Camden 2,000 392,040 3,140 Cape May 48,550 390 Cumberland 160,850 850 Essex 4,409 923,550 7,390 Gloucester 70 134,840 1,080 Hudson 625 610,730 4,890 Hunterdon 54,111 430 Mercer 694 2,56,390 2, 130 Middlesex 912 433,860 3,470 Monmouth 52 334,401 2,680 Morris 2,376 261,610 2,090 Ocean 332 108,240 870 Passaic 1,076 406,620 3,250 Salem 58,710 470 Somerset 793 143,910 1,150 Sussex 49,260 390 Union 5,121 504,260 4,030 Warren 4 63,210 510

Total 21,665 6,066,780 48,540 -27,000

Inter-Municipal 85 Class IV Regions Any existing lands 6,066,780 24,300 -24,300 (4 acres/1000) which may be serving this functional level are included in county and municipal totals.

Municipal 567 Municipalities 17,400 6,066,078 48,500 -31,100 (8 acres/1000) a Bergen, Essex, Hudson, Hunterdon, Mercer, Middlesex, Monmouth, Morris, Passaic,Somerset, Sussex, Union and Warren Counties constitute the North.

44 Table VI

NEW JERSE.OPEN SPACE NEEDS, BASED ON LAND USE STANDARDS

Open Space Heed Open Space Acreage Functional Lev-.il Existing Open Space, 1960 Based on Land Use Land Area Excess or Deficits (land us standards) Standards Unit Acres (acres) (acres) (acres)

Megalopolitan New Jersey Portion 110,567 4,806,090 96,120 -14,456 (2% of total land area)

Metropolitan New Jersey Portio.n 17,394 4,806,090 96,120 -78,726 (2% of total land area)

State North 56,161 2,446, i 50 195,692 -149,531 (8% of total land area) South 118,763 2,359,940 188,795 -70,032

Inter-County 18 Class III Regions (2% of total land area) Asbury Park-Long Branch- Rad Bank Any existing lands 328,640 6,570 The figure below Atlantic City- Pleasantville which may be 698,660 13,970 represents the Bridgeton-Millville-Vineland serving this funct- 442,820 8,860 total deficits for Camden ional level are 654,960 13, 100 Class III Regions. El i zabeth included in State 45,240 900 Hack en sack- Eng lewood and county totals. 77,750 1,560 Jersey City 12,220 244 Morri stown-Dover 322,500 6,450 Newark 100,190 2,000 New Brunswick-Perth Amboy 214,210 4,280 Newton-Port Jervis 374,590 7,490 Paterson-Passaic 217,920 4,360 Phil I ip sburg- Ea ston 368,580 7,370 Plainfield-Somerville 157,630 3, 150 Toms River 203,450 4,070 Trenton 412,000 8,240 Union City 9,220 184 Wilmington 165,510 3,310

Total (Class III Regions) 4,806,090 96,100 -96,100

Coun ty Atlantic 9 286,650 14,330 The figure below (5% of developable Bergen 3,192 113,920 5,700 represents the land area) Budington 462,530 23,130 total deficits for Camden 2,000 131,050 6,550 counties. Cape May 111,940 5,600 Cumberland 253,550 12,680 Essex 4,409 62,440 3,120 Gloucester 70 192,133 9,610 Hudson 625 18,99C 950 Hunterdon 220,520 11,030 Mercer 694 135,280 6,760 Middlesex 912 182,480 9,120 Monmouth 52 277,480 13,870 Morri s 2,376 195,830 9,790 Ocean 332 328,940 16,450 Passaic 1,076 73,330 3,670 Salem 188,810 9,440 Somerset 793 170,870 8,540 Sussex 188,040 9,400 Union 5,121 56.750 2,840 Warren 4 149,230 7,460

Total 21,665 3,800,770 190,010 -168,300

Inter-Muni cipal 85 (Class IV Regions) Any existing lands 3,800,770 76,000 -76,000 (2% of developable which may be serv- land area) ing this functional level are included in county and municipal totals.

Municipal 567 Municipalities 17,400 3,800,770 114,000 -96,600 (3% of developable land area)

45 Table VII

NEW JERSEY OPEN SPACE NEEDS AT THE 10 MILLION POPULATIONLEVEL (BASED ON ACRES/1000 POPULATION STANDARDS)

Functional Level Existing Open Space, 1960 Land Required (acres/1000 for 10 Million Peopie standard) Unit Acres (acres)

Megalopo I i tan New Jersey Portion 110,576 120,000 (12 acres/1000)

Metropol i tan New Jersey Portion 17,394 40,000 (4 acres/1000) North11,778 Northa 30,000 South 5,616 South 10,000

State New Jersey 174,824 200,000 (20 acres/1000) North 56,161 North 150,000 South 118,663 South 50,000

InterCounty 18 Class III Regions 40,000 (4 acres/1000)

County 21 Counties 21,665 80,000 (8 acres/1000)

Inter-Muni cipal 85 Class IV Regions _ _ 44 000 (4 acres/1000)

Muni cipal 567 Municipalities 17,400 80,000 "(13 acres/1000)

Total 341,859 600,000

a. At the 10 Million level it is assumed that thepopulation will be distributed 75% North; 25% South.

46 Open Space Needs at the At the 20 million population level, 240,000 Megalopolitan Level acres will be necessary to fulfill the megalopoli- PRESENT SUPPLY OF OPEN SPACE FACILITIES tan recreational needs. When the balanced land use standard of 2 percent of total area is ap- Megapolitan open space areas are large re- plied to the New Jersey portion of megalopolis, gional facilities designed to service the popula- a smaller amount of open space acreage, 96,120, tion of the State in the Northeast Corridor re- appears to be necessary (see table VI) .Ac- gion.This 53,575 square mile urban area cording to the standard 697,000 acres would be stretching from southern New Hampshire to needed in all of megalopolis. northern Virginia presently houses about 37 million people.2 These heavy concentrations of At the megalopolitan level the major current population distributed over ten states give rise Federal proposals which will help tofulfill to unique recreational needs which are best these needs are : Delaware Water Gap National satisfied by the Federal government. This re- Recreation Area, Assateague National Sea- sponsibility is generally fulfilled through the shore, Chesapeake and Ohio National Histori- provision of large natural and recreational fa- cal Park, and Elizabeth Islands in Massa- cilitieswithinrelativelyeasyaccessof chusetts. The major one, partially within the megalopolitan inhabitants. State's boundaries, would be the Delaware Water Gap National Recreation Area.This The selection of what might be classed as a facility will encompass over 70,000 acres with group of facilities having potential megalopoli- more than 20,000 acres of water for recrea- tan significance are listed in Table VIII below tional use in both New Jersey and Pennsyl- with their acreages.3 vania. It is expected that DWGNRA will draw Based on the population standard, enough heavily from points up to 100 miles away and areas can be identified to fulfill ,the apparent to a lesser extent from distances beyond 100 current need in megalopolis as a whole, how- miles. An estimated 20 million people, or 11 ever,this should not preclude additions of percent of the national population, reside with- unique areas and areas of future need.Sites in a 75 mile radius of the project site which is identified in New Jersey currently amount to projected to have over 10,000,000 visitor-days 37,000 acres more than the approximate 73,000 of use annually. acres computed from the 12 acres/1000 stand- Another possibility located entirely in New ard.However, these are also serving other Jersey would be an Intracoastal Waterway functional levels. Recreation Area encompassing the Federal waterway. The Intracoastal Waterway pro- NEEDS AND PROPOSALS FOR THE FUTURE posal extends from New York Harbor to Dela- As illustrated in Table VII, the New Jersey ware Bay and its banks are presently owned by portion of megalopolis will need to provide various municipalities and private individuals. some 120,000 acres of recreational land by the It contains one of the most valuable concentra- time the State's population reaches 10 million. tions of coastal marsh in the United States.

47 Table VIII

EXISTING OPEN SPACE FACILITIES HAVING MEGALOPOLITAN SIGNIFICANCE

Facility Acres Fad I ity Acres

NEW JERSEY SHORE NORTHWEST ERN MASSACHUS ET TS Island Beach State Park 2,690 Mohawk Trail State Forest 6,080 Brigantine-Holgate National Wildlife Refuge (Fed.) 14,233 Monroe State Forest 4,029 Intracoastal Waterway (Fed.) Savoy State Forest 10,705

CENTRAL NEW JERSEY NORTHEASTERN PENNSYLVANIA Wharton Tract (State) 95,280 Delaware State Forest 75,501 Promised Land State Park 1,694 NEW YORK-LONG ISLAND Pike County Fish and Game Lands 12,603 Fire Island National Seashore 5,700 EAST CENTRAL PENNSYLVANIA EAST CENTRAL NEW YORK Fish and Game Lands in Dauphin & Lebanon Counties 47,442 Catskill Forest Preserve 235,262 SOUTH CENTRAL PENNSYLVANIA TRI-STATE AREA-CONN., MASS., N.Y. Michaux State Forest 80,745 Taconic State Park (N.Y.) 6,202 Mount Alto State Park 17 Mt. Everett State Reservation (Mass) 1,216 Caledonia State Park 1,365 Bash Bish Falls Forest (Mass) 390 Pine Grove Furnace State Park 585 Mt. Riga State Park (Conn) 271 NORTH CENTRAL MARYLAND 5,746 CENTRAL CONNECTICUT-SOUTH CENTRAL MASS. Catocin Mtn. Park (Fed.) Peoples State Forest (Conn) 2,994 Cunningham Falls State Forest 4,447 Tunxis State Forest (Conn) 3,178 Frederick City Municipal Forest 4,704 Algonquin State Forest (Conn) 1,465 Gambrill State Park 1,138 American Legion State Forest (Conn) 802 Granville State Forest (Mass) 2,232 NORTHERN VIRGINIA Prince William Forest Park (Fed.) 12,215 EASTERN CONN - WESTERN R.I. Pachaug State Forest (Conn) 22,474 NORTHEASTERN MD. - NORTHERN DELAWARE Arcadia State Forest (R.I.) 7,634 Elk Neck State Forest (Md) 3,762 Beach Pond State Park (R.I.) 3,200 Chesapeake & Delaware Canal (Md. - Del. - Fed.) 5,500

SOUTHERN MASSACHUSETTS EASTERN MARYLAND - EASTERN VIRGINIA Chincoteague National Wildlife Refuge (Fed.) 9,448 Cape Cod National Seashore Rec. Area (Fed.) 26,666

DELAWARE SHORE NORTH CENTRAL MASSACHUSETTS Bombay Hook National Wildlife Refuge (Fed.) 13,180 Erving State Forest 5,500 Woodland Beach Wildlife Area 5,000 1,100 Mt. Grace State Forest Little Creek Wildlife Area 2,529 Warwick State Forest 4,567 Wendell State Forest 6,610

Subtotal (Omitting Intracoastal Waterway) .449,666 Subtotal 308,435

Grand Total (Omitting Intracoastal Water) 758,101

48 Table IX

PROPOSED OPEN SPACE FACILITIES HAVING MEGALOPOLITAN SIGNIFICANCE

Facility Acres

NEW JERSEY SHORE (ADDITIONS) Great Bay 16,967 North Brigantine 908 Atlantic City Marshlands 4,333 Multi-purpose Water Management Areas (Cape May County) 16,397

NORTHWEST NEW JERSEY NORTHERN PENN. Delaware Water Gap Nat'l. Recreation Area (Being acquired) 72,000 (New Jersey Portion) (44,000)

NEW JERSEY-PENNSYLVANIA (NEW) Delaware River (Trenton to the Delaware Water Gap) 5,000

SOUTHEASTERN MASSACHUSETTS (NEW) Elizabeth Islands (Fed.) 10,000

NORTHWESTERN MASSACHUSETTS (ADDITIONS) Upper Deerfield Valley 12,200

NORTH CENTRAL MARYLAND (ADDITIONS) Monocacy Reservoir No. 2 26,900 South Mountain 15,300

EASTERN MARYLAND-EASTERN VIRGINIA (NEW) Assateague National Seashore (Now authorized) 23,000

CENTRAL MARYLAND Chesapeake & Ohio National Historical Park 15,000

TRI-STATE AREA CONN., MASS., NEW YORK Taconic Tri-State (Mass.) 16,000 Taconic Tri-State (Conn.) 15,000

Total 248,705

49 Figure 6 A SUGGESTED OPEN SPACE SYSTEM FOR MEGALOPOLIS to, tu-r

r 3 I 11.

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r O. '.2.3- ,. -,..C,v #', l ,t., r_., ,,r ,L , , , - ,- . , .. - ;,4*.ir . , ,1.. .s:, A - ..., -1 '-'1_, XL' --,-.....-; , ....,, f; .; r- ) ..;..;:-.: :iiP t ''' < ,J' .., 'I:' '^ S'7,,,:,...1 , , .. 's ' 1 i ,r' 1 CENTRAL CORRIDOR OF MEGALOPOLIS

MEGALOPOLITAN OPEN SPACE FACILITIES

r AMAJOR FEDERAL AND STATE OPEN SPACE IN PROXIMITY TO MEGALOPOLIS

I S. 2: L. , 1020 30 .4-0 eo 100 ;14t' ScaleI"40 Miles

STATE Of NEW JERSEY DEPARTMENT OF COMMUNITY AFFAIRS DIVISION Of um otto now PLANNING

SOURCE:Compilod by th. Division of Stat. S Regional Planning 7967 Open Space Needs at the Table XI Metropolitan Level OPEN SPACE SERVING A METROPOLITAN FUNCTION CURRENTLY BEING ACQUIRED THROUGH THE GREEN The next level below megalopolitan needs ACRES ACQUISITION PROGRAM OF NEW JERSEY would be the interstate or metropolitan, which Facility Acres basically serves large urban centers. The type offaslility,whosespecificpurposeisto New York Class I Region New York and serve the Class I Regions4 of Cheesequake State Park Extension 2,450 Philadelphia,will be considered.The pro- Great Piece Meadow5 3,390 visions of these metropolitan facilities should Liberty Park 470 Monmouth Battlefield 1,480 be a joint responsibility of the Federal and Millstone River 1,740 State government. Palisades Park Extension 360 Wawayanda 10,780 In New Jersey, the parcels which we identify Pigeon Swamp 3,250 as metropolitan consist primarilyof federally- Troy Meadows 2,600 owned wildlife refuges and State-owned park- Total 26,520 lands particularly accessible to metropolitan centers. These are listed below. Philadelphia Class I Region Assunpink 4,970 lnskips 1,790 Rancocas 1,670 Table X Washington Crossing Additlfms 450 Duck Island 1,460 EXISTING OPEN SPACE IN NEW JERSEY SERVING A METROPOLITAN FUNCTION, 1960 Total 10,340

Facility Acres TOTAL 36.860

!lew York Class I Region

Palisades Interstate Park 1,900 and 5,616 acres in the Philadelphia Class I Re- Great Swamp National Wildlife Refuge 5,900 Morristown National Historic Park 960 gion. Approximately 80,000 acres should be Telegraph Hill (New Jersey Highway Authority) 328 made available to the populations of these two Cheesequake State Park 960 Class I Regions. Table XI lists those parcels Sandy Hook State Park 1,730 of open space and recreation land which will Total 11,778 serve a metropolitan function and which are presently in the process of being acquired Philadelphia Class I Region through the Green Acres Program. A total of

Parvin State Park 1,036 35,190 acres are included in this group of fa- Washington Crossing State Park 720 cilities. Killcohook National Wildlife Refuge 3,860 These have a metropolitan significance and Total 5,616 this suggests a major federal responsibility and

TOTAL 17,394 participation in acquisition and development. If all of the above mentioned parcels are acquired and incorporated into a metropolitan A total of 17,397 acres have been classified open space system, an additional 17,800 acres as serving a metropolitanfunction, 11,781 will be needed to fulfill the 80,000 acres re- acres located in the New YorkClass I Region quired at the 20 million population level.

_ --- Open Space Needs at the State Level Open Space Needs at the Intercounty Level PRESENT SUPPLY OF OPEN SPACE FACILITIES PRESENT SUPPLY OF OPEN SPACE FACILITIES The State is responsible for acquiring, de- The secondary responsibility of the State in veloping and making available statewide rec- the development of a long-range comprehensive reation facilities to provide nature-oriented ex- system of open space is to provide recreational periences for its own citizens in the form of a facilities of intercounty scope in themore well distributed and accessible system of parks, densely populated portions of the State. These scenic, historic and geological sites, etc. facilities are more user-oriented thanmany of The State of New Jersey presently owns ap- the larger resource-based State facilities, and proximately 300,000 acres of open space. Ex- closely reflect the more intensely developed cluding State-owned land (which might be character of county or large municipal facili- classified as either megalopolitan or metro- ties.Intercounty facilities serve a population politan open space in terms of the service which which may encompass more thanone county it might provide) the remainder totals about and as a measure of need the standard has been 172, 800 acres to meet present State and inter- applied to the Class III Regions.° county needs. The 172,800 acres consists pri- The State owns several areas of open space marily of State parks, forests, and fish and that function at the intercounty level and there game lands. Approximately eighty percent of are presently only about 8,500 acres of county- this acreage i- located in the more sparsely owned land which are performing an inter- populated southern half of the State and away county function. These, however, will be in- from the heavily urbanized northeast sector. cluded under the discussion of countyopen When the population standard of 20 acres space facilities since it would be unfair to class per thousand is applied at the State level, the large tracts of county-owned landas perform- southern part of the State has 93,970 acres ing this function and then cite the county in- more than is needed to serve the present pop- volved as being deficient inopen space at the ulation based on the 20 acres/1000 standard. county level. This is providing some service to northern New The standards suggest a need for about Jersey for those who are willing to travel the 24,000 acres to serve 1960 intercounty needs greater distances for the specific activities. (see Table V).State responsibility is particu- However, this acreage does not off-set the larly needed in urban areas toease the load on deficit of 40,480 acres in the northern counties. county park systems. This is discussed in detail in the report Parks and Recreational Land Use in New Jersey.5 NEEDS FOR THE FUTURE NEEDS AND PROPOSALS FOR THE FUTURE The inter-county open space system in New Jersey would need 40,000acres by the time the When the population standard for the State State's population reaches the 10 million level. is applied to New Jersey's projected population At the 20 million mark, 80,000 at the 10 and 20 million levels of population acres will be required to meet recreational needs. Theseacres open space are needed. At the 20 million pop- will be distributed among the Class III Regions ulation level, this need will be expanded to in accordance with their populations.If the 400,000 acres, which approximates the need balanced land use standard is applied to each established by the balanced landuse standard. Class III Region, the total need is approxi- This standard implies aneven greater deficit mately 96,000 acres. Tables IV and VI indicate at the 10 and 20 million levels of populations the regional needs established by the landuse (see tables IV and VIII). standard.

52 To date no acreage has been proposed for acres will be needed at the countylevel. When acquisition specifically as an intercounty fa- the land use standard of 5 percent of the de- cility. Undoubtedly, many of the parcels pres- velopable county area is applied, a total of ently being acquired through the Green Acres about 190,000 acres is indicated to be set aside Program for the State system will actually in open space. Table VI lists these figures on serve an intercounty function andwill eventu- a county basis. ally be used to offset the deficit in this areaof open space need. Table XII

Open Space Needs at the County Level COUNTY OPEN SPACE IN NEW JERSEY, BY COUNTY PRESENT SUPPLY OF OPEN SPACE FACILITIES Acres Purchased Via New Jersey's county open space systems are County Existing Acres, 1960 Green Acres Program so diverse that they can hardlybe spoken of in (as of January 1, 1967) a comprehensive way.Union and Essex Coun- ties, on the one hand, have long-established Atlantic 9 for Bergen 3,192 940 county park systems, but limited potential Burlington expansion. Atlantic and Burlington Counties, Camden 2,000 on the other hand, possesslittle or no public Cape May open space and have done littleplanning for Cumber land acquisition. Somewhere in between these ex- Essex 4,409 1 Gloucester 70 tremes are counties such as Mercer and Passaic Hudson 625 which have relkively modest park systems and Hunterdon comprehensive plans and potential for ex- Mercer 694 93 pansion. Midd!esex 912 1,041 Monmouth 52 494 In 1960 there were approximately 21,735 Morris 2,376 833 Ocean 332 11 acres of open space under countyjurisdiction Passaic 1,076 performing a county function. These are listed Salem below. Somerset 793 467 Sussex The 21,735 acres, however, are inadequateto Union 5,121 120 meet present open space needs as definedby the Warren 4 total of 8 acres/1000 population standard. A 4,000 27,000 additional acres are necessary to com- TOTAL 21,735 plete the county systems at their present population level.Green Acres has added 4,000 acres to the countylevel between 1960 and 1967. Deficit and excess figures for the counties are given in Table V.

NEEDS AND PROPOSALS FOR THE FUTURE Tables IV and VII indicate the amountsof open space acreage which mustbe added to the supply as New Jersey's population reaches10 million and 20 million. Using the standardof 8 acres/1000 population, at 10 million the acreage need is 80,000 and at 20million 160,000

53 Open Space Needs at the added to the total to meet current needs. At the Intermunicipal and Municipal Levels 10 million population level, as shown in Table INTERMUNICIPAL FACILITIES VII, the need will jump to 80,000 acres and at 20 million population, to 160,000 acres (Table No inventory or classification of intermunic- IV). The balanced land use standard indicates ipal facilities will be attempted in this report. a need for 144,000 acres of open space to be Some of the smaller county-owned recreational set aside by the State's 567 municipalities. parcels !ncluded above as existing county-level Green Acres has added 2118 acres to the mu- facilities may, in reality, be functioning at the nicipal level between 1960 and 1967. intermunicipallevel.That isto say, these parks are serving two or three municipalities within the county but do not service the coun- Table XIII ty as a whole. A description of the functional aspects of the intermunicipal park was detailed MUNICIPAL OPEN SPACE IN NEW JERSEY, BY COUNTY in Chapter III. A general guide to the desirable Acres Purchased Via amount of this type of facility is discussed be- County Existing Acres, 1960 Green Acres Program low. (as of January 1, 1967)

Presently, some 24,300 acres (Table V) of Atlantic 429 open space are required on a population stand- Bergen 2,383 108 ard basis in the State as a whole. This acre- Burlington 478 26 age should be distributed among the 85 Class Camden 1,345 7 Cape May 231 9 IVRegions. Approximately40,000acres Cumberland 562 (Table VII) will be required when the popula- Essex 1,558 8 tion reaches 10 million and 80,000 acres to Gloucester 577 service the Class IV Regions at a population of Hudson 598 6 Hunterdon 436 20 million (Table IV). Based on the land use Mercer 818 652 standard of 2 percent of the developable area Middlesex 1,694 438 of each Class IV Region,7 a total of 76,000 acres Monmouth 1,150 369 are needed to fulfill the recreational require- Morr is 1,747 68 ments at the intermunicipal level. Ocean 382 228 Passaic 759 9 Salem 145 MUNICIPAL FACILITIES Somerset 591 74 Sussex 170 As of 1960, some 17,400 acres (Table V) Union 1,227 116 were in existence as municipal open space fa- Warren 116 cilities.These figures are given on a county basis in Table XIII. As indicated in Table V, TOTAL 17,396 2,118 this acreage is not adequate to meet the current open space need generated at the municipal level. Some 31,100 additional acres should be

54 FOOTNOTES

1.Division of State and Regional Planning, The Setting for Regional Planning in New Jersey, (Trenton: State of New Jersey, December,1961),see generally. 2.Jean Gottrnann, Megalopolis, (Cambridge: The M.I.T. Press,1961), p. 3. 3. This was done to establish a system based on concepts suggested in this study, and does not necessarily represent the thinking of the several states in which the facilities are located. 4.Division of State and Regional Planning, op. cit., see generally. 5. Division of State and Regional Planning, Parks and Recreational Land Use in New Jersey, (Trenton: State of New Jersey, June,1965),see generally. 6.Division of State and Regional Planning, op.cit., see generally. 7.Ibid., see generally.

55 i-7"--

. y

F OBTAINING AND PR TECT

',t' There is an increasing awareness (at all Acquisition levels of responsibility in New Jersey) of the necessity to preserve open space. The question Ownership of land is generally describedas arises as to what means are available topro- the ownership of a "bundle of rights" in the tect the remaining undeveloped lands of the land. They include "the right to theman to State which possess an open space potential. sell his property, to encumber it, to have his wife and children inherit it and to buildupon Although many people do not realize it, all it and to develop it."l levels of government in New Jersey have the authority to insure the preservation ofopen Several avenues are open to government in space.However, this authorityis not un- the acquisition of land for open spacepur- limited. It is delegated by the State legislature poses. If a governmental jurisdiction purchases to the counties and municipalities bymeans of all of the property rights, it requires the fee State enabling legislation. simple or complete title to the land. Govern- ments may purchase less than full title (such Methods of either obtaining or protecting as development rights) to guarantee that the open space that are available to New Jersey land will be maintained inopen use.This governmental jurisdictions can be classified type of transaction is definedas the acquisition into five general categories:a) Acquisition ; of an easement. The original landowner still b) Use of the police power ; c) Tax policy; d) retains some of the property rights, but he Gifts ; and, e) Other methods. Each of these must conform with the stipulations of theease- general categories contains specific tools that ment. The amount and kinds of rights retained the various units of governmentmay apply in depend upon the agreement between the public the preservation of open space. agency and the land owner. The "other methods" of preservingopen spaces are proposed or have been used in areas Acquisition of Title of Ownership outside of New Jersey. These have been in- All levels of government in New Jerseymay cluded in this discussion in order to providea acquire full title to land that will be preserved broader understanding of the potential that is as open space. At the State level this authority available in the process of protectingopen is vested primarily in the Department of Con- space. servation and Economic Development for the

56 types of land with which this report is con- case, the Congress and its authorized cerned. Counties and municipalities also have agencieshave madedeterminations been granted the authority (by State enabling that take into account a wide variety of legislation) to acquire full title to open space values.It is not for us to reappraise by either direct purchase or the power of them. If those who govern the District eminent domain. Usually full title is acquired of Columbia decide that the Nation's through negotiation between the governmental Capital should be beautiful as well as body and the seller at the prevailing market sanitary, there is nothing in the Fifth price. However, in some instances government Amendment that stands in the way. must use its power of eminent domain to acquire private property when the landowner re- The 1947 New Jersey Constitution author2;zes fuses to sell. Under condemnation proceedings a somewhat unique form of eminent domain title is transferred to the government and the commonly (although not necessarily correctly) landowner is paid a just compensation. The referred to as "excess condemnation." Accord- power of governments to exercise eminent doing to the provisions of the Constitution4: main is not unlimited.Government, at any level, may condemn land through eminent do- Any agency or political subdivision of main only when it can be shown that the land the State or any agency of a political will be taken for the public health, safety or wel- subdivision thereof,. which may be im- fare.According to one judicial opinion de- powered to take or otherwise acquire livered nearly 100 years ago :"Private prop- private property for any public high- erty is taken for public use when it is ap- way, parkway, airport, place, improve- propriated for the common use of the public at ment, or use, may be authorized by law large. A stronger instance cannot be given to take or otherwise acquire a fee simple than that of property converted into a public absolute in, easements upon, or the park."2 benefit or restrictions upon, abutting property to preserve and protect the The most notable decision pertaining to pub- public highway, parkway, airport, place, lic use was handed down by the United States Supreme Court in Berman v. Parker. The case improvement or use ; but such taking broadened the concept of public use to include shall be with just compensation. thecondemnationofvaluablecommercial property within an area designated for rede- Perhaps the best example of excess condem- velopment under the Housing Act of 1949. The nation is the Garden State Parkway where much of the abutting land was secured by using court in that case stated that3... this form of eminent domain in order to pre- The concept of the public welfare is serve an open park-like character and provide broad and inclusive. The values it rep- a pleasant driving experience. resents are spiritual as well as physical, The constitutional and statutory bases for aesthetic as well as monetary.It is acquiring rights in either land or water by within the power of the legislature to purchase or eminent domain have been out- determine that the community should lined to some extent.5 be beautiful as well as healthy, spacious as well as clean, well-balanced as well Municipalities in New Jersey derive their as carefully patrolled.In the present general power to acquire land for parks from

57 a statute relating to "public parks,squares, parkentrances ;parkways,highwaysand open spaces, playgrounds, beaches. ."° Addi- other right-of-way easements; airport ease- tional statutory authorizationto acquire public ments ; and, water control easements. golf courses7 and swimming pools'is granted omitting, however, thepower to condemn. Rec- CONSERVATION EASEMENTS reation commissionsmay be created on the municipal level andare given power to acquire The conservation easement involvesgovern- land for "public playgrounds andrecreation mentalacquisitionofcertaindevelopment places." The county park commissionsin New rights of the owner in his land which limits Jersey also have thepower to acquire parks the type and intensity of development of the and open spaces for public resort andrecrea- land. The privateowner retains the title and tion.1°Finally, land may be acquired by the can use his land in any manner which does not State through the Department of Conservation conflict with the rights conveyed to thegovern- and Economic Development fora "state park mental body." or a forest park reserve."" The forest park New Jersey's governmental units not only reserve may be augumented by the acquisition have the statutory authority tonegotiate for of fresh water lakesor ponds, with adjoining the purchase of easements, but they also have lands;" and by woodlandswamps or marsh- the authority to utilize condemnationproceed- land which may be conveyed to theState by ings to procurean easement upon the land.16 municipalities." There is also provisionfor the As in the case of utilizing eminentdomain for acquisition of roadside parks adjacentto State acquisition of fee simple title, it must be shown highway s.14Individual charters, and special that the easement is for the benefit ofthe gen- statutes applicable to particularcounty park eral public, and just compensationmust be commissions supplement the over-allprogram awarded to the owner. in New Jersey. The Outdoor Recreation Resources Review' Acquisition of Easements Commission (ORRRC) cites fouradvantages Governmental jurisdictions in New Jersey of conservation easements tothe public. They include :17 do not (in every instance) haveto acquire the complete bundle of rights that constituteac- a.Conservation of prime land without quisition of fee.Legislation enacted in New having to bear fee simple costs, Jersey permits the acquisition (by all levelsof b.Retention of the landon the tax rolls, government) of development rights. By acquiring only certain rights pertainingto the use of c. No maintenance costs as the land- land,governmentaljurisdictions maystill owner maintains the land, and achieve the goal of preservingopen space. d. Retention of land that isproductive Some easements restrict development; others and alive. permit no development at all while othersare less restrictive, andare merely used to permit There are limitations to this method. The public access to woodland for hunting and fish- acquisition of a conservation easement involves ing purposes. Some of the principaltypes of an immediate and substantial outlay of public easements thathave had widespreaduse funds.18 Since a large part of the value ofopen throughout the country are: scenic easements land near urban centerscan be attributed to which prohibit developmentnear parks and its potential for future development,a government acquiring development rightsmay have

58 to pay close to the full valueof the land. The Use of the Police Power lacks conservation easement approach also The State has delegated certain of its police flexibility.It may turn out that the property powers to the local municipalities in order that could be more appropriately used withoutthe the they may protect the health, safety, and wel- restrictions. If the public unit were to sell fare of their citizens. Two of these powers development rights, the only market would available to the municipalities in New Jersey probably be the person owning the fee. are zoning and subdivision regulations. The primary criticism leveled against pur- chasing conservation easements is that they Zoning cost nearly as much as acquisition of feesimple The use of comprehensive zoning ilas long tiVe in rapidly developing areas. The costof been acknowledged by the courts to be a valid an easement is generallyestimated by "the dif- exercise of the police power.22In contested ference between the fair market value of the cases, the court must decidewhether the mu- land with the easement and without it."19 nicipality's ordinance is reasonable when applied to the individual property owner who A study prepared by the Division of State (without a zoning variance) can develop his and Regional Planning indicates that the ac- land only in conformance with the ordinance. quisition of conservation easements may be Through zoning, the municipality has an in- feasible in certain instances : "when the cost strument that restricts the use of private prop- justified the limited rights to be acquired. Nor- erty, therefore, it must be used judiciously. Its mally conservation easements should not be purpose is not necessarily to assurethat the bought where land is almost worth full urban use of land produces a benefitto the public, but value. Where land has only agricultural value, rather to assure that it is not being used in a the purchase of conservation easements may be rn.nner that is injurious to thepublic. Zoning justified if future development is expected."2° cannot be used for the sole purpose of pro- The same study concentrates on the three ducing a public benefit. The landowner must New Jersey counties of Burlington, Camden be compensated for land or property rights and Gloucester.It is estimated that it would taken for a public purpose. be feasible to preserve 66 percent of the remaining open space in these counties through CLUSTER ZONING the use of conservation easements. Because of A relatively recent and successful technique high land costs, it was found that it would not that has been used in New Jersey for preserv- be practical to purchase easements for 21 per- ing open space is cluster zoning. Although the cent of the reinaining open space and unneces- concept of cluster development is not new (Rad- sary for 11 percent of the remainingvacant burn, New Jersey was the "granddaddy" of the land because it is of no development value.21 concept) tne use of cluster zoning on a wide There has been some discussion concerning the scale in New Jersey is new. Of all the types of purchase of easements on parcels of land adja- zoning currently engaged in by municipalities, cent to those that are being secured through perhaps cluster zoning has the most potential acquisition of fee. There are no examples at as a means of preserving open space. this time, however, that can be cited to show the advantages or disadvantages of conserva- Cluster zoning provides a maximum density tion easements in New Jersey. for each zoning district. The housing units on

59 a parcel being subdivided are "clustered"to- Brunswick Township Planning Board, 77 N.J. gether within the zone,,thus occupying a mini- Super 594, 187 A.2d 221 [1963] ). The Town- mum amount of the land. The remainingland ship (once predominantly an agricultural area) is devoted primarily to open space for the was faced with a population upsurge.It re- "common" use and enjoyment of the residents. acted by amending its zoning ordinance in 1962 adding a cluster provision. The expressed pur- The advantages of this form of zoning are pose of the provision was to provide a method many, as shown by the example inHillsborough of development which would "preserve desir- Township, in Somerset County. Although since able open spaces, school sites, recreation and rescinded in 1961, the Township approved a park areas and lands for other public pur- cluster zoning ordinance and subsequently a Poses."24 cluster project of 72 homes was erected. The developer had initially planned to construct 69 Under this provision, a subdivider who dedi- homes using a conventional subdivision de- cated part of his land to the township and re- sign.23 However, by using the cluster concept, ceived planning board approval, could reduce he was able to build three more homes and lot area and frontage below the minimum or- place them in more desirable locations. Unlike dinarily required. Before the planning board his original plan, there would be no homes could authorize these reductions several re- abutting on a railroad track, a highway, an in- quirements had to be met including the fol- dustrial zone, or on less expensive homes in the lowing:25 neighboring municipality. Moreover, all of his (1) the resulting density of the tract be- homes were adjacent to the common open ing subdivided must be no greater space ; and, terrain features such as trees were than otherwise permitted. permitted to remain. (2) the land deeded for public use must The developer was able to trim land de- be "located, shaped and improved as velopment costs by $1,000 per lot.Fewer required by the Planning Board, streets were required. Water and sewage serv- which shall consider the suitability, ices were reduced in cost because of the tighter physical condition and location of the grouping of homes. Even labor costs were re- lands with regard to its proposed duced because it was possible to concentrate uses and to the needs of the Town- materials and equipment. ship,inreachingitsdetermina- Many of the above advantages are economic. tion..." However, the advantages to the home-owners (3) a portion of the land dedicated must and the municipality as a whole are even more be "at least a usable single five acre important. The amenities provided the public tract." through the preservation of open space, reten- The trial court upheld the provision as a tion of desirable terrain features, and the rel- valid use of the police power of the munici- ative isolation of homes from other forms of pality stating that "the need for preserving development have proved popular. The result woods and parklands in a natural state, as well has been a living environment that many as lands adequate for other public purposes,is people consider superior to that found in the widely recognized. The voters of this State conventional subdivision. The validity of clus- approved by referendum in 1961 the expendi- ter zoning was challenged in New Jersey in the ture of $60,000,000 for the acquisition of so- Township of South Brunswick (Chrinko v. South called 'green acres' by the State or political

60 subdivisions. Athough the state zoning law does Areas zoned exclusively for agriculture have not in so many words empower municipalities had limited use to date, although it has been to provide an option to developers for cluster reported that "isolated municipalities in the or density zoning such an ordinancereasonably New Jersey-New York-Connecticut Metropoli- advances the legislative purposes of securing tan Region have attempted such an exclusive open spaces, preventing overcrcwdingand un- zone, from which residential development un- due concentration of population, and promoting related to the needs of the farming community the general welfare. Nor is it an objection that is excluded."28Agricultural zoning is useu uniformity of regulation is required within a by some New Jersey municipalities, but it us- zoning district...Such a legislative technique ually does not restrict the land uses exclusively accomplishes uniformity because the option is to agriculture and is (in effect) large lot resi- open to all developers within a zoningdistrict, dential zoning which permits agricultural uses. and escapes the vice that it is compulsory. On the basis of recent court action in New Cluster or density zoning is an attempted solu- Jersey, it appears that exclusive agricultural tion, dependent as set up in the South Brunswick zoning might be upheld if "some factual proof zoning ordinance, upon the agreement of the of the importance of farming to the com- large-scale developer whose specific monetary munity" were presented.2° benefit may be only that he saves on street installation costs."28 It would seem that rural municipalities heavily dependent upon an agricultural econ- A leading authority, however, is not con- omy could employ exclusive agricultural zon- vinced that the approach taken in New Jersey ing. More important, however, would be the of requiring the developer to dedicate the com- acceptance by the court of evidence indicating mon open space to the municipality,is the cor- the need for the retention of open space through rect one." He finds it unfair that "common" exclusive agricultural zones in an urbanized open space should be owned bythe municipality state. and not by the home owners, who in purchas- ing their home also had to pay for the initial Zoning ordinances which restrict property land and development costs of the subdivider. to recreational uses have not (as yet) survived judicial review in New Jersey. Cluster zoning, however, appears to have considerablepotentialfor preserving open The Supreme Court of this State has held one space. If used properly, the concept seems to zoning amendment unconstitutional when it assure that all will benefit. The builder saves was adopted to maintain swampland in its na- money in construction, and more important, tural state (Morris County Land Improvement the home owner and the general public enjoy Co. v. Township of ParsippanyTroy Hilts, additional open space. 40 N.J. 537, 193 A.2d. 232 [1963] ). The regulations were found excessive, constituting an ZONING TO PRESERVE OPEN SPACE indirect taking of private property for public use without compensation. Open space zoning (or exclusive zoning) involves considerable regulation of land use. The court in that case pointed out that "while Open land is designated (by ordinance) as be- the issue of regulation as against taking is al- ing available for only such low density uses as ways a matter of degree there can be no ques- recreation or agriculture. tion that the line has been crossed where the

61 purpose and practical effect of the regulation situation has led one observer to state that is to appropriate private property for a flood "Rural zoning today is just a devine to stabilize water detention basin or open space. These are and freeze the present use of land until it is laudable public purposes and we do not doubt suitable for more intensive use. It protects the the high-mindedness of their motivation, but farmer while he wants to continue farming, such factors can not cure basic unconstitu- but otherwise does little to keep out the urban tionality. Nor is the situation saved because developer.Zoningisusuallyinitiatedby the owner of most of the land in the zone, farmers' efforts, and it is probable that they justifiably desirous of preserving an appro- can easily have it changed. The possibility of a priate area in its natural state as a wetland zoning change is the most serious handicap to wildlife sanctuary, supports the regulations. the functioning and effectiveness of rural zon- Both public uses are necessarily so all-encom- ing as a conservation and stabilization tool."" passing as to nearly prevent the exercise by a It would appear that the success of zoning to private owner of any worthwhile rights or protect open space over long periods of time benefits in the land. Therefore, public acquisi- will depend to a great extent on the will of the tion rather than regulation is required. When it municipality to withstand the temptation of an ordinance so restricts the use of land that gaining rateables through development of un- cannot be practically utilized for any reason- developed land and to withstand special interest able purpose, the restriction is invalid."30 groups that would profit from its development. "Of course, property need not be zoned to permit every use to which it is adapted, nor FLOOD PLAIN ZONING must allproperty similarly situated be ac- Many of New Jersey's rivers and streams are identicaltreatment. corded To so require stilllinedwithundevelopedlands.These would frustrate the zoning objective of a well- same waters in the past have overflowedtheir balanced community according to a compre- banks during periods of intense precipitation. hensive plan. It is sufficient if the regulations Where development had occurred on the flood permit some reasonable use of the property in plains of the State's surface waters, a history the light of the statutory purposes."3' of damage from flooding exists. Open space zoning can be harsh in some in- A warning of the consequences of flood plain stances, when the community assesses the development has been sounded by the Division property within the zone as if development of Water Policy and Supply of the Department were still possible. The assessor determinesthe of Conservation and Economic Development. market value of the property as if the property It has found that "the essential feature of the were unrestricted, despite the fact thatin so flood damage problem is the same everywhere : doing the community's tax policy ignores the the continued encroachment on riverflood community's land use policy. Under these con- plains. It is true that builders of many of the ditions, the property owner can justifiably new shopping centers, industrial plants, and complain of unfair treatment. residential developments which are being con- The assessment issue is actually a symptom structed on flood plains have recognized the of a more pressing problem. As population and danger and have taken precautions to escape economic pressures begin to be felt by the com- frequent flooding. Others have not. All, how- munity, land originally zoned for open space ever, will someday suffer flood damage. Flood purposes is rezoned to permit other uses. This damage is the inevitable consequence of flood plain occupance."33

62 The damage to development directly on the If what is needed is extensive and per- flood plain is not the only harm that can befall manently preserved open space to serve the public. Development on flood plains may as breaks in the city space, to give iden- tity and individualitytoperipheral have at least two other injurious results." By communities, and also to set aside areas filling in the flood plains for development, im- of natural scenic beauty for the enjoy- portant flood plain storage of water is im- ment and use of metropolitan popula- paired. Urbanization also has the effect of in- tions, large lot zoning will of itself not It has been reported satisfy these objectives.It would take creasing surface runoff. lot sizes of perhaps five to ten acres to that loss of flood plain storage and increased effectively accomplish this. runoff, especially on smaller streams, may double or triple ,the peak discharge on down- Assuming that large lot zoning (if the mini- stream reaches.More frequent and intense mum is high enough) may have some value in flood damage has resulted from this situation. preserving open space, its advocates point to Since development of flood plains could be another by-product that has the effect of pre- construed to be harmful to the general public, serving open space. It may also serve to con- it appears that New Jersey municipalities (in trol the timing and location of development. many instances) could institute flood plain zon- By keeping land relatively free from developing. Development could be restricted on what ment in the years ahead, public acquisition at are now undeveloped lands, thereby preserving a future date will be less costly as will rede- open space as a by-product. It would be neces- velopment. By discouraging mass residential sary for the municipality to deline ate the ex- builders (the argument goes) development will tent of the flood plains. This would require be channeled in other directions. If the govern- technical studies that should be conducted by mental jurisdiction should wish to acquire this qualified engineers. Whether flood plain zon- land in the future, and it is intensively de- ing becomes a useful tool for the preservation of veloped, the cost might be prohibitive. open space is dependent upon the will of local Large lot zoning has been criticized on governments to withstand the pressures to de- many counts. Forcing developers to use larger velop the flood plains for other purposes. lots tends to increase "scatteration," and produces disproportionately high servicecosts. LARGE LOT ZONING The developments may have less units but this Large lot or acreage zoning generally re- is no insurance against urban sprawl. One au- quires that a lot must be of a certain minimum thority warns citizens of outer suburbia that size before it can be developed for residential "in their eagerness to keep away mass build- use.It has been used in many New Jersey ers," they "fail to recognize that it is often a municipalities and is frequently described as multitude of small developments that is their an effective means of preserving open space. problem, and the fact that the lots must be Such control might provide the chance to deter- large by no means inhibits many subdi- mine where future open areas shall be. viders."3° The view has been advanced, based on a field Another authority believes that "it is doubt- study done by an M.I.T. team for the Urban ful whether it (large lot zoning) deters de- Land Institute, that nothing less than 5to velopment or preserves open space for any 10acre lot zoning (as a minimum) has real purpose other than private recreation at home. significance as a technique to achieve open In the communities where it is in effect, de- space :35 velopment has not been deterred to any considerable extent."37

63 One of the primary criticisms of large lot Subdivision Controls zoning is a social one. Many contend that large- lot zoning is frequently used as a device to dis- Subdivision ordinances have been used in courage "outsiders" from residing in the com- many states to preserve open space. They re- munity. quire that the developer set aside or dedicate some of the land for a specific purpose such as It is obvious that large lot zoning must be a park. Often in the past, developers have done used selectively and discriminatingly lest it be- this voluntarily. More recently, however :38 come an abuse in itself rather than a virtue. Planners must be careful not to promote sub- the public interest in reserving land in urban sprawl and scatteration with the whole- a subdivision for public recreation is so sale use of this device. great that communities rightly do not wish to wait upon the bounty of the developer, but instead, the practice has grown to require the contribution of land for this purpose...Analyticaliy, it is a condition exacted in return for the permit or privilege to build ; usually it is referred to as an exercise of the police power, that all-embracing power of government to regulate the activities of its citizens and the use of land for the general welfare. Since the requirement that land be set aside for open space purposes is an exercise of the police power, it must be used judiciously and only when it can be shown that such action is in the interest of the general public. The standards imposed by the ordinance must be uniform and uniformly applied. What constitutes a reasonable standard of the amount of park land to be set aside in the conventional subdivision has yet to be established.However,municipalitiesacrossthe country are experimenting with amounts rang- - ing from three to twelve percent of gross acreage. Establishment of the authority of New Jer- sey municipalities to require dedication of land by the developer under the present subdivision ordinance does not seem likely in the immediate future.3" Specificenablinglegislationwill probably be required before dedication will become a reality.

64 The Official Mop It is clear that New Jersey municipalities The official map is another technique that cannot reserve land for parks indefinitely. may be useful in preserving open space. In the Should the municipality decide that it wants past, the official map has been used most fre- to retain the land in open space for a long quently in connection with preserving rights- period of time an alternative means of reten- of-way for streets or for their widening. This tion such as acquisition would be necessary. technique is now also being used as a method The present New Jersey law regarding the of obtaining open space objectives. Land can official map serves as a safeguard for the mu- be maintained free of development for future nicipalities. Upon presentation of plans for use as streets and it can also be set aside for development, the municipality does not have to parks and drainage rights-of-way if they are make an immediate "now-or-never" decision as needed for the public. to whether or not it will preserve open space in The New Jersey Legislature has passed leg- conformance with its master plan. The mu- islation permitting New Jersey municipalities nicipality may take up to one year to make its to use the official map as an aid in reserving decision and prepare to take appropriate action parks. The Laws states that :" if it so desires.

If portions of the master plan contain Tax Policy proposals for drainage rights-of-way, One of the tools available to the State and schools, parks, or playgrounds within the proposed subdivision or in its vicin- the municipality for the preservation of open ity, or if standards for the allocation of space is tax policy. From a short range point portions of subdivisions for drainage of view it will not be an easy decision for the rights of way, school sites, park and municipality to implement open space pro- play gr ound purposes have been grams since it would have to choode between adopted, before approving subdivisions the planning board may further require having future parks and other open spaces and thatsuchdrainagerights-of-way, potential rateables which are so important to school sites, parks or playgrounds be municipal government under the present tax shown in locations and of sizes suitable structure in New Jersey. In the long run, re- to their intended uses. The governing straint in the collection of property tax may, in body or the planning board shall be permitted to reserve the location and ex- fact, enhance and improve values for the com- tent of school sites, public parks and munity and thereby result in greater taxable playgrounds shown on the master plan value." or any part thereof for a period of one year after the approval of the final plat Recognition of Zoning in or within such further time as agreed Assessment Policy to by the applying party. If the public (in its need for open space and Municipalities may reserve parkland pro- its need to control sprawl) seriously restricts cr: (a) the mapping of parks is based on the right to convert the land to a higher use, it a master plan ; and (b) the reservation of land seems only fair that the public should pay by for park purposes does not exceed one year af- way of a tax preference for that which it has ter approval of the subdivision plat by the plan- gained. ning board. New Jersey municipalities are heavily dependent upon the property tax as a source of reve-

65 nue. In an era of rising expenditures the bur- severe prospect which the land owner faces den on property owners in the State has been when the municipality decides to change the continually increasing.Especially hard hit regulations and the owner becomes liable for have been owners of undeveloped land since as- the deferred taxes. sessment is not based on the present use of land but rather on a potential use such as resi- PREFERENTIAL ASSESSMENT dential development. As rural areas are subjected to increasing development, the market Preferential assessment involves assessing value of land rises.This is accompanied by open land at its value for only the present or rising assessments which are further necessi- permitted unintensive uses.Preferential as- tated by additional municipal and school serv- sessment differs from the general directive in ices. The situation has led to extremely high that it applies to only selected land uses, and property taxes on open land in developing areas there is no necessary assumption that the land near urban centers. is permanently subjected to land use controls. A general directive could be added to present New Jersey voters in the general election of statutory language that would order assessors 1963 adopted this method by amending the to presume that the application of land use State Constitution with the addition of the controls to a parcel of property is permanent Farmland Assessment Amendment. in the absence of clear proof to the contrary. The amendment is a form of preferential as- Such a general directive would have to apply to sessment since its basic purpose is to give pref- all land and would tend to avoid many cir- erence to farmers, thereby retaining as much cumstances where property taxation works at of the remaining farmland as possible through cross purposes with a land use control. a more favorable tax policy. No firm general directives of this type have The Amendment provides :43 been enacted in statute form.42 An assessor (a) That farmland in active farm use couldinterpret present standards such as may be assessed at farm-use value if market value to mean market value considering the farmer wishes, mly uses to which property can be put, and could, thereby, give effect to controls limiting (b) That in order to qualify, a minimum the use. However, such interpretation is un- of five acres must have been actively likely due to the importance of property tax farmed for two years prior to the tax revenue to the municipality. year, and (c) That should the farm be sold for a DEFERRAL non-farm use taxes based on the higher value will be paid for the pre- Deferral of taxes involves postponing the vious two years of farm use. payment of taxes on that portion of the market value of the land in excess of the value at the Although the effect of the amendment should restricted or present zoned use. The postponed be to maintain open spaces, positive assurance or deferred taxes become due on a change in that this will occur is lacking. Farmland can use when the land is put to a use not permitted and will undoubtedly be sold for developmerAt by the regulation or when the regulation isre- purposes.Realistically,preferentialassess- moved. Deferral is a seemingly attractivepro- ment is a valuable supplementary technique posal because it eventuallyrecovers the de- when used in combination with other methods ferred taxes. The difficulty with deferral is the

66 of preserving open space, but it cannot be con- maintaining additional open space without ac- sidered a primary means of preserving the quiring the land. permanency of open space. Gifts TAX EXEMPTION Historically, one of the primary methods of Another tax device that can be used in New obtaining open space in New Jersey has been Jersey is that of granting tax exemptions to through gifts of land to various governmental certain forms of open space. All public prop- jurisdictions. erties in public use are exempt,44 and (under certain conditions) privately owned lakes and This has been a frequent practice in New ponds that are open to the public for swimming Jersey at all levels of government. Over one- and boating are also tax exempt. third of the existing State Park acreage has been donated to the State through gifts. This includes over 11,000 acres at the State's largest The New Jersey law states :45 park, High Point State Park. Examples of Any owner of a fresh water lake or other existing state parks whose acreage was pond which is subject to acquisition by acquired through gifts include Ringwood Man- the state..., may propose anagree- ment with the board, by which he shall or, Hacklebarney, and Stevens State Parks. retain title to the property, but grant The Abram S. Hewitt and Norvin Green State to the citizens of this state access to and Forests are examples of State owned lands that the free use of the waters of such lake were given to the State by generous benefac- or pond for boating and fishing subject tors interested in the welfare of the State. to a reasonable charge to be made for the use of boats belonging to the owner Many municipal parks have been the gifts of such lake or pond. If, after making of individuals.Perhaps the best example is an Investigation, the board shall be the 1,100 acre park in Bridgeton. satisfied that the public interest will be as well served by the freedom to use the lake or pond for boating or fishing, Gifts of undeveloped land to the various as it would be if the property were con- levels of government have been frequent. Some veyed to the state, the board shall enter observers suggest that this practice could be into an agreement with the owner of even further accelerated if certain incentives such lake or pond, which agreement were provided. One might be tax concessions shall provide that, in consideration of the free use by the public of the waters to individuals who chose to leave undeveloped of such lake or pond for boating and lands to governments for open space purposes. fishing, the property shall be exempt There appears to be many approaches that from taxation so long as the agreement could be attempted in this direction.45 remains in force, the same as it would if the state acquired title thereto. Acquisition of open space through gifts has been a primary means of preserving unde- This statute has not been used in recent veloped lands.However, it is probable that years. However, in some individual cases it aquisition by gift will decline continually as could conceivably work to the advantage of the competing demands for undeveloped land both the State and the land owner. A land in New Jersey intensify.This will serve to owner who desired to keep his land in open increase the necessity to acquire open space space could do so without having to pay taxes by positive governmental action. on it while the State would gain its objective of

67 Other Methods each payment and would remain attached to the property as a guarantee The above methods do not by any means for later purchasers. exhaust the list of potential means of acquiring The advantages of compensable regula- open space. They merely represent the princi- tions are several : They could keep land pal methods now available to governmental open, in private ownership, at low cost jurisdictions in the State. There are several to local governments, with payment of new proposals. compensationdeferreduntilowners choose to sell.If the market price of One proposal (pertaining to a tax referral the land subject to compensableregu- technique) would give the owner of land re- lations rises above the owner'sguaran- stricted for open space and registered as such tee, as it very well might, there isno cost to the government. Also, therecan with the tax assessor, a rebate in his property be no overstatement ofany decline in taxes at a rate of 90 percent for the first three value, because this is determined in each years, 70 percent for seven years, and 50 per- case by actual sale of the property. cent thereafter. This would be curtailed if the The appeal of the compensable regulation al- land were freed for development, and all re- ternative exists (in part) as a reaction against bated taxes would become due.47 the harshness of exclusive openspace zoning. The theory of compensable regulations48 was first advanced at the 1961 Penjerdel Open Two of the newer proposed methods of Space Conference. This concept would require acquiring open space include purchase andre- that municipalities reimburse owners of land sale of land with attached restrictions;and, where regulations specify that the open charc- suburban development districts." ter of the land be preserved. Such compensable Purchase of land by Federal, state,or local regulations are intended to bridge the present governments followed by a lease to private gap between the power of governments to reg- persons for open space uses, in accordance ulate without compensation and the power to with governmental plans can assure realiza- acquire land. tion of some open space objectives. A possible The compensable regulation alternative does disadvantage to purchase and lease-back is not involve governmental acquisition of prop- that the government becomesa permanent erty interests. Rather, land is zoned or other- landlord with management responsibilities,a wise regulated for open space uses, but with a type of business government tries to avoid. governmental guarantee of its value :49 Resale in accordance witha development plan, similar to the temporary government Land subject to compensable regulations would be valued for purposes of ownership in redevelopment areas,can assure owner's guarantee at its value immedi- permanent open space and overcome the ob- ately prior to and unaffected by the jection of having the governmentas a per- adoption of the regulations. Property manent landlord. owners would be entitled to draw upon the owner's guarantee for compensa- Charles Abrams of the M. I. T.Harvard tion, payable at the time of the sale of Joint Center for Urban Studies and Dr. Marion the property, equal to the amount, if Clawson of Resources for the Future Inc., any, by which the sale price of the property fell below the owner's guarantee. have each proposed a variant to purchase and The amount of the owner's guarantee resale. Mr. Abrams proposes that the state for each property would be reduced by and federal governments buy larger tracts of

68 _

land in advance of development, plan sub- To illustrate this power, the state grants a divisions with inclusion of adequate open lease, a use permit or a concession for a state- space, then se:I the land to developers for owned land area to a private person, and as a building in accord with these plans. This is an part of the deal, he agrees to use or not to use adaptation of the concept of urban redevelop- his own land in specified ways or for specified ment to undeveloped suburban land. purposes. Dr. Clawson recommends the creation of Current subdivision administration offers new units of government to be called subur- daily evidence of dealing which may be of im- ban development districts to plan and develop portance to an open space or resource pro- suburban fand within the districts. When de- gram. Mrs. Strong calls our attention to such velopment is complete, the district would dis- "deals" in her discussion of required dedica- band. Open space could be maintained by the tion of land or grants of money as conditions local government or an owners' association. to approval of subdivision on plats." Dr. Clawson suggests that counties or states could preserve open space outside the districts Much confusion exists about the exercise of by permitting development only within the the power to deal. Vague generalizations have districts. Both of these proposals would require sometimes been substituted for thoughtful public support for the concept of more com- analysis. "A governmental unit cannot con- plete government control of land development tract away its police power ;" "a legislature than is now common in the United States. cannot bind future legislatures ;" and "con- tract zoning is unconstitutional" these are These proposals, like any others, must be typical statements made with respect to the compatible with constitutional standards. If power to deal. The problem to which relative- they (as proposed) limit development to the ly little analysis has been directed is how can government owned districts, some form of its exercise be controlled so as to prevent compensation would probably be necessary gross hand-outs to some and arbitrary refusals for those property owners whose land was ex- to deal fairly with others. cluded from-the districts. Otherwise, they could claim that forbidding them to sell for develop- There are many methods to be considered ment would be a taking of their land without for what might be called a "Total Strategy" just compensation in violation of constitution- truly a Comprehensive Plan. There is no one al guarantees. answer and no one agency which will suffice. A great number of existing or proposed pow- An auxiliary to the exercise of more direct ers and tools will have to be employed. What powers of government is the power to deal. is needed is the much vaunted "American This power is often used, but is not recognized genius for organization," i.e., the ability to as the power of the state to make a "deal" work together, to coordinate the policies and in connection with the carrying out of its regu- programs of many interests and governments latory, taxing, grant-in-aid, and proprietary for the guidance of the growth of urbanareas powers particularly. for the preservation and provision of open space is of paramount importance.

69 FOOTNOTES

1. William H. Whyte Jr., Securing Open Space for Urban America: Conservation Easements, Technical Bulletin 36, (Washington: Urban Land Institute, 1959), p.11. 2. County Court of St. Louis County v. Griswold, 58 Mo. 175, 96 (1874). 3. Berman v. Parker, 348 N. S. 26, 75 S. Ct. 98 (1954). 4. State of New Jersey Constitution, Art. IV.,sec. 6, para. 3, 1947. 5. Shirley Adelson Siegel, The Law of Open Space, (New York: Regional Plan Association, 1960), pp. 3ff. 6. N.J.S.A., 40:61-1. 7. N.J.S.A., 40:61-22.6. 8. N.J.S.A., 40:61-22.21, 22.22 9. N.J.S.A., 40:12-14, and 40:61-19. 10. N.J.S.A., 40 !"37-33, 81, 95, 204 et. seq. These are supplemented by special statutes. 11. N.J.S.A., 13:1-18. 12. N.J.S.A., 13:8-22. 13. N.J.S.A., 54:5-117. 14. N.J.S.A., 13:2-6. 15. Whyte, op. cit., p. 44. 16. For open space easement condemnation at the County levelsee N.J.S.A. 40: 37-33 and 40: 37-101; at the Municipal level see N.J.S.A. 40: 61-1. 17. William H. Whyte, Jr., Open Space Action, Outdoor Recreation Resources Review Commission, Report 15, (Washington: U.S. Government Printing Office, 1962). p. 18. 18. Ibid., p. 88, in which it is stated that a Wisconsinscenic easement program cost an average of $20.66 per acre. 19. Ibid., p. 17. 20. Division of State and Regional Planning, The Feasibility of BuyingConservation Easements on Open Land, (Trenton: State of New Jersey, 1963),p. 34. 21. Ibid., p. 33. 22. Village of Euclid v. Ambler Realty Co., 272 U.S. 183 (1926). 23. William H. Whyte Jr., Cluster Development, (New York: AmericanConservation Association, 1964), pp. 16-18. 24. Zoning Digest, Vol. XV, No. 3, (Chicago: American Society of PlanningOfficials, March, 1963), p. 63. 25. Ibid., pp. 63-64. 26. Ibid.., p. 64. 27. William H. Whyte Jr., Cluster Development, (New York: American Conservation Association, 1964), p. 35. 28. Siegel, op. cit., p. 38. 29. Ibid., p. 38. 30. Zoning Digest, Vol. XV, No. 10, (Chicago: American Society of Planning Officals, November, 1963), p. 301. 31. Ibid., p. 301. 32. Division of State and Regional Planning,op. cit., p. 4. 33. Division of Water Policy and Supply, Flood Damage Alleviation in New Jersey, Water Resources Circular #3, (Trenton: State of New Jersey,1962), p. 1.

e 34. Ibid., p. 1. 35: Siegel, op. cit., p. 40. 36. William H. Whyte Jr., Securing Open Space for UrbanAmerica :Conservation Easements, Technical Bulletin 36, (Washington: Urban Land Institute,1959), p. 22. 37. Ann Louise Strong, Open Space in the Penjerdel Region: Now orNever, (Philadel- phia: Penjerdel, 1963), p. 39. 38. Siegel, op. cit., p. 16. 39. See the case of Midtown Properties, Inc. v. MadisonTownship, 78 N. J. Super. 471, 189 A. 2d. 226 (1961), where an attempt to compel the developer todonate land for a school under the subdivision ordinance washeld invalid. 40. N.J.S.A. 40:55-1.20. 41. Siegel, op. cit., p. 43. 42. See N.J.S.A. 54:4-1 and 54:4-23. 43. State of New Jersey Constitution, Art. VIII, Sec. III. 44. N.J.S.A. 54:4-3.3. 45. N.J.S.A. 13:8-23. 46. Siegel, op. cit., p. 49. 47. Ibid., p. 43. 48. Jan Krasnowiecki and C. N. Paul, "The Preservation of Open Spacein Metropoli- tan Areas," 110 University of Pennsylvania Law Review 179 (1961).Jan Krasno- wiecki and Ann Louise Strong, "Compensable Regulations: A Means forControl- ling Urban Growth Through the Retention of Open Space," Journal of theAmerican Institute of Planners, Vol. 29, no. 2, (May, 1963), see generally. 49. Strong, op. cit., p. 41. 50. Ibid., p. 44. 51. Ibid., p. 40.

This chapter will attempt to synthesize the MULTI-CENTERS material of the preceding chapters and develop a discussion of how openspace needs New Towns can be met by different levels of government Garden Cities and in different areas of the State inan New Towns along orderly long-range open space system. The Multi-Corridors advantage of such an orderly system is to provide the public with a completerange of fa- CONCENTRATION cilities of suitable quality and at theproper Corridor City locations, while at the same time maximizing Intensive Concentration both natural and fiscal resources. Ina state New Urban Centers so highly urbanized as New Jersey, another New Centers along Corridors important benefit of an orderly openspace system is the wise use of a limited amount of land. The following discussion will becon- The analysis of Development Alternatives cerned with how such a system might look will test the feasibility and/or desirability of depending upon various alternatives of future these basic patterns of landuse which have land use. been isolated for study purposes. It isn't likely As part of the Horizon Planning Concept, that any single Development Alternative will (discussed in the opening sections of thisre- constitute the "Horizon Plan ;" rather, various port), some Development Alternatives have elements selected from these Development been identified and delineated for testing and Alternatives will form the basis for the long- analysis.The purpose of this phase of the range goals and objectives toward which New Statewide Planning Program is to establisha Jerseywillendeavor to guideitsfuture series of long-range goals and objectives for growth and development. the future growth of the State. These Horizon One of the principal criteria employed in Alternatives can be grouped under the follow- defining New Jersey's planning "Horizon" ing headings: was the basic objective of retaining a minimum of 20 percent of the State in public open DISPERSAL space as defined in this present study. It ap- Unplanned Spread pears that this amount of public open space Planned Spread will minimally satisfy the needs of twenty mil- Multi-Corridor lion persons while preserving vitalnatural Leisure State resources.

72 Three basic Open Space Policy Concepts Open space in the following discussion re- can be identified and related tothe several fers to the publicly dedicated land held open Development Alternatives of the Statewide for conservation and/or recreational purposes Comprehensive Planning Program. Alterna- as defined in Chapter I of this report.It tives within the three basic Open Space Con- should be noted that there are many other cepts are set forth in the hope of providing a land uses of an open nature that, where ap- more comprehensive basis for the selection propriate, should be considered for inclusion of an over-all open space policy plan to serve as a part of the open space system but not in- as an input to the final Long-RangeState De- cluded in meeting the acreage resulting from velopment Plan. The following discussion of application of the standards.A land use the Open Space Concepts represents the total which is common today may be a scarce and/ implementation of each specific open space or unique natural resource in the future and, policy. The final Plan could, however, be a therefore, should be protected for the 20 desirable combination of these policies. million level of population.

,ot

._ rok

73 The three groups of Open Space Concepts are:

EXPEDIENCY (UNPLANNED) CONCEPT

NATURAL FEATURES CONCEPT

Elements: STREAM VALLEY PRESERVATION SLOPE PRESERVATION HIGHER ELEVATIONS PRESERVATION WOODLAND AND FOREST PRESERVATION AGRICULTURAL LAND PRESERVATION COASTLINE AND SALT MARSH PRESERVATION

DESIGN CONCEPT

Alternatives: CONCENTRIC RINGS WEDGES AND CHANNELS CONTAINERS RECREATIONAL CORES

74 Expediency (Unplanned) Concept This Concept reflects in some measure what has gone on in the past.Land has become public open space because it happened to be available, or someone made agift to a governmental unit. On other occasions, careful but limited planning was dotie for a localized area and suitable pieces of land were acquired for public open space. Many of the areas nowexist- ing were acquired according to the principles to be discussed relating to the NaturalFeatures Concept and the Design Concept, and many are key areas in any future open space system. In a few instances, public agencies are at a complete loss as to what to do with specific areas. The missing element has been the long range look at the total needs for anextensive geographical area. This Open Space Concept then, assumes that the existing situation will prevail,with each governmental unit assessing and planning for its own open space needs independentof what the long-range plans may be at the other governmental levels or even insurrounding units. Chances are a continuation of this policy is likely to result in inadequate facilitiesand greater deficits than exist today because of increased urban pressures on the land, duplica- tion of some facilities by different levels of government, and the complete omission of other needed facilities. Figure 7 EXPEDIENCY (UNPLANNED) CONCEPT

STATE OF NEVI JERSEY DEPARTMENT OF COMMUNITY AFFAIRS

DIVISION OF STATE AM RECIONAL PLANING

SOURCE: Division of State & Regional Planning 0 I I 3 4 It

1967 SCALE IN NILES

76 Natural Features Concept This concept is really more in the realm of a philosophy for preserving open space and natural areas than an open space system based u pon any specific patterns of development. The thesis is that lands for open space should be largely made up of areas which have a distinct natural character, the preservation of which would not only satisfy open space requirements, but would also serve the public interest in other capacities. Steep slopes and various other severe characteristics of land limit the rate and direction of urban growth until the demand for utilization becomes great enough to overcome the high costs of development.This high demand has occurred in the urban areas but not in the outlying sectors of the State where such natural open areas continue to exist. The urban areas should protect their natural features though they might be relatively small.In New Jars* it is likely that the Natural Features Concept would result in the creation of an open space system centered on the more outlying sectors of the State.Further, the open space system would be located on relatively "undevelopable land" land that would have limited value for more intensive forms of development using today's concept of the economics of development.

STREAM VALLEY PRESERVATIONThis element emphasizes the protectionof stream courses, flood plains and wetlands (fresh water).Water resources problems are becoming more critical as the population density of the State increases. Under the resources development principle of multi-purpose use, public water resources can be developed for various types of desirable recreation without endangering water quality. Adjacent land can be incorporated into a recreation system and enlarged at various locations. A combination of public ownership and regulation can protect a drainage area and control total environment. SLOPE PRESERVATIONAreas of excessive slope should be defined and delineated. There are many characteristics of sloping land that make development difficult in the buildingof roads, placing of utilities, construction of building foundations, and many others.In another respect, slopes often can be seen for miles standing above the level of the valleys. This is part of the State's scenic heritage and should be protected. HIGHER ELEVATIONS PRESERVATIONAll areas above a given elevation could form an open space pattern. These high lands in New Jersey are less able to supply the abundant ground water resources of the coastal plains and have, therefore, been slow to develop. Much of the higher lands are wooded with limited access. The high green vistas of the State should be protected for their visual beauty. WOODLAND AND FOREST PRESERVATIONThere are extensive areas of forest cover in New Jersey from farm wood lots to mountain tracts. While this area incorporates a great deal of the areas previously described, a recognition of the value of forests as such and management policies to preserve their wooded character would insure vast open space preservation. The State provides fire protection to much of the forests at this time.Cooperative forest management and strict regulations regarding cutting for development are required. AGRICULTURAL LAND PRESERVATIONHighly productive farmland covers much of New Jersey and much of it is scenic in nature. Public interest in farmland may be required to retain the best land. The preservation of this land could provide recreation and insure food production in the State when the demand for higher land uses makes farming prohibitive. Lost farmland is very difficult to replace, if not impossible. Detailed study is needed to determine where desirable agricultural areas exist and where they can be preserved. COASTLINE AND SALT MARSH PRESERVATIONUnfortunately, very little of the Atlantic coastline is left for preservation, but there are many acres of undeveloped Delaware Bay shore and salt marsh. This area along with the major rivers issuing from the pinelands would insure,if protected, open space and water for the development of south Jersey. The salt marshes along the coast, however, should be studied in terms of the natural functions they perform and policies should be established to protect those functions even though the land be privately owned. A Statewide open space system recognizing these various elements would generally provide for the recreation and open space needs of the population and is a legitimate pattern for consideration. To the extent that urban development in the past has not recognized these elements of an open space system, certain deficiencies become apparent.

77 Figure 8 NATURAL FEATURES CONCEPT (COMPOSITE OF ELEMENTS)

STATE OF NEW JERSEY DEPARTMENT OF COMMUNITY AFFAIRS

DIVISION OF STATE AND REGIONAL PLANNING

0 I2 3 4 SOURCE: Division of State d Regional Planning 1967 SCALC IM 1101.20

, DESIGN CONCEPT This concept is concerned basically with the use of open space to shapeurban development patterns, and several alternative uses of this concept are suggested. While naturalfeatures obviously must play an important role in shaping the resulting open space patterns, this role is asecondary one. A system of this type not only provides guides to urban development andbreaks in the urban pattern, but it further provides facilities in relation to where the people are located.

CONCENTRIC RINGS ALTERNATIVEThe rings of open space proposed under thisDesign Alternative become more extensive both in their linear continuity and in theirwidth as the distance from the urban centers increases. While the responsibility for acquiring anddevelop- ing the larger outlying rings would lie primarily with the higher levels of government,the high cost of land in the inlying areas suggests the need for grant-in-aidand other assistance programs to underwrite the acquisition costs of the innermostrings. Since development tends to expand outward from built-up urban areas in a linearfashion along major lines of transportation, this alternative would provide a pattern of open space which would intercept and separate the spread of urban development. This would havetwo major effects.First, it would provide more direct access to public open space for large numbers of people, especially as public transportation facilities are developed in conjunctionwith the further concentration of population in urban corridors. Second, in the more outlying areas of the State, the broader rings of open space would provide breaks or barriers to theoutward flow of development, thereby limiting the spread of low intensity development andaffording a more desirable overall land use pattern. Figure 9 DESIGM CONCEPT CONCENTRIC RINGS

STATE OF NEW JERSEY DEPARTMENT OF COMMUNITY AFFAIRS

DIVISION OF STATE AND REGIONAL PLANNING

SOURCE: Division of State it Regional Planning 0254 12 I.

1967 11441.! 1M MIA*

c. be applied in sev- WEDGES AND CHANNELSALTERNATIVEThis Design Alternative can eral ways. The first application is tocut through urban areas to bring open spaceinto the core. This would produce aspoke-like effect radiating from theurban center. One of the most generally applied methods is toutilize the major highways or freeways asthe framework for such a system, with open spacefacilities located along both sides of thehighways. The width of such open space facilitiesmight vary from a few hundred feetto provide a screen between the highwayand adjacent development to a mile or moreto accommodate also be utilized more intense recreationalactivities.Where practical, stream courses may in combination with or independentfrom freeway development. Generally,this application is used to correct the deficiency of open spacein existing urban development. A second application of the Wedgesand Channels Alternative is an attempt toguide development in the directions deemed logicaland desirable. This approach couldbe applied most successfully in suburban or rural areaswhere the pressures for developmenthave been small or non-existent, but where growth,if allowed to proceed unchecked, wouldbe likely to spread. Through such advance planning,development could be channeled or guidedinto the most appropriate areas, and outstandinglocal features such as importantagricultural lands, scenic areas, natural recreation areas,major highway interchanges, etc., couldbe protected for the use and enjoyment of futuregenerations. On a statewide scale, such aconcept could be applied to prevent the metropolitan areasof Philadelphia -and New York fromspreading across the State until they merge, aswell as providing major open spacebetween Philadelphia and the coastal resorts, and New Yorkand the mountain resorts of northwestNew Jersey. Using a different variation, this concept couldbe utilized to reinforce the "corridor"between New York and Philadelphia, to encourageit to grow in intensity and to strengthenit by limiting the width of its growth. From an open spacepoint-of-view, this approach would require wide bands of open space on either sideof the delimited corridor. Some ofthis open land could conceivably be protected through lessthan fee acquisitions and possibly the outerfringes could include low density development. This Alternative could conceivably take a varietyof forms. Whereas the previousDesign Alternative of Concentric Rings cuts across theoutward expansion of urban development,the Wedges and Channels Alternative provides an open spacesystem which would parallel thedi- rection of development. Such a pattern would moreclearly define these developmentcorri- dors and at the same time would serve to limit thewidth of such corridors. Since thewedges of open space would be most effective in closeproximity to existing urban development,they would afford a most desirable system to meet thepressing open space demands of urban residents.

81 Figure 10

DESIGN CONCEPT N, WEDGES & CHANNELS

44.

:0 \, _ \ / .,N. / // N.\ "MN ..--' \\ N,

STATE OF NEW JERSEY DEPARTMENT OF COMMUNITY AFFAIRS

DIVISION OF STATE AND REGIONAL PLANNING

SOU RC E: Di vi :ion of State tt Regional PI anning 0 1 2 3 4 12 IS

1967 ICALZ IN MILES

82 CONTAINERS ALTERNATIVEThe Design Alternativesdiscussed to this point have suggested that open space should be used primarily to protectnatural areas, to cut through urban development, or to channel urban growth. The ContainerAlternative suggests that open space could also be applied to limit urban growth to apredetermined size by surrounding a developing area with a wide band of open space. This is not a new concept.Around the turn of the century in England, the concept of "new towns" or"garden cities" was developed, whereby each new town was a complete, relatively self-sufficient communitysurrounded by open countryside or a "greenbelt" whichserved the recreational and agricultural needs of the people as well as limiting further outward development. Since thattime, the concept of new towns has been modified to meet changing social conditions, but thevalidity of balanced land use has become stronger. This has been especially true in most recent yearsbecause of the sprawling low density development which has occurred around old urban centersand the rapidly increasing population demanding more facilities.Using open space as a container of development could work if used to surround existing urban centers or if usedin defining boundaries of new centers of development. The statewide application of the containertheory would conceivably preserve more than 20 percent of the land area forpublic open space. Under this Design Alternative, a significant modification in open spaceacquisition poli- des would be required. Major land holdings currently designed to meetrecreational or conservation needs would continue to function in this capacity. However, theemphasis on new acquisitions would have to be shifted to smaller areas capable of serving as anintegral part of a "greenbelt." This Alternative would affordthe maximum in user-oriented facilities, since the open space system would be developed in closeproximity to the urban areas.

83 **. Figure 11 'N DESIGN CONCEPT *. ..S... CONTAINERS /.\ . / ,i . / \ .% . / \ \ '.1 I.

STATE OF NEW JERSEY DEPARTMENT OF COMMUNITY AFFAIRS

DIVISION OF STATE AND REGIONAL PLANNING

SOURCE: Division of State & Regional Planning 0 1 2 3 4 12 I.

1967 SCALE IN MILES RECREATIONAL CORES ALTERNATIVE--In the Recreational Cores Alternative open space would serve as the focal point for urban development. Central Park in New York City is an excellent example of this, in that its location size and configuration were chosen in terms of serving an urban area, and did not relate specifically to water or other natural features. The possibility of this approach being feasible has been brought about by the growing prospects of automation whereby an office worker might work at home and relay his completed works to a central office or control center. This would permit more people to locate their residences closer to choice areas, particularly recreational and resort areas.Even without such a radical de- parture from the current norm, the increasing amount of leisure time could provide the impetus for such an alternative. Using the theory, emphasis would be placed upon the outstanding recreational and resort areas of the State.This, in turn, suggests that new urban growth will center around or adjacent to these facilities. This alternative would be particularly appropriate in connection with the Multi-Corridors Development Alternative of the Horizon Planning Concept, since this pattern of land use features "pockets" of open space formed by development corridors.This alternative could also be successfully applied to the New Urban Centers Development Alternative.

85 Figure 12 DESIGN CONCEPT RECREATION CORES

STATE OF NEW JERSEY DEPARTMENT OF COMMUNITY AFFAIRS

DIVISION OF STATE AND REGIONAL PLANNING

SOURCE: Division of State & Regional Planning 0 1 2 3 4 12 If

1967 SCALE IN NILES Open Space Principles Applicable in this report and to provide recommendations To Future Statewide Planning with regard to the long-range planning for open space in New Jersey. It should be evident that it is unlikely that Although the selection of an open space sys- any one Open Space Concept could be applied tem appropriate to serve the needs of the State's uniformly to the State of New Jersey.The Horizon population must await further delib- open space and recreational needs of the vari- erations by the Open Space subcommittee of the ous sectionsof the State exhibit considerable Governor's Interdepartmental Committee for differences at present and are likely to con- State Planning, there are a number of princi- tinue to do so in the future.The physio- ples which can be applied to the more immedi- graphic features of the northern part of the ate planning of open space. These principles State differ significantly from those of the stem from those elements of the various Open southern half, suggesting the need for differ- Space Concepts which can be identified as being ing solutions to the problems of open space held in common. In the next chapter, an effort planning in the future. A comprehensive will be made to apply these principles (in part) policy concerning the State's natural resources to the formulation of a comprehensive open would indicate that a variety of approaches be space system for a ten million level of popula- applied to insure the adequate protection and tion. At such time as policy decisions are made preservation of these resources. It may also be on corridor development, new towns develop- anticipated that the future patterns of development, or some combination thereof, then it may ment in different parts of the State will require be possible to concentrate the emphasis of an a flexibility in the planning for open space open space program on its role as a shaper of which could not be provided by any one single development patterns. concept. Therefore, just as the Horizon Plan is likely to be a combination of the best elements of Open Space Principles several of the Development Alternatives, a long- range open space system to meet the needs of 1.Recreational needs and the opportunity the State's Horizon population of 20 million for a wide range of recreational experiences must also combine the positive elements of each should be met by sites which are convenient to of the previously discussed Open Space Con- potential users and possess natural character- cepts and apply them to the parts of the State istics appropriate to the intended functions. where it will be maximized. Convenience here is taken more broadly. De- The selection of such a long-range open space pending on the type of recreation facilities and system must be based upon an over-all set of the nature of the site, convenience can mean policies as to the role of government in guiding anything from a five minute walk to a neigh- and controlling future growth and develop- borhood park to an hour and a half drive to a ment. It is anticipated that as a part of the site such as the Delaware Water Gap National Horizon Planning process the Governor's Inter- Recreation Area project in the northwest por- departmental Committee for State Planning tion of the State. will assist in the formulation of a statement of The key to convenience is the recreation policies as to the role of State government in function performed by the area. A policy of this regard. In this connection, it will be the obtaining the most acreage for the fewest dol- task of the Open Space Subcommittee of the lars has led in the past to the acquisition of Governor's Interdepartmental Committee for large areas of vacant land at considerable dis- State Planning to study the materials contained

87 tances from the major concentrations of popu- government, be dependent on this to happen. lation in the State which they should serve, and It is an obligation to the citizens of New Jersey often having questionable potential for inten- to insure that their recreation needs will be sive recreation due to their inaccessibility. Al- met now and in the future. though inlying sites may be considerably more costly, 10 acres of open space which is accessi- In the previously discussed Open Space Con- ble and which offers the potential for frequent cepts, the suggestion is made that inlying sites recreational use by large numbers of people be given the highest priority for acquisition. may more adequately meet the open space needs Special emphasis should be placed on sites in of our population than 100 acres located at those areas where rapidly rising land costs may some distance from urban areas or 1000 acres prohibit acquisition in the near future. Each of remote and inaccessible open space which level of government must assume the respon- can provide recreational experiences to rela- sibility for reserving its share of the total open tively few people. space system sufficiently in advance of development to avoid the substitution of inferior sites. It is not necessary to go into a long explana- However, this is rot to say that large and dis- tion of the increasing demand for outdoor rec- tant lands should not be acquired when avail- reation areas so let it suffice to say that the 10 ble. It is simply a shift in emphasis to provide million plan is, in large measure, aimed at open space in close proximity to the people meeting the recreation desires of New Jersey's where it is more urgently needed. As time goes concentrated population. The plan for 20 mil- on, the distant parcels will become closer to new lion population will give more emphasis to populations. shaping development as well as providingrecre- ation areas and areas of natural value. 2.The concept of multi-purpose use should receive prime consideration. Out of their incomes, and of their own choice, people choose to spend large amounts of money, The growing scarcity of land in New Jersey mental and physical energy, and time from due to rapid urbanization makes it imperative their limited leisure in actually partaking of that multiple land use practices be applied recreation. These actions are adequate proof of wherever possible.Multi-purpose recreation the importance that people attach to recreation. use of land is good economics whether it be ap- They are also willing to pay taxes for public plied in the densely populated areas or farther activities in the recreation field, and demand out in the country. While multiple purpose areas from government at all levels that recreation are certainly of benefit to the public and the opportunities be provided. owners or operators, it should always be re- All these activities membered that most consefvation areas have a of people, on the scale which theyare actually found, are the most convincing possible evi- principal purpose or intent and that this pur- dence of the importance which most people pose should never be sacrificed in an effort to give to recreation.' maximize the benefits of the secondary purpose. For example, fish and game lands not used This demand for recreation is particularly as breeding areas can easily lend themselves to relevant in New Jersey considering the density multi-purpose use becauce hunting is generally and concentration ofour metropolitan areas. restricted to the cooler months of the year when Although there is hope that commercialrec- outdoor recreational activities are no longer en- reation in the private sector ofour economy will gaged in by the majority of the people. Often react to this need, we can not,as a responsible these sites are wooded, in areas of varied topog-

88 raphy, and/or contain bodies of water or have the industrial and agricultural demand for water courses running through them. The pos- water the total need is monumental. Popula- sibilities for recreation on these sites are nu- tion growth in New Jersey, a state which still merous; however, these lands have in the past has a substantial amount of undeveloped land, been precluded from any use other than hunt- will find ever increasing needs for water in the ing and fishing because they have been pur- future. chased with dedicated funds from license fees. An example of the concern the State has for The protection of flood plains from urban en- its future water supply was the timey pur- croachment prevents possible future damage and chase of the Wharton Tract in the Pine lands of injury to structures, life and limb which would southern New Jersey. Beneath this land there otherwise have been located in these areas. In is an immense supply which has a great po- addition, these areas can often be used for rec- tential provided that its recharging processes reational purposes and lend themselves to hik- are not disturbed. However, we must also be ing and riding trails because of their long sinu- aware of the importance of all potentialwater ous form. In many sections of the country, wet- sources whether they be large like that under lands located within the flood plain serve as re- the Wharton Tract or moderate in size such as tention basins to control the amount of poten- Ramapo in north Jersey. tial runoff from rainfall and supplement the Areas where potential sites exist and are en- recharge of local well systems. dangered by encroaching urban development 3.All significant reservoir sites should be should be given highest priority. acquired outright or reserved through the ac- While some day we may get our water from quisition of development rights. the sea we can not assume that this will take The assurance of an adequate supply of water place in the immediate future, and ther,fur, res- will be a key factor in the orderly growth and ervoirs have a substantial recreational value. development of New Jersey. Inventory studies Sites should be acquired in fee simple or re- have shown that there are sufficient sites in the served through the acquisition of development northern portion of the State to supply the rights or the use of tax policy measures. Those water needs of this area in the future. How- not in immediate need could be used for out- ever, these potential sites are rapidly being door recreation purposes until such time as encroached upon by the spread of urban de- their development is needed. Multi-purpose use velopment. Such sites should be given the high- should also be applied to certain existing sites. est priority for protection. After development, a management practice of Preserving significant reservoirsites has multi-purpose use should continue to serve the been heightened in importance with the advent highest recreation potential commensurate with of the present water crisis in the Northeast. the prime use intended. In the Department of Conservation and Eco- The activities generated by a reservoir are nomic Development's 1965 monograph, New numerous including the most directly related Jersey's Water Resources, page 24, map 3 pro- such as boating, fishing, and swimmingas vides ample evidence of what happens when well as those less directly related such as camp- prudent and responsible measures are not taken ing, picnicking, hiking, and scenic attractions to protect waterwe lose irreplaceable reser- of all types. voir sites. Water is the most important natural re- 4.Every attempt should be made to re-es- source for the processes of living. Coupled with tablish the balance of natural processes through

.7,, the proper design and location of open space Steep lands should be protected against de- facilities. velopment since development removes forest Here we are concerned with the degree to cover and contributes to erosion. which natural processes perform work for man Forests and woodlands are the natural vege- without his intervention and the protection tative cover for many regions. They exert an which is afforded by leaving certain sub-pro- ameliorative effect upon the water system, cesses in their natural state without develop- diminishing erosion, sedimentation, flood and ment. drought. Their scenic role is apparent as is that Water purification occurs best in natural of providing a habitat for game. Forests too, water bodies inhabited by the normal acquatic have a high recreation potential'.In addition organisms. Relief of air pollution can only oc- the forest is a self-perpetuating landscape, a cur as a natural process if, adjacent to urban resource in which the accrual of timber inven- areas, there are open areas free of industry or tory is continuous. Thus, forests and marsh- concentrateddevelopment,overwhichair lands should be utilized for watersheds, air- passes to replace the concentration of polluted sheds, forestry and recreation.2 air over the city. Natural areas can perform "In natural communities ecologists observe a this "air shed" function. certain harmony among the various members an ecological balance.If this equilibrium is We must be aware of the micro-climate seriouslydisturbed,thereresultsastress amelioration provided by vegetation, water which, if prolonged, may threaten some ele- bodies and forests ; the normal watershed as a ments of the community and, in turn, the sur- water storage system with flow equalizing com- vival of the whole. This principle is also ap- ponents ; and the phenomenon that surface and plicable to man-made communities. Urban so- sub-surface water are usually connected. ciety cannot flourish without the support and Other subjects for concern are flood control, balance of living things other than man. The erosion control, topsoil accumulation and wild- steadily growing density of human settlement life inventory. within metropolitan areas, the unrelieved development known as urban sprawl which results Development policies should be aware of the from our excessive hunger for land, is a viola- role of marshes for water storage areas critical tion of this principle which may have serious for flood prevention and for aquifer recharge. consequences."3 They are a habitat for a wide range of crea- tures, the spawning grounds for fish, and stages "It is in sheer ignorance that we do not treat on the flyways of migratory birds. crucial natural phenomena with the same re- Flood plains, when developed irresponsibly, spect as we do such mechanical ones as cars and have caused much distress to people and dam- television sets. The late Aldo Leopold, one of age to property. Flooding increases when in- the nation's leading conservationists, expressed creased development reduces absorption. this point succinctly : 'We know that engines and governments are organisms ; that tamper- Acquifers should be protected because of ing with a part may affect the whole. We do their water-bearing potential.No biological not yet know that this is true of soils and water. process can dispense with the use of water. Thus men too wise to tolerate hasty tinkering Aquifer recharge areas should be protected for with our political constitution accept without the same reasons as aquifers. qualm the most radical amendment to our biotic constitution.' "4

90 Closely related to the previous principles, the urban areas, however, their potential for boat- proper design and location of open spacefa- ing, fishing, water skiing, etc. are often des- cilities can contribute to the restoration of a troyed due to pollution which occurs when balance in natural processes which may have adjacent land uses are not adequately con- been upset by urban development. The proper trolled. For health and appearance reasons, as recharge of acquifer areas should be aided, well as for recreational uses, waterways (par- where possible, by the design of a comprehen- ticularly those in urban centers) should be sive open space system. This is of particular improved to a reasonable level. importance in the southern half of the State. This might be accomplished through the de- In almost every urban area there are nu- velopment of impoundment ponds as an inte- merous vacant lots and irregularly shaped and gral part of the total open space system. Such unbuildable parcels. An inventory and review facilities would serve to augment the natural of such areas might provide a key to developing recharge of aquifers, while at the same time a neighborhood system of open space. It is also providing recreational areas developed under possible that small areas could be coordinated the multi-purpose use concept. with local renewal projects the result being that land could be set aside for recreational pur- Areas of important fishery and/or wildlife poses in those parts of the city where the needs resources should be retained in a natural are most acute. The prospects for creating open managed state where possible, and new areas space in conjunction with urban renewal are should be created if existing ones are displaced. innumerable, ranging from open green areas Closely related to these two factors is the prob- around new structures to the dedication of lem of the pollution of certain coastal areas. larger parcels to serve as part of the municipal 5.The retention, design, and development or regional park system.In some areas, re- of breaks in the urban pattern, should be en- newal techniques have been used effectively to couraged. open up vistas or to serve as connectors between buildings or areas of historic significance. Per- Obtaining adequate lands for open space and haps the best example of this is the Indepen- recreational purposes in urban areas is an ex- dence Mall and Society Hill areas of Philadel- tremely perplexing problem and promises to in- phia. Other possibilities include the provision crease in its complexity as the demand for land of green areas in conjunction with underground increases. Given a limited amount of land area parking facilities and/or in connection with and untold possibilities for development of that major shopping or business districts.The land, it is important that urban land use be Golden Triangle and Mellon Square in the City prudently guided. The possibilities of provid- of Pittsburgh provide excellent examples of the ing open space in urban areas are many, limited former technique, while the central business largely by the designers' ingenuity and by legal district of Kalamazoo, Michigan illustrates the restrictions. One of the classic methods is to application of the latter technique. utilize school playground areas to the maximum for community-wide use. Here the prejudice In extremely high density areas, it is quite between different agencies often is a stumbling possible that rooftops could be used as outdoor block and one which must be overcome. A sec- cafes, to serve as promenades between build- ond method too seldom used is to utilize strips ings, or to provide park settings.Buildings of land along freeways and stream courses. should be adequately set back from the street Existing waterways are perhaps the biggest providing breathing space in the teeming city. single potential source of recreation in many To date only a few attempts have been made in

91 this direction ; however, the potential use of Since many areas which are not entirely such areas has been virtually unexplored. In suitable for urban development are built upon New Jersey, it has been suggested that such an anyway, open space can play an important role approach be applied in connection with the de- in the guiding and shaping of urban develop- velopment of the proposed Liberty Park project ment. Aside from its role as a break in the along the Jersey City waterfront. Liberty Park denseness of the urban pattern, open space can will be the first major State recreational facil- serve to help establish an orderly and rational ity to be developed within the more heavilyur- pattern for urban development. banized sector of the State. -The site of this proposed park is the railroad yards along the The northeast section of the State is (for all waterfront behind the Statue of Liberty. The intents and purposes) totally developed, there- projected proposals forthissitewill un- fore, open space would (in this instance) not doubtedly have to recognize needs for special- be a guide or a shaper of development, but ized waterfront facilities. Making the bestuse would offer the amenities of open land within of a concentrated urban development situation and near this dense settlement. may dictate the multiple-use of structures from As we move out of this area the shaping role both commerce and recreation suchas using an of open space becomes more important. It is extensive roof area for recreation parking and not healthy in any sense for development to a recreation-overlook facility. take place in a non-rational, haphazardman- Neighborhood parks(when properlyde- ner. Open space can be used as a major tool in signed, located, and of sufficient size) serve as preventing this from occurring. the ultimate in multi-purpose use. These sites Judicious location of open spacecan be a are important because they serve the everyday major factor in creating pleasing aesthetics in needs of every group in the community from the midst of the dense development, whether it the toddler to the retired elderly.In many be on the neighborhood scaleor the county and areas, the neighborhood school and playground state levels. Good open space design andaes- serve as the heart of the neighborhood park. thetic considerations tend to support, if not Where the school's physical plant has been in- raise, property values. corporated into the park and recreation system, the use of the area is extended into the evening Because of the scarcity of land foropen space hours and offers the potential of a year-round within our built-up areas it is desirable toex- program. plore any means to introducesome open space for the enjoyment of the population whether it Perhaps the key to providing an adequate be a rooftop garden or a large county park. open space system in urban areas, or anywhere else, is the need to acquaint the people on how Some of the types of open space to be used in to develop and use the facilities. This educa- guiding urban growth might include green tional need reaches in all directions from the belts to delimit the extent of urban development general public to the areas of business and and to delimit and define future residential industry. While the public must be taught the areas. Broad green areas adjacent to future value and potential of open space, the business parkways in outlying suburban areas might and commercial interests must be shown that also be establishld.In addition, flood plain aesthetic treatment of open space adjacent to areas and stream conservancy areas could be shops, shopping centers, and business isfi- incorporated into an open space program. Pro- nancially a sound iiivestment. hibiting development close to airport facilities

92 will protect both parties. Prc4ection of agri- demand sewer and water lines, garbage col- cultural land from total loss by urban encroach- lection, police protection, schools, and railroad ment and landspeculationisaserious sidings. It does not generate volumes of traf- problem.° fic that demand more and more roads. Here, man and nature work togetherto mutual ad- The area of agricultural land policy needs vantage, instead of upsetting one another.T more detailed study. There should by anesti- mation of how much land should remain in 7.Wherever possible, natural scenic re- agriculture at the 20 million level of population sources should be protected by open space plan- and the very important question of rate of land ning and related to the emerging patterns of use change. The current highest andbest use urban development. of farm land may be for development but in the The protection of scenic features was a ma- next 30 years the farm land may be more valu- jor criteria in the formulation of the various able for food production and open space. Open Space Concepts.It will be necessary With our large amounts of open space in New in the future to develop new techniques for the Jersey, we have been slow to adopt measures preservation of roadside scenery and to insure that older, more densely populated countries that a representative sample of all unique nat- than ours have been employing for decades or ural features, and historical or cultural sites longer. England, Sweden and most of the coun- should be preserved for education and enlight- tries in continental Europe prevent the total enment of future generations. obliteration of their countryside by city sprawl Preservation of roadside scenery becomes through the maintenance of greenbelts and more crucial when we consider the fact thatby other low density patterns, land kept in its the year 2000 only swimming will have a higher natural state around or adjacent to the perime- participation than driving for pleasure and this ters of their congested metropolitan areas and by only a small margin.°Existing historic between suburban communities.° buildings and sites should be incorporated into 6.In the broader urban region, public and the open space system and deteriorated or de- semi-public low intensity land uses should be stroyed buildings and facilities could be restored retained (through public subsidy if necessary) or recreated to exemplify all plIases of the to maximize their contribution to the over-all State's past history and development. Certain pattern of open space and development. unique urban complexes typical of different The possibility of applying tax concessions periods of the State's development should be to golf courses, summer camps and camp identified and attempts should be made to pre- grounds, and to other semi-public recreational serve their aesthetic, cultural, and historic facilities should be investigated. The location character. Batsto Village is a good example of of air facilities should be coordinated with open this policy. A number of picturesque rural cen- space plans and their approaches should be pro- ters should also be preserved in their present tected from urban encroachment. Certain ma- state or restored to former stages of develop- jor agricultural areas should be included in fu- ment. ture comprehensive open space planning to as- All unique geological, botanical, and ornithol- sure their continued use as prime agricultural ogical sites should be preserved in their natural regions, to forestall the premature abandon- state and acquired if necessary. Wherever pos- ment of farming, and to contribute to the over- sible, access to and utilization of such natural all aesthetic patterns of open space. Agricul- resources should be incorporated into the open tural land does not pollute the air, nor does it space design.

93 8. A system of interrelated hiking, canoe- or private enterprise. However, in the over- ing, bicycling and riding trails should be de- all view indications are that government has veloped on a regional basis to allow recreational enlarged its area of involvement more so than exploration within and between the various re- the private sector. Possibly the single most im- gions of the State. portant factor which has brought about this Such a system of trails could be applied in change is the increasing urbanization and the varying degrees to each of the previously dis- resultant competition for land. The demise of cussed Open Space Concepts. Roadside parks private golf courses in urban areas and the in- should be developed where major highways crease in the number of public courses is one cross major open space areas as in the Con- example of the changing situation. centric Rings alternative or where highway In many areas of the country, private enter- systems parallel open space holdings as in the prise with large land holdings (such as the case of the Wedges and Channels alternative. lumber industry) are engaging in the develop- 9.Further planning should be encouraged ment of tourist trade activities in their areas. at all levels to more clearly define the goals and Generally,however, private enterprisewill objectives pertaining to the character and in- serve as an important auxiliary to a major tensity of urban development within the var- governmentally owned and operated facilily. ious regions of the State. For instance, a lake or reservoir which is governmentally owned may have numerous con- This, of course, is related directly to the Hor- cessions for marine facilities, lodging, or other izon Planning Concept.The interrelation of related services. The access roads leading to the basic patterns of development should be the the reservoir site might have private recrea- subject of public policy decisions, and the role tional facilities located along them in an at- of open space and other land uses in the pat- tempt to capture the trade of tourists and vaca- tern of development should be carefully defined tioners coming to the site. In addition to this by the respective levels of government. auxiliary function, private recreation areas have been developed due to the attractions 10.The role of the private sector and of commercial recreational facilitiesshould be created by the large amounts of public money more clearly defined. spent on recreation. As more people look for different ways to spend their leisure time, new Although the majority of this report has commercial recreationalactivitieswillcon- been directed toward the responsibilities of tinue to grow. Generally, these private facili- government in meeting recreational needs, it ties are of a higher character and quality than should be pointed out that there are numerous comparable public facilities, since private fa- aspects of recreation which are and should be cilities cater to people who expect a little quality handled by private and commercial interests. and can afford to pay for it. Private hunting In addition, there are areas in which commer- and fishing areas are a typical example of more cial interests should not and probably will not costly facilities. become involved. Between these two extremes are numerous activities which are engaged in, In short, private recreational facilities meet to greater or lesser degrees, by both private in- a very real need in our modern society and, for terests and government. The "recreational rev- this reason alone, they are valuable.In ad- olution" has created a situation of flux for many dition, private facilities augment the supply, activities which have normally been considered and (in certain areas) reduce the need for pub- the prime responsibility of either government lic involvement. Finally, certain facilities provided by private enterprise are too costly and

.47.k cater to too few to justify publicexpenditures. open space to guide acquisitionsto serve a ten Having thus defined the variousOpen Space million level of population.This system will Concepts under the HorizonPlanning Concept be guided by the principlesset forth in thepre- and having outlined thosegeneral principles vious section and will bedesigned to be adapta- which are applicable to theseConcepts, it is ble to any of the OpenSpace Concepts which now possible to set forth a suggested system of may be developed for the Horizon levelof population, ie., 20 millionpersons.

FOOTNOTES

1. Marion Clawson, The Dynamicsof Park Demand, Bulletin No.94, (New York: Re- gional Plan Association, 1960),p. 7. 2. Donald C. Wagner, "Open Spaceand the Natural Process," Horizonsfor Modern Governments,Vol. XIII, No. 2 (AssociatedInstitutes of Government of Pennsyl- vania Universities, February,1965), pp. 1ff. 3. William A. Niering, Nature inthe Metropolis, (New York: RegionalPlan Associa- tion, 1960),p. 7. 4.Aid., p. 7. 5. John B. Moore, "WantedMoreOpen Space in Growing Areas," AmericanCity, Vol. 71, (January, 1956),pp. 94-95. 6. Ann Louise Strong, OpenSpace in the Penjerdel Regions Nowor Never, (Philadel- phia: Penjerdel, 1963),pp. 1817. 7. Donald Rippey, Ways andMeans of Preserving Prime AgriculturalLand in an Exploding Urban Setting, Withspecial Reference to the State ofNew Jersey, a planning report, Middlesex CountyPlanning Board, June, 1966,p. 2. 8.Outdoor Recreation ResourcesReview Commission, Outdoor Recreationfor Ameri- ca, (Washington: U.S. Government PrintingOffice, January, 1962),p. 220.

95 THE OPEN SPACE POLICY PLAN FOR THE TEN MILLION POPULATION LEVEL

'44 "vv. ,-rm,-.1*.ver,71,1"11,7,..7.41MC. The purpose of the Statewide Open Space black the developed land in 1960. The shaded Policy Plan is to delineate generalized open area indicates the projected areas of intensive space sites that will meet quantitatively the urban development by 1985-90. This shaded open space standards for 10 million persons in area is now experiencing the greatest develop- the State of New Jersey and provide some lead ment pressures and because of these pressures in advance of development pressures. Present planning problems are intensified, but this area population estimates indicate that this 10 mil- also has the potential to become one of the most lion level will be reached between 1985 and desirable places to live and work in the East. 1990. Every effort should be made (starting now) to This Plan is part of a continuing State ef- ensure a desirable future environment, partly fort to supply publicly dedicated open space. achieved and enhanced by open space. The efforts of Green Acres, which operates as The cost of open space, transportation, water an acquisition agency for State agencies and resources, communications, and services well provides assistance to local governments, and planned and adequatelyprovidedwillbe the approval of the Delaware Water Gap Na- balanced many times by attracting desirable tionalRecreationArea(DWGNRA) have and valuable development and maintaining high brought total open space acreages close to the land values for many years. The cost of cor- megalopolitan and state standards for the 1965 recting the land use errors in the future will be estimated population of 6,800,000. Even though tremendous. This Critical Area of New Jersey the National Park Service and Green Acres are is certain to develop rapidly either causing fu- acquiring much acreage, they do not solve the ture serious problems, or (if well planned) equally important problem of additional open enhancing the State's growth. space for the currently densely populated urban areas. The areas of New Jersey that are de- While the Ten Million Open Space Policy Plan veloping at this time, and may be fully devel- will show ways to apply open space acquisition oped by 1985-90, should be shaped and protected to the Critical Area, it will also show in prin- by an enlightened open space plan that will ciple that other less critical and unique areas meet the aforestated principles of open space of the State should not be neglected. The small and save the new areas from the monotony of sections of the rural counties that are showing unending sprawl. an increase in residential land use should begin to apply standards that will reserve adequate This developing suburbia is the Critical land for future open space and supply the neces- Area of New Jersey. The map below is a gen- sary parks for local use as well as shaping fu- eralized map of this Critical Area showing in ture development into a desirable pattern.

96 Figur* 13 OPEN SPACE ACQUISITION AREA UNDER DEVELOPMENT PRESSURE f4 4, //,. (CRITICAL AREA) 4' S1 I 4,1( N& 41

DEVELOPING AREA WITH CRITICAL OPEN SPACE NEED

DEVELOPED LAND AREA IN NEW JERSEY 1960

STATE OF NEW JERSEY DEPARTMENT OF COMMUNITY AFFAIRS SOURCE, Conlon...15y Dfri.i.n el Sw.INgIonI Plmnint 1%7 DIVISION OF STATE AND REGIONAL PLANNING

01 234 12

SCALE IN MILES

97 There arereasons to hope that counties antici- The effort at the State level in the urban pating future development willplan for future areas has shown some results.Liberty State public land needs by obtainingpublic open Park (proposed in very intensively developed space at todays lower prices in anticipation of Jersey City) will add open space of regional future demands. The Ten MillionPlan will as- significance, and equally important, active rec- sume that the large major land holdings in the reation areas will be developed for young and rural areas (not yet "underthe gun" of de- old. In addition, a new point of access to his- velopment) are adequate untilthe plan for toric sites of national importance will be pro- twenty million people is available.The dollar vided. Other State level facilities which have for open space maygo more than twice as far been pvrchased or are active projects 'nclude in acquiring a quantity of land in ruralNew Great Piece Meadows, partly in Essex Uounty, Jersey, but that quantity of rural landat this and extensions of Palisades Interstate Park in time will be of little additional valueto the Bergen County.The development of other overwhelming urban majority of the popula- areas through urban renewal programs can tion. The rural county, which has littleor no utilize the principles of openspace and recrea- public county open space, should take advantage tion in the urban counties although it is much of the relatively low price of open land anduse more difficult to correct the problem after un- this ownership to guide future development. desirable land use patterns have been established. Counties that are fully developed know the costs of trying to redevelopan area for open space. Once the land is changed from an open character to a more intensiveuse a great deal of money and effort is required afteryears of abuse and degeneration torenew the area and provide the amenities that should have been part of the original development. This Plan makes a limited number of recommendations in terms of large land areas for the presently urbanized areas of Hudson, Essex, Union, eastern Passaic, and Bergen Counties. County and city planners have been working on the problems of this area and recognize the need for open space as part of the renewal programs that the Federal and State governments are supporting. The cost and effort that is now being expended in these urban countiescan serve as a warning to the urbanizing counties. While there are examples of excellent park planning, using the county standard of 8 acres/ 1000 population for the five named counties we stillhave an area deficit of approximately 12,000 acres based on the 1960 populations of the counties.

98 The Plan people to see to it that this resource is readily available now and in the future. The most di- An open space pattern to serve the 10 million rect method to accomplish this would be out- level of population in New Jersey has been right purchase of those sites that have high po- selected with emphasis on the generalized "Crit- tential for use as reservoirs. ical Area." The selected areas are designed to make open space accessible to every resident Probable increases in the present uses of within 30 minutes or less driving time. The water will be compounded by expanded utiliza- open space pattern will assist in creating desir- tion of such items as office and home air con- able breaks in the urban pattern of growth and ditioning, construction of public and private is designed to connect existing isolated open swimming pool facilities, etc. There will un- space areas. This will afford definable limits doubtedly also be created new uses for water as to urban growth. technology continues to develop.Hopefully, better processes will be developed for the re-use Included as open space areas are, schools, of water, and the need for good quality water hospitals, institutions, as well as parks and rec- for dilution of wastes discharged into our rivers reation areas. Land controls can be used to and streams will be lessened. further limit the infringement of intensive development on land of low intensity use, and In spite of this one hopeful note, however, we thereby protect grouped open uses. are faced with a problem that requires a long- range solution. The costs involved now and in To further the goal of protecting the natural the immediate future for land acquisition will processes in the State, the open space pattern be far less than the costs that will have to be partially protects what remains of reservoir payedlaterastheStatebecomes more sites, water sheds, aquifer recharge areas and urbanized. a number of the very important flood plains, although further study is needed in this area. By the time that the 10 million level of pop- The Raritan basin is especially critical at this ulation is reached, acquisition of all potential time. The Plan reflects an attempt to control reservoir sites should have been completed in major stream courses and develop places for order to insure the availability of water for the recreation along these same courses. Without citizens and industries of the State. this protection the Raritan could lose its recrea- The Plan recognizes this problem and deals tional (and to some extent) open space value as with it by including many open space proposals in the Passaic River through the continued which have excellent potential for reservoir de- abuse by industrial waste and sewage pollution. velopment, including locations outside of the No less critical are swamps and low gradient Critical Area. stream flows into the Delaware River. The con- In keeping with the fundamental open space tinued flow into aquifers can be continued and philosophy of the State, that all sites are for partly preserved by protecting the suggested multiple-purpose conservation-recreation uses, areas. no identification has been made as to the pri- Water is man's most important natural re- mary use for which a specific site may be pur- source.The State has an obligation to its chased.

99 Figure 14

ACE POLICY PLAN FOR THE 10 MILLION POPULATION LEVEL

EXISTING

FEDERAL LANDS

STATE LANDS

COUNTY LANDS

WATERSHEDS

DELAWARE AND RARITAN CANAL

CURRENT OPEN SPACE PROJECTS

ACQUIRED

111111 ACQUISITION UNDERWAY alFEDERAL ACQUISITION UNDERWAY

OPEN SPACE PROPOSALS

PUBLIC OWNERSHIP

PUBLIC INTEREST 'N.

. .. ..f ,- --....,- ., ...

f... 1

s' """*", 'i''' ,... I 1 L.:::-T ..7. / 1.c f d t / ... " T ...rtk, . OW( / / I L,e L ,.... / I ''' . 'I , I "" \ ..

..' ..

011, 0=//111 11111111 AUQUIMIll lulL UNIOCRWA y

FEDERAL ACQUISITION UNDERWAY

OPEN SPACE PROPOSALS

PUBLIC OWNERSHIP

PUBLIC INTEREST

OUTLINE OF CRITICAL AREA

PASSAIC

BERGEN

NION MIDDLESEX 000 \, , 7t ,/ *S 1 CAMD

GLOUCESTER

COUNTY KEY MAP

SOURCE COMPILED BY THE DIV OF STATE AND REGIONAL PLANNING

JANUARY,1967 ......

STATE OF NEW JERSEY DEPARTMENT OF COMMUNITY AFFAIRS

DIVISION OF STATE AND REGIONAL PLANNING

a 0 1 2 3 4 12 16

SCALE IN MILES EXISTING OPEN SPACE 4) Lands of lower value with slow changes Existing open space includes all lands under in value. the jurisdiction of the Department of Conser- vation and Economic Development, all Federal As a general guide it was agreed to split the land ownership in open space use excluding mi- Green Acres money equally over the fourareas. litary reservations, county open space lands All Green Acres proposals have been reviewed and major reservoir and watershed lands. by the Bureau of Statewide Planning in relation to all aspects of the development plan currently CURRENT OPEN SPACE PROJECTS underway. Obviously, many Green Acres pro- This has been divided into three categories : posals are a recognition of a backlog of proposals which Parks and Recreation, Fish and 1.Acquired, which are projects in which Game, and Water Policy have had undercon- 75 percent or more of the project has sideration for many years. been acquired. 2.Acquisition Underway, which are pro- OPEN SPACE PROPOSALS jects that have been approved and are These areas in the Plan have been found to in the processes of being negotiated and be available for open space acquisition recogni- reviewed and/or are less than 75 per- zing areas delineated by State and local agen- cent acquired. cies. Where county open space plans have been 3.Federal Acquisition Underway, which completed (within the Critical Area) all pro- refers specifically to the effort taking posals have been included in graphic form or place now to acquire the land for the in principle. Delaware Water Gap National Recrea- Areas of public interest in open space are tion Area. conservation areas, very low density develop- The Green Acres program was enacted to ment, farm districts, estates or other types of provide for the acquisition of all types of open open uses. Not all counties have developed a space, recreation and conservation land in all concept of public interest but are encouraged parts of the State. As a general guide, the Land to do so in the future. Use Committee of the Department of Conser- Various projects that were considered but vation and Economic Development has used a not approved by Green Acres appear on this map prepared by the Division of State and Re- Plan. The desirability of acquiring these areas gional Planning which divided the State into in the future will be supported by the pressure four areas relating to land values and changes of development on land and the need to recog- in land values : nize and preserve natural processes. 1) Lands of high value with slow change It is important to understand that this is a in value. graphic presentation with recommended stand- 2) Lands of lower value with rapid in- ards for acquisition. Proposals in no way re- creases in value. flect distinct boundaries. This will be the job 3) Lands of lower value with moderate of detailed planning at all levels of government. increases in value.

100 Table XV

Land characteristics and variousdensities COUNTY AND MUNICIPAL GREEN ACRES PROJECTS of development do not foster totallyuniform (as of January 1, 1967) planning of open space ; but a desirablerelation- County Active Projects Acres Purchased ship between various land uses arereflected in (acres) this Plan. Atlantic - - The status of land acquisition isdifficult to Bergen 1,305 1,048 record specifically in this dynamic program. Bur I ington 40 26 The first table below indicates thenumber of Camden 31 6 January Cape May 1,466 8 approved acres of State projects as of Cumberland 165 - 1, 1967 ;and, the second table indicates the Essex 71 8 Gloucester - - Hudson 22 6 _ Table XIV Hunterdon - Mercer 4,783 744 1,478 STATE GREEN ACRES PROJECTS Middlesex 2,588 (as of January 1, 1967) Monmouth 2,231 863 Morr i s 1,701 900 608 239 County Total Acres Approved Acres Purchased Ocean 318 8 Passaic - Atlantic 8,930 889 Salem - 797 540 Bergen 358 350 Somerset Burl ington 16,457 3,884 Sussex - 570 236 Camden 4,781 177 Union 62 - Cape May 36,528 6,339 Warren Cumberland 17,959 3,428 16,764 6,116 Essex 3,391 58 TOTAL Gloucester 4,222 144 470 200 Hudson number of active acres of county and municipal Hunterdon 1,559 113 Mercer 1,973 362 projects combined as of January 1, 1967. State Middlesex 6,754 84 projects are indicated on The Open Space Monmouth 11,966 2,530 Policy Plan. Local Green Acres projects are Morris 7,951 2,003 shown in Fig. 15. The Green Acres program Ocean 47,927 5,088 has active projects includingapproximately Passaic 4,623 3,087 98 215,000 acres at the State level and17,000 Sa lem 2,321 municipal levels as of Somerset 4,347 567 acres at the county and Sussex 28,130 9,812 January 1, 1967. Union Warren 5,293 56

TOTAL 214,922 39,268

101 Figure 15 COUNTY AND MUNICIPAL GREEN ACRES PROJECTS

%...41K 14: / to is- ,./ v Oka / s Is/ .:.:. \.1 \\ \ r---\ ./ I % ft c---" 4-.1,% ( $ / GREEN ACRES PROGRAM .N.... / \-...... LOCAL ASSISTANCE PROJECTS 2 o-,...7. / 111 ,S to `-.1 ... ` j__,.. COUNTY MUNICIPAL U. ...'" /..." Under 300 Acres Under 300 Acres rir/ ... Over 300 Acres Over 300 Acres //...... , 1 ./.// v \ \ri \ \\

MORRIS ESSEX \

ERCION S. SOMERSET

N, N. i N. \ ) \., N.,./ .\ ::.. \\ ) (

COUNTY KEY MAP

STATE OF NEW JERSEY DEPARTMENT OF COMMUNITY AFFAIRS

DIVISION OF STATE AND REGIONAL PLANNING

SOURCE: Dep.rIment C.nservw1lon S Es.nomIc Dovillopment Eglw.ills and Kelyiry, Inc. 01 234 12 Is J.nu.ry 1%7 SCALE IN MILES

102 THE OPEN SPACE PRINCIPLES AND THE Various proposals, along numerous stream valleys such as in Camden County and in the TEN MILLION OPEN SPACE POLICY PLAN Hackensack Meadows for example, are an attempt to help re-establish the balance of natural ecological processes. These areas also serve as Admittedly the Open Space Policy Plan for breaks in the urban pattern and will help in the ten million population level does not fulfill maintaining water quality and in flood control. all of the principles of open space planning for New Jersey as stated earlier. It is not intended The open space in the Meadows, as well as to do so. Neither, to the extent that the princi- Liberty State Park create much needed breaks ples are met, does it treat them equally. The in the urban pattern and will also nisult in Plan is the first stage in the fulfillment of those recreation areas easily accessible to densely principles which will be satisfied by the Open populated areas. Space Policy Plan for the twenty million popu- In Monmouth County a substantial amount lation level which will follow. of acreage is proposed to protect what is now The Plan in this report deals with what is a very low intensively used land, in recognition of near crisis situation with regard to the setting intensive study at the county level. aside of undeveloped land for open space. The Various meadows, wetlands, stream valleys, crisis has been brought about by the voracious and the like have been incorporated into the appetite of urban expansion and the lack of Plan to help protect some of what is left of comprehensive planning and policy formulation New Jersey's natural scenic resources. Liberty for recreation land and open space. State Park and the Delaware-Raritan Canal The Plan is a first step in creating such a proposals will enhance the memory of signifi- policy. Its recommendations and proposals be- cant historic events. gin to fulfill the principles and policies stated Although a complete system is not a part of earlier. the Plan, the needs for hiking, canoeing, riding, Probably the most spectacular project in the and bicycling will be provided in part by sev- Plan is the proposed Delaware Water Gap eral of the Plan's recommendations, especially National Recreation Area. Tens of thousands those dealing with stream valleys and linear of acres of land and water are to be given parks. over to the recreational needs of the people. A Thus, the Ten Million Open Space Policy Plan wide range of recreational experiences will be attempts to face the crisis by offering a com- offered at a convenient distance to much of the prehensive approach to this important but van- regional population. ishing resource open land, in the most The multi-purpose concept is common to all rapidly urbanizing areas of the State. the proposals of the Plan. The project cited This Plan shows approximately 600,000 acres above will also serve the purpose of flood con- in public open space, or about 121/2 percent of trol, hydroelectric power, and water supply. the State. Spruce Run and Round Valley as well as the Six Mile Run and Hackettstown reservoirs will The public open space represents 125,000 also have secondary uses of a recreational value acres more than the 480,000 acres of Federal, and can be considered multi-purpose facilities. State, and county level open space that our standards would require for the 10 million pop- Endangered reservoir sites and water rec- ulation level.It is felt that this provides a reation areas such as Ramapo, Great Swamp, reasonable excess considering that an open Manasquan, and Great Piece Meadows have space program must be a jump ahead of devel- been included as essential to protect this most opment pressures if it is to have any chance of precious of all natural resources. success.

103

The report, thus far, is primarilyconcerned We do not know to what extentan open space with open space in the Critical Aieain terms program can really promote land use objectives. of present and impending developmentpres- If enough people want it to be usedfor such sures. However, other areas may be critical a purpose it can be done. Meanwhile, a plan is from points of view of other interestssuch as presented (see Fig. 5) indicating allopen space the defineable limits of the State's existingand which has been identified by variousagencies future urban areas. The guiding offuture ur- as having a recreation-conservation potential. ban growth usingopen space will lend form to For the time being,we will call this the plan development as well as providing multiple-pur- for the 20 million population level, recognizing pose open areas in close proximity to our future that all acquisitions within thisarea will aid in urban concentrations. A statewide policyon meeting the needs of 20 million people. stream-valley preservation is needed and will It is anticipated that therecan be very few be followed through via the twenty millionplan. "wrong" purchases no matter what kind ofa Planning, being dynamic, will adjust toshift- land use and openspace pattern is accepted as ing needs and policies within the Stateas we go desirable for the future. from a population of 10 million to 20million people. New concepts and principles, The plan has not been broken down by levels as yet of responsibility. Criteria and standards undefinable, will no doublt be created andsyn- sug- thesized into the twenty million plan. gested in earlier chapters of this report andin later versions of the openspace policy plan will Furthermore, as a general basis foran open be applied in order to forma more meaningful space plan for 20 million people it would be and useable quantitative analysis for thetwenty desirable to have further policyon future land million open space plan. use patterns for the State. The State Develop- However, consistency with the principlesout- ment Plan, currently being formed, willsuggest lined above and continuation of such a pattern. Whetheror not the Development open space Plan will be accepted in wholeor in part we acquisition within present and futureurban don't know at this time. areas are at least two areas of futureopen space planning and implementation to becar- ried on at all governmental levels.

104 ., APPENDIX Within the appendix is a general inventory of facilities and features which area necessary part of open space and recreation planning if a truly comprehensive approach is to exist. While some of the itemsmay have more direct implications for open space planning than others, they all have their relative importance in being considered as a part of the open sfrace planning process. The material presented below is included, not for the purpose of detailing recommendations, but to illustrate the scope with which open space planning must be concerned. PUBLICLY AN'D PRIVATELY DEVELOPEDRECREATION AREAS

CAMP FACILITIES.Campiag facilities in the Camping areas have been developed in fifteen State can be divided into two broad categories: State parks and forests and provideover 1500 organized sununercamps and transient camp camp sites.Forty privatefacilities provide grounds. The first group includes such facilities about3,500camp sites in the State. as organization-sponsored camps and commercial camps for children. These facilities Camps actually provide an openspace as are well as a recreational function, and generally outside thescope of governmental in- as such, volvement andare the subject of a special a study of them is important in developing a open space monograph entitled Summer Camps comprehensive plan for the futureuse of the in New Jersey. State's land resources. The significant influence of camps on the land use patternas open space Camp grounds (the second category)are de- in a natural setting and their obvious need in signed to accommodate the weekendcamper. the recreation picture indicates the desirability With the rising popularity of camping, how- of regulations or procedures which wouldpro- ever, these facilities are being heavily used for tect camping facilities and camping opportun- weekend camping andeven longer durations. ities from encroachment.

0 , 5-, --... 0 0 0 0 0/ Figure 17 7, 0 0 / 00 4 0 ,/ Figure 16 0 0 -.., CAMPSITE 'N... 0 0 0 i 1 0 0 0 0 0 0/0 '. /, --,,, 0/0 7 SUMMER CAMPS 0 0 &Ns.," / ?,1! i --. ON, 0/10 0 FACILITIES / 00000°00%0° °00C ;;; .010 000OsSr*E/ ° (/ IN NEW JERSEY 0 IN NEW JERSEY \\ ..) 0 /I 00 ° 00 .8 ,-/ ":", 0°00 01 I\ .; 0 0 0 i) 0 0 (/ 0 0 0 0 0) 0 00 11 0 0 0 o °/' 0 , C, 0/ 0 0:0 o RESIDENT CAMPS 0 0 0 STATE FOREST Ei PARK CAMPSITES 0 00 OS DAY CAMPS PRIVATE CAMPSITES o o o

.1. 01.. 1 \/0 0, .5, 0 / /. 5) \)s, / N 0 ) ,./// ) N) r-

SOURCE: INS Directory of Privets Cmp Sit. Pecilltior SOURCE Csopilsi by the Dleftion of SM. Neyienei Piercing Dote Presnotiere Section 1117 sail NI IMO CUE IN WO memos IN)

105 GOLF COURSES. The growingpopularity of golf as a recreational activity hasplaced great pressures on the existinggolf facilities in New Jersey. There are about 200 golf courses cur- Flu, II rently in operation (1966) in the State, only 67 GOLF COURSES ;;;'''...., of which are open to the general public. How- IN NEW JERSEY o '7- / ever, this substantialincrease as compared with i the 1904 figures of 148 golf courses outof ° \ \:/ which 36 were open to the public, does not \i'-0%) occur in the core areawhere the population o /1 concentration is highest and where such recrea- / /N tional open space would be extremely beneficial. "( An important finding contained in the open space monograph, Golf Coursesin New jersey, shows three basic kinds of courses and that each has a different record for surviving the

55 10, 0 encroachment of urbanism. Public owned golf courses are relatively immune tobeing dis- 0 .1511. // placed by more intensive urban uses, except ar o -se: , 5 perhapsfor highway rights - of - way. The O PUBLIC country club type of golf course,where access PRIVATE and SEMIPRIVATE to the facilities is open only tomembers, has almost a perfect record of survival. It is the privately owned and operated courses open to the public which are vulnerable to development pressure. These facilities areusually operated for profit and the greatest profit often becomes the sale of the land for development purposes. Because golf courses serve as recreation facili- / \, ties, and also become major natural breaks in . / the pattern of urban developmeni, their loca- ?..\<,' N.., \ 0 tion and vulnerability must be carefully analyzed. In many instances, those courses not already in the public category or not in club

i ownership and being threatened by encroach- STATE OF NEW INSET ment can be considered likelycandidates for DEPARTMENT OF COMMUNITY AFFAIRS inclusion into future open space schemes. MICE DIVISION OF STATE AIM REGIONAL IMOD LIMO. 01Psolts, Ihreas Reenso lot of 0 12 34 11 11 IS 1914 Cau1/W Mow. IS."1111.0..1 Means must now be sought to preserve the SCALE 14 MILES lowery. 047 existing courses and to establish new courses in locations that will best serve the community and region, as well as contribute to a desired pattern of development for the future.

106 AIRPORTS. Like golf courses andcamps, intensity open land uses which alsoserve as airports have also suffered heavily from urban desirable breaks in the dense urbanpattern. encroachments. However,as of February, 1966 In many instances, the continued existence of there were over two hundred installations (in- needed airport facilities would be substantially cluding airports, landing fields, private landing assisted were their location to be planned in strips, and heliports). Of this number, 72 air- conjunction with open space and conservation ports are available for general public use. In needs. addition to Newark Airport, three other facilities are utilized by scheduled and commercial aviationMercer County, Atlantic City, and Cape May County, all of whichare publicly owned. By their very nature, air facilitiesare low intensity land uses. Therefore, aside from their value as an integral part of the State'seconomy Figure 19 and as a focal point between land and air transportation, air facilities may serveas desir- AIRPORTS IN NEW JERSEY able open breaks in the intensely developed OPEN TO THE PUBLIC urban patterns. Noise buffers used to protect the areasur- rounding the facility from the nuisance created by the airplanes overhead havean open space potential which should be recognized and utilized. Various forms of 'recreation could be developed on thisland, particula-rlyactive recreation, since passive recreation might be less desirable because of the noise. 4, FEDERAL FACILITIES

OPEN TO PUILIC Airports, like other low intensity landuses, are suffering from the dynamics of urban growth. Such open and relatively undeveloped , areas tend to attract the more intensive forms -\ of land use. Even if an airport is not completely s) eliminated, its functions may be altered to such a degree that it no longer serves as an effective break in the urban pattern of development. It may eventually become a mass of unattractive 'Also lien re swells for Commercial Airline use. buildings and paved runways, withoutany of the aesthetics that are customarily associated with open areas. This does not necessarily have STAN OF 11W Earl to be the case. Air facilities and surrounding DEPARTMENT Of COMMUNITY AFFAIRS Ornal ff STAR In WOK P1M111111 development can be developed with aesthetic SOURCE: Cern/1W* Division sl Doi* C Rogionel Pisnning principlesin mind.Effectivelayout,con- Jemmy, 1147 struction and design controls, and profuse landscaping can help achieve this. These considerations, as pointed out in the open spacemono- graph Air Facilities and the Land Use Pattern in New jersey are important because airportsare generally located in urban areas where the demand for their use is greatest. It is the urban areas that are most desperately in need of low

107 Nur. 20 SKI AREAS IN NEW JERSEY

SKI SLOPES. Sixteen ski slopes have been established in New Jersey to serve the increasing interest in this form of recreation. These

PROPOSED facilities are under the jurisdiction of county A MAHWAH governments or are privately owned and oper- LAKEWOOD SKI AREA /4 ated. EXISTING I.SKI MOUNTAIN According to the publication Parks and Rec- 2. SOUTH MOUNTAIN RESERVATION

3. JUG TOWN MOUNTAIN reational Land Use in New Jersey, the facilities 1. MLLE MOUNTAIN for skiing are located principally in the less 5. HOLMDEL SKI AREA N. CAMP ARROWHEAD SKI AREA densely populated sections of the northern half 7. CRAIGMEUR LODGE

I. SNOW KOHL 5KI AREA of the State where conditions of terrain and W. TRIPLE LAKE SKI RANCH weather f actors facilitate the development of 10. EAGLE MOUNTAIN SKI AREA 11. APPLE ACRES SKI AREA ski slopes.However, modern technology has 12. PEAPACK SKI TOW

13. GREAT GORGE SKI AREA made it possible to supplement nature, and in II. HIGH POINT SKI WAYS many parts of the State skiing facilities can be IS. MT. UOUAL SKI RUN 141. SI1EPPARD LAKE SKI AREA developed despite the lack of natural slope and snowfall. In such areas man - made snow is blown on man - made slopes, a testimony to the growing popularity of the sport of skiing. Al- though New Jersey is fortunate to be located within a few hours of out-of-state-skiing areas, itislikely that an increased demand will / /*NN emerge for ski slopes within the State. Private and public interests should work together to meet this growing demand.

STAR OF NEW JERSEY DEPARTMENT OF COMMUNITY AFFAIRS

ORION OF STATE AND REGIONAL PLANNING

SCILE NILES JANUARY, lyn YOURC1t Ski Ames la klor Jona, OM slim of P., Its. how*? 1914

108 WATER ORIENTED RECREATION AND OPEN SPACE

RESERVOIRS AND WATERSHEDS. Exist- ing and proposed reservoir sites have double value in an open space system. With appropriate design measures, reservoirs and the surrounding lands can also serve as recreation facilities. An Figur. 21 excellent example of such a multi-purpose use is the Spruce Run Round Valley reservoir system. Besides the primary purpose of water supply, extensive recreational use will be permitted including fishing, boating, swimming, camping, hunting and other outdoor recreational activities. The publication entitled New Jersey's Water Resources reviews the problems relating to the limited number of potential reservoirs and the certainty that the purchase costs of these reservoir sites can be expected to rise rapidly as the MAJOR WATERSHED , urbanization of the State continues. Because of LANDS IN NEW JERSEY this increasing threat of encroaching unbaniz- ation, it seems advisable that plans should be made for selecting and acquiring the sites im- mediately. The location and extent of existing public and privately owned watershed areas was also plotted as an open space consideration. These facilities by their very nature are open spaces reserved for the collection of rim-off water. Watershed lands, like reservoirs, have many recreational functions. Greater recreational use of these areas will probably become necessary as recreational demands increase in the future. Multi-purpose use of such large areas can be SOURCE: Division a Sea. and /hon./ Planning accommodated by careful design which gives Jonuory IN? full recognition to the primary purpose of the watershed area.

109 Figure22 MAJOR AQUIFER RECHARGE PROBLEM AREAS IN NEW JERSEY //i7-, ' /15 ,.,, / /1 ---1.\ \---- ( AQUIFERS. To assure the continuation of a supply of ground water, it is necessary to insure the recharge of the aquifer from thP surface. i The catchment area of the aquifer should remain in a natural undisturbed state to minimize I- pollution and maximize infiltration to be most iS useful for underground supplies. Typical devel- v \ opment in the form of streets, buildings, and parking lots increase runoff and decrease infil- ...S2' tration up to 30 percent. Because of the extensive areas involved, it is 114 unlikely that any complete protection could be /7-----kt possible for aquifer recharge areas. However, with coordination of open space planning, much can be achieved by forestalling the reduction 4 of, recharge capabilities. For example, one suggestion mentioned in the New Jersey's Water Resources publication is that the recharge of an aquifer is most efficient where stream courses / or lakes traverse its catchment area. Creatir g / fresh water lakes on streams flowing into the lower Delaware by construction of low tidal dams has been recommended as a means of in- suring effective recharge with fresh water and to prevent salt water intrusion into the aquifers.

STATE Of NEW JERSEY DEPARTMENT OF COMMUNITY AFFAIRS

DIVISION Of STATE NID REGIONAL PLANNING NUM: DOWshoof Pohlad 11111.11/ /mow MI

110 FLOOD PLAINS. Along the banks of many rivers and streams are areas that are subject to periodic flooding. These flood plains serve the Figure 23 purpose of carrying and temporarily storing flood flows. Many of these flood plains have long since been filled-in and developed forcom- mercial, industrial and residential uses. This development not only results in loss of important flood plain storage, but also produces greatly increased runoff and velocity resulting ultimately in more frequent and intense flood damage and increased personal injuries and f atalities. The view presented in the publication entitled Flood Damage Alleviation in New Jersey demon- strates that the State Encroachment Law was GENERALIZED NATURAL not intended to, and in general does not, prevent FLOOD PLAINS flood plain development. Local efforts to date have been almost exclusively concerned with the construction of protective works, while itis hoped that Federal aid will make possible the construction of protective works to reduce flood damage in such areas as the Passaic and Dela- ware River Basins. However, Federal programs are not designed to take care of the many serious flood problems existing on the numerous small streams which drain the intenselyur- banized areas of New Jersey. In such cases, it is desirable that each level of governmentexer- cise appropriate controls over stream courses and drainage rights-of-way. Natural flood plain areas can be ploted utilizing maps of the Eng- ineering Soil Survey of New Jersey. Many such STATE OF NEW JERSEY DEPARTMENT OF COMMUNITY AFFAIRS SOURCE ENGINEERING SOIL SURVEY OF NEP JERSEY IV COUNTY. 1154 DIVISION OF STATE AND REGIONAL PLANNING areas may be potential recreation sites and gen- USING AR SOILS IAR SOILS ARE RECENT ALLUVIUM FOUND OIACENT 70 PRESENT STREAM (OURSES DEPOUTED RV Tx! STREAM / 1 3 4 I it IL eral purposes of open space preservationare also COMPILED BY DIVISION DP STATES REGIONAL FLA/MING served. JANUARY, IN? ORALS II NILES

111 MARINAS. New Jersey residents currently have approximately 200,000 boats registered

Figum 24 with the Bureau of Navigation. This popularity of boating is reflected by the great number of MAJOR marina facilities which are available along New BOAT BASINS Jersey's coast. AND MARINAS r\ The State of New Jersey operates marinas at IN NEW JERSEY I sss'i Atlantic City, Forked River, Leonardo, Fortes- que and Point Pleasant. A total of 700 boats (1 can be accommodated at these State marina 17/ facilities. In addition, some New Jersey municipalities also maintain their own marinas.

LEONARCO STATE LURK. Privately owned boat basins line the State's

IS MARINAS coast and rivers. They number approximately 520 and can accommodate some 25,000 craft. A publication of the Department of Conservation II MATINAS and Economic Development entitled New jersey PT. PLEASAI.7 STATE MARINA Boat Basins contains more detailed information about these facilities and the special services they provide.

WAXED MYER STAT E LUPIN. Another publication Waterfront Utilization

ss, in Northeast New jersey points out that a good many of the marina and boat club facilities in the northeast area are found in relatively unattractive surroundings and in various states ATLANTIC CITY STATE MARINA of disrepair. Many of these facilities are not only e% ( unattractive, but their dilapidated and overcrowded conditions constitute a hazardous situ- YOTTESCUE STATE L1AMNA MR If NV ust (VARMINT or WNW MANS ation both for the pleasure boaters and for ship- MIN IF STIR NI

SOURCE ping in general. The overcrowded conditions re- hnuy Sen 28.1 Vein% Reprint limo .1 C44444.414 Inn Pram444 1sttion flect the increasing popularity of pleasure boat- J.tuel, 190 ing. This increased interest in boating, coupled with the inadequacy of existing facilities, would suggest the need for an extensive program of waterfront development for marina facilities.

112 WILDLIFE MANAGEMENT AREAS

HUNTING AND FISHING AREAS. New need of improvement. Goodaccess roads and Jersey possesses fishery and wildliferesources in trails, parking lots and insome cases boat abundance. Among the State's fish and fauna launching facilities would serve to increase the are found all the species common to the uplands, utilization of these good fisheryresources. wetlands,and watersofthenortheastern United States. Over 300,000acres or six percent Enally, the incompatibility between fishery of the State's area has beenset aside by both and wildlife resources and urban development public and private agencies in orderto preserve in New Jersey will become increasinglyacute. New Jersey's wildlife and their habitat. About The need for action to reconcile these divergent 80 percent of this acreage is State owned and land uses will become more urgent in timeas the includes State Fish and Game Lands, State sportsmen population grows and undeveloped land disappears. Forests, and State Parks. The Federalgovern- ment maintains another five percent of this acreage as wildlife refuges. Commercial shoot- ing preserves and other wildlife oriented lands held by private natureor conservation organizations constitute the remaining fifteenpercent. The continuation of theseareas as good and productive wildlife habitats will becomemore PUBLIC HUNTING difficult because of the encroachment ofex- AND FISHING AREAS panding development. IN NEW JERSEY Aki As the publication entitled Tbe Nature and Pattern of New Jersey's Marine'Life Resources points out, the problem of water pollution (which has accompanied residential and indus- trail development) has made itself felton the fishery resources in New Jersey. The Delaware River shad population has been greatly depleted and the shell-fishing industryon the Raritan STATE FISH HATCHERY Bay has disappeared. Severe restrictions LAKES STOCKED ANNUALLY W on the 2500 OR MORE ADULT TROUT taking of shellfish from Barnegat Bayare in STREAMS STOCKED ANNUALLY WITH force due to the pollution of tributarystreams. 2500 OR MORE ADULT TROUT This problem will increase in its severity with STATE GAME RUMS the rising level of population and the expansion FISHING ONLY (STATE LAND) of industry. More effectivewaste treatment O FISHING AND HUNTING (STATE LAND) procedures and stricter enforcement of pollution moo STATE OWNED LAND control laws must be initiated to meet this growing problem. Investigation intonew and stronger controls of water polluters isalso needed. According to the resource monograph Fishery and Wildlife Resources in New Jersey increased recreational utilization of the fishery and wildlife resources might be accomplished intwo ways. First, there are expanses of woodlands, fields and water whichare in private ownership and posted against publictrespass. These MR i NW OM MUM *Mar el Re awl 41 MINOR OFmumARAMS areas (if open to public access) represent a great Camila Or Illonfto el Imo 11.1tymi Moab, Awe% NO VIItiNt NI MA NM source of potential hunting and fishing grounds. 11

CMtI Secondly, public access tomany good fishing areas along the Delaware River and Bay is in

113 SCENIC DRIVES, TRAILS AND CANOE RUNS

SCENIC HIGHWAYS. Driving for pleasure New Jersey has more than half (144 miles) of is the number one recreation activity for Amer- a total of 280 miles of scenic roads classed as icans(according to the Outdoor Recreation "highly scenicworth a special sightseeing trip" Resources Review Commission) because of the within 75 miles of the New York CityPhil- availability of good highways, the incidence of adelphia corridor, according to the Outdoor car ownership, and because driving canhe Recreation Resources Review Commission Re- participated in by the entire family. port 21. However, they indicate that 117 miles of this total is abutted by privately owned land and may be in danger of future non-compatible roadside development. New Jersey has two major roads which were designed with scenery and beauty as a primary SELECTED SCENIC ROADS consideration:theGardenStateParkway IN NEW JERSEY stretching from the northern boundary of the State to the southernmost tip of Cape May; and the PalisadesInterstate Parkway along the west bank of the Hudson River from Fort Lee to the northern boundary of the State. In additionto their design features, both roads paos through some of the finest scenic and recreational areas of the State. However, recent improvements to increase traffic capacity have encroached on or eliminated landscaping features originally incorporated. Recent work on State Route 29 from Raven Rock to Frenchtownselective tree thinning, etc.is noted as a specific action relating to the

monewenrume. SCENIC ROADS scenic qualities of the area. Also, State Route 70 (the John D. Rockfeller Memorial High- way built in the 1930%) from Marlton to Brielle has a wide right-of-way (up to 1000 feet), landscaping, etc., but the lack of controlled access has caused the effort to be less than fully effective. The New Jersey State Highway Department has prepared a report entitled Scenic Roads and Parkways Study which is a preliminary study identifying many scenic roads within the State. The study considers an upgrading of existing roads, the adoprZon of scenic roadway design standards for roads presently under design, and entirely new roads through scenic areas or to provide access to major recreational areas. STATE OF NEW HSU DEPARTMENT OF COMMUNITY AFFAIRS °NINON OF SOH ANO RONAL PUNNING The importance of scenic roads as a necessary part of the overall recreation experience cannot ICUICt C6.6666166 121W616, of b. 6660464 Plar660 i.,. IN? be over-emphasized. Well designed roads with frequent well spaced rest stops, picnic areas, and scenic overlooks provide not only enjoyment in the short term use, but also help to create an attitude of truly getting away.

114 Firm 17

0 APPALACHIAN TRAIL SELECTED CANOE RUNS TRAILS AND CANOE RUNS. There are at HIKING AND BRIDLE 0 present many fine hiking trails on both public TRAILS IN NEW JERSEY and private lands. They vary from those that HILES OF HIKING AND STATE FACILITY BRIDLE TRAIU are little more than a well trodden path through I. HO Pold hiking

40 WW1 the forests to well-marked trails through beau- 32 WI. tiful wooded and mountainousareas with shel- 3. Monad Wm 2 IHMIN A IhrthIngto.---... 12 !Intim ters provided. Several are maintained by mem- WWII 5. .1w0/ kimp hiking bers of the New York- New Jersey Trail Con- 3 WWII ference, Inc. which also provides excellent trail K. SteN074 1 Ruling 7. HIcklebarrey 2 RIMINI maps. H. Vishay 4 hiking N. Cheismals 7 104 4 bildle 000 Current studies now being prepared for the 13. 1111hIng14n DasKIR 2 hiking 11 Allah 44 ANA New Jersey Comprehensive Outdoor Recreation 5 biidlt Plan indicate that there are about 320 miles 12. I odH. N RHONA 50 111011 of hiking trails and 50 miles of bridle trails, 13. IsIo0 Falb 2 IOU% 14. extol AIWA, including 264 miles of trails through the vast 1CO bfidlt 0 15. Pardo I WWI Wharton Tract, which issubstantially unde- 5 WOW CANOE ce 14. Ins Riot 14 hiking veloped and wild. 40 teIllt

17 11011011110. 32 RIMINI # 33 WOK # nesuuni. A number of the State's smaller streams are II Gimn Ni0 17 hiking ideal for canoeing and boating, and there is a II AIM, 4trossIs IS. PM 21 ANA growing interest in all aspects of this form of 70 HMIs recreation. The book Exploring the Little Rivers of New Jersey by James and Margaret Cawley gives detailed information on streams ideal for canoeing purposes along with day and overnight ( 1/ camping trips. As part of the inventory process, tt the streams identified were mapped because of tfAzi their recreation potential. Making such streams more enjoyable would involve the removal of fallen trees and other obstacles and the provision fri CTAUI IV OM ofsuitablelaunchingsiteswould provide BIMINI Of COMNI111 HMS MN I MI MI 11111111W1011 SOURCE, D0r0000 SIMI00 R.00.1 Plarmin4 canoeing enthusiasts with many more miles of 1)1000 0 PM., Pommy, old 11.09014. navigable waterways.

115 HISTORIC SITES

HISTORIC SITES. New Jersey enjoys a significant place in American history. Many of the State's more impressive historic sites have been preserved and are maintained for their educa-

Firms S. tional as well as their recreational value. SELECTED HISTORIC SITES Mr. William G.Miller(anarchivistat AND LANDMARKS IN NEW JERSEY Rutgers University) has recently compiled a definitive list of 800 historical sites and features ADIIIIISTERED 1St F FEDERAL from a basic list of more than 1,600 developed S STATE C COUNTS IUMICIPAL by county committees. This final list includes LANDMARK

I. ABSECON LIGIITICU91 (1) two facilities administered by the National Park V1LLA ATUSIRINPIUSE (1) BATSTO VILLAGE (1) the Morristown National Historical S. BOXWOOD HALL CO Service: a CAFE In COUNT HOUSE 10 7. CAIRANZAIEAORIAL gis II CLARA GARTON .I10ol.11001(1) Park containing the Ford Mansion and Museum, 1. CONAIISIT PAIRS (05*111101) II GROUVICKS IIE7 IIIGHOUSI(C0OSPICE1) II. EDISON L ASORATORT NATICSIAL MONUMENT (F) IL ELLINGTON CO(RT Mel CC) Fort Nonsense and the Jocky Hollow encamp- 11 FORT NWT 0/ It GROVER CLIVELAND BIRTHPLACE (1) ment; and the Edkon Laboratory National His- 5.IS :oar vra, 17. 1011971 HENRY HOME (L) It LAWRENCE HOUSE (S) 1.10111E7 MOE HDLG. III toric Site in West Orange. 30. I... BATTLEFIELD 1S) 1011110UTH BATTLE MONIMENT (5) 101121)10NI NATIONAL HISTONCAL PARE (P) (lNCLU0I110: 1OCKET HOLLOW; FORT IICNSLINt Several sites of historic interest are under .FORD MANSION) aZ_I 114134" direct control of the State and form an impor uLD CHRIST vuumll SA OLD MCP PARSONAGE (SI a OLD PANAOLIAROY COOPER II)NE (F) tant adjunct to the State's outdoor recreation ITIMISTITECARTE P_ I 2111CITON LATE airja61.(1) program withtheirprovisionforfishing, U. WIENS COLLEGE CAMNSISt 31 AED BANK BATTLE 10111110rt (C) U. RINGWOOD MAllOW HOUSE (5) hiking, boating or picnicking. The more im- a 110CIU1!HAS Se. SANDY NODE LIMIT (L) 37. SAIITHVILLE INN AND VILLAGE (AMOUR) 31. SOURS IANSIONIU portant of thesesitesinclude Washington's n. STATUS OF LIEDITT (E) 41 STONE moon NO SANCTUARY (L) II. TWINS CHURCHITENNENT) Crossing, Fort Mott, Allaire Village, Ringwood a THOMAS NAST NNW (L) IL TRENTON BATTLE 11011111ENT (I) 44 TRINITY EPISCOPAL CHINCH IMAM/ Manor and Batsto Village in the Wharton Tract. 41 VETERANS DP ALL WARS IISIORIAL 151 & VON UNIIIEN HOUSE (5) 17. WALLACE HIT(5) SI WALT IMITIA HO M. WAS11111015116 CROSSING Private organizations as well are active in the raiTliMul404411:04F ey41,1714.EVELAND (L) St WWI TRENT (a) preservation of New Jersey's historic sites. Of particular significance are the many Revolu- tionaryhomesandhistoricallyimportant churches which are being maintained by historical societies. However, as diligent as the Statr xnd historical societies have been in preserving historic sites and features, the rapidity with which our urban areas are expanding presents a threat to

STATE OF 11111 DY much of New Jersey's historic heritage. It is, PSIAICA &WA. .4 P.S. P.M. MI Ner.e.H. OVARTMENT OF COMMUNITY AFFAIRS therefore, in the interest of these agencies to M/N.M. SKIN. IMSMN flf STATE 1/0 ISOVI MAK timpIlmi Si A. WM. et Shift ml *ma Plarlog holm, 147 seek certification and protection by the Nation- al Park Service of the more significant sites before they are lost forever. This certification may also pave the way for obtainingFederal aid at such time as funds are made available for acquisition and development. The Historic Sites Section of the Department of Conservation and Economic Development has on file over 14,000 historic sites gathered from a myriad of sources.

116 NATURAL AREAS AND REFUGES

NATURAL AREAS AND WILDLIFE SANC- TUARIES. In recent years, the preservation of natural areas has come to the forefront as an important governmental responsibility in the provision of outdoor recreational facilities. In- creased governmental protection has stemmed from recognition that suburban growth is rapidly consuming large areas of land and destroy- Fir.. 29 ing unique natural areas in the process. Natural SELECTED PROTECTED areas are sites valued for someparticularly NATURAL AREAS IN unique and intrinsic quality over and above NEW JERSEY their open character. The Natural Areas Scction I. WITT% EOG (11 1. HERIENTOWA MOM of the New Jersey Division of Parks, Forestry 3. WI PONT STATE PARE (S) =SATE mum MOE (P) and Recreation has been charged by the Natural RUMOR MATIMUL 0.13J1110030(P) Areas Act with the responsibility of acquiring GREAT SWAMP WOOL WIMPS (P) 7. IRMO( 13JTU0A EDICA1ION COITER and maintaining suitable natural areas. These a STONE HAMER ORD SANCTUMS OE Y. STOff PORE NAM WCTUASY (11) sites are used, not only by the naturalist and INEGINTIO HAMRA. SWAM ROME (P) the conservationist, but also serve as outdoor 1 1. ILIAD 0A01 (TATE PARR (i) Il MIAOW C. NUTCHEIDI EIRIORAL MUT 03 laboratories for a wide variety of educational II 0111:1110011 LRCM (1) It ROAN STATE PAHA (E activities. 13. SAWN OM STATE PA* 03 E. *ORTON TRACT (S) It should be noted that a significant portion 17. LW MEN STATE IMO (S) SEILEPLAIN STASI MST(S) of the identified natural areas' sites were already W. MAIM RAVINE (5) 111 STUB STATE FOREST (SI under the protzction of the Department of Con- 51. Tatou WERE ONTO (a) re. SOW. OP OREERVATUI 0) servation and Economic Development or in U SOY SCOUTS OP AMU* MELIA & TEEL (111 county or local park systems. For the most part ULT LAU OE a TEM lemma) these are parts of larger sites. Small independent 24 WATEHUII0 RESUPAATIOR (C) V. ALUM STASI PARR (11 natural areas are often left unprotected. Fur- OEESIO.OXE STASI PAM (S) ther investigation should be made as to the St HACELEBAIWIET STATE PAM (S) W). MOUE STATE PARE 03 means and methods that are or can bemade SI. MUM= STATE PARE (S) WASIOCTON 01131/G STATE PARR (I) avaPable to protect them. 7001111EES STATE PAU (S) The responsibility of maintaining wildlife refuges in New Jersey has fallen mainly to Fish and Game, the Federal government and private groups such as the National Audubon Society. However, the majority of New Jersey's State Parks also serve as wildlife refuges since hunting is restricted.

SUITE ff MET As of January, 1964 four National Wildlife DEPANNENT Of COMITY AFFAIRS Refuges, totalling 14,278 acres, are currently MMIN ff ffATE a 1311111 HAMM maintained by the Federal government for wild- SOURCM._ Ae, Amer C.O., NA* A Yon A a. Pk... life. Forty percent of this land can be hunted. 101, It is the general conclusion of the monograph entitled Fishery and Wildlife Resources in New Jersey that (although a significant number of acres have been set aside for the protection of wildlife) a number of areas, particularly along the major flyways, should be management areas protected through governmental or private acquisition.

117 AGRICULTURE

AGRICULTURE. New Jersey has witnessed Figure 30 . the disappearance of thousands ofacres of agri- GENERALIZED /./ ''... cultural lands asa result of suburban expan- / \i '`.. APASSAIC / . sion and is now witnessing thisprocess at an AGRICULTURAL / ''.. ///., alarming rate of speed. Not only is agriculture ACTIVITY IN s' i important to the economy of the State, but its B .) S (iv J 'k. value as a form ofopen space may (in the long NEW JERSEY 41740R ipS ,4 run) be equally significant. ) p.41 .01 ESSEX k../ UDSO Certain areas of the State, because of tlieir soil qualities, lend themselves to io UNION a high level of agricultural productivitY,_A circular put out by the College of Agriculture at Rutgersen- titled New jersey Soils attemptsto portray a general picture of the major kinds of soils in New Jersey and indicate their agricultural

ME potential,limitingproperties,and desirable features. Many people feel that it is essential that an effort be made to insure the continued use of those remaining prime agricultural soils for growing crops, etc. While the continued loss of agricultural lands in some areas appears to be inevitable, there should be a continuation of agriculture incon- junction with other open space needs. Agricul- ture's perpetuation as a facet ofopen space would seem highly desirable. The need for scenic easements along highways might be combined with a program to maintain agriculturalpro- ductivity in certain areas.Also, agricultural lands used on apart-timebasisfor public ® hunting, fishing, or picnicking would add sig-

STATE Of NEW INSET nificantly to our supply of recreation potentials. DEPARTMENT OF COMMUNITY AFFAIRS SOURCE: Rutpro University Agricultwe Extension Service Various measures to insure the retention of DIVISION Of STATE AND REGIONAL PLANNING Infonnerien beet County Agriculture! Agents end Other Sources, Pell, 19SS January, 190 agricultural lands as open space, suchas ease- I 3 1,3 ments and tax relief for farmers, are currently 111.11t being explored.

118 NATURAL RESOURCES

Nu,* 31 FOREST COVERAGE FOREST. The forest land in IN NEW JERSEY New Jersey (one of the State's largest resources) totals about 2,200,000 acres and covers 46 percent of the land area of the State,Private ownership accounts for 88 percent ofthis forest land, with most of the woodlots ranging in size from 100 acres to 5,000 acres. The State-owned forests account for another11percent, and the Federalgovernmentpossesses the remaining 1 percent. Due to the growing popularity of camping, hiking, hunt- FOREST COVERAGE 4t; YELLOW PINE ing, fishing, and canoeing, the RzaOAK and PINE recreationpotentialofboth OAK publicly and privately owned SWAMP HARDWOODS forests has just begun to be tapped. According to the monograph The Forest Resource in New Jersey, an active program of planning must be initiated to develop these resources where appropriate, make more areas available to the public and to provide adequate access to these areas. Planning should also be instituted to integrate the forests into the land use pattern, especially in terms of recreation.

stAll OF KW USD DEPARTMENT OF COMMUNITY AFFAIRS SOURCE al Oop Immont el Apiculture IMMO OF EMI All Mk FMK The Timber 'tenure.. el Now Jersey 0 12 3 4 II 12 IS Cempile1 by Me Divisien el Stet* end Regional Phoning Jormay, 1117 SCALE IN NILES right, SI `;.''.7 -, NEW JERSEY'S MINERAL r 's, RESOURCES \ , ): (Generalized Activity Areas) Iz.._,. .. s ,' .,..P. c...... k= c, r .7.0,.,.p' -= o.....i =7 .s.' 4: ''.t = C- MINERALS. Mineral sites and ,....--2----.k...----- \ .--,,,...... e ..,.., extractive industrial locations ../ ',M. .0, - : are importantinrelation to '1 .... =.I / open land uses.In considering V\ the future of the extractive , operations and untapped min- .....t \ ___._,/

I eral sites (sucit as stone, sand :....-% k., M MINING ''...., and gravel) consideration must = QUARRYING be given to the: economic sig-

:::. SAND AND GRAVEL nificance of the industry and attention must be given to planning the future use of depleted sites.Mineral extractive sites represent an important potential for open space and recrea- tionifearly considerationis given to future type of use, etc.

:: 1

STATE OF NEW EASEY DEPARTMENT OF COMMUNITY AFFAIRS

MICE Cespiiet1 by the DI.Ishwel Stow. a Neehhtel /Wahl, RION Of STATENSIIESIONAL RAINS Jonelty. 1167

120 BIBLIOGRAPHY

BOOKS

Bartholomew, Harland. Land Uses in American Cities. Cambridge: Harvard University Press, 1955. Cawley, James and Margaret. Exploring the Little Rivers of New jersey. New Brunswick: Rutgers University Press, 1961. Gottmann, Jean. Megalopolis. Cambridge: The M. I. T. Press, 1961. Pepper, Adeline. Tours of Historic New jersey. Princeton: D. Van Nostrand Company, Inc., 1965. Segoe, Ladislas. Local Planning Adminstration. Chicago: International City Manager's Association, 1941. Webster, Donald H. Urban Planning and Municipal Public Policy. New York: Harper and Brothers, 1958.

PERIODICALS Krasnowiecki, Jan and Ann Louise Strong. "Compensable Regulations: A Means for Controlling Growth Through the Retention of Open Space," journal of the American Institute of Planners. Vol. 29, No. 2, May, 1963. Krasnowiecki, Jan and C. N. Paul. "The Preservation of Open Space in Urban Areas," 110 University of Pennsylvania Law Review 179, 1961. Moore, John B. "Wanted More Open Space in Growing Areas," American City, Vol. 71, January, 1956. Wagner, Donald C. "Open Space and the Natural Process," Horizons for Modern Governments, Vol. XIII, No. 2, February, 1965. Whyte, William H. Jr. "Urban Sprawl," Fortune, January, 1958. Whyte, William H. Jr. Securing Open Space for Urban America: Conservation Easements, Technical Bulletin 36, Washington: Urban Land Institute, 1959.

Zoning Digest. Vol. 15, No. 3, Chicago: American Society of Planning Officials, March, 1963. Zoning Digest. Vol. 15, No. 10, Chicago: American Society of Planning Officials, November, 1963.

121 REPORTS Clawson, Marion. The Dynamics of Park Demand. Bulletin #94, New York: Regional Plan Association, 1960. College of Agriculture. New jersey Soils. Circular #601. New Brunswick: Rutgers University Press, July, 1963. National Association of Counties. County Action for Outdoor Recreation. Wash- ington: National Association of Counties, 1964. National Park Service. "Recreational Use of Land in the United States," Part XI of the Report on Land Planning. Washington: U. S. Government Printing Office, 1934. New Jersey Highway Department. Scenic Roads and Parkways Study. Report by the State of New Jersey in co-operation with the United States Bureau of Public Roads, January, 1965. New Jersey Department of Conservation and Economic Development. TheNeed for a State Recreational Land Acquisition and Development Program. Trenton: Stat, of New Jersey, November, 1960. New Jersey Division of State and Regional Planning, Reports, Trenton: State of New Jersey. Air Facilities and the Land Use Pattern in New jersey. March, 1965. The Feasibility of Buying Conservation Easements on Open Land. 1963. Fishery and Wildlife Reseurces in New jersey. December, 1964. The Forest Resource in New jersey. August, 1965. Golf Courses in New jersey. February, 1964. The Nature and Pattern of New jersey's Marine Life Resources.August, 1964. New jersey's Water Resources. 1965. Parks and Recreational Land Use in New jersey. August, 1965. A Pilot Open Space Plan for New jersey, (an unpublishedplanning report). 1962. The Setting for Regional Planning in New jersey. 1961. Summer Camps in New jersey. June, 1965. Waterfront Utilization in Northeast New jersey. December, 1962. New Jersey Division of Water Policy and Supply. Flood DamageAlleviation in New jersey. Water Resources Circular #3 Trenton: Stateof New Jersey, 1961. Niering, William A. Nature in the Metropolis. New York:Regional Plan Assoc- iation, June, 1960. Outdoor Recreation Resources Review Commission.Reports. Washington: Government Printing Office, 1962.

122

nr. Outdoor Recreation for America. 1.Public Outdoor Recreation Areas Acreage, Use, Potential. 2.List of Outdoor Recreation Areas 1960. 3.Wilderness and Recreation A Report on Resources, Values, and Problems.

4.Shoreline Recreation Resources of the UnitedStates. 5.The Quality of Outdoor Recreation:As Evideaced by User Satis- faction. 6. Hunting in the United States Its Present and Future Role. 7. Sport Fishing Today and Tomorrow. 8.Potential New Sites for Outdoor Recreationin the Northeast. 9. Alaska Outdoor Recreation Potential. 10.Water for Recreation Values and Opportunities. 11.Private Outdoor Recreation Facilities.

12.Paying for Recreation Facilities.

13.Federal Agencies and Outdoor Recreation. 14.Directory of State Outdoor Recreation Administration. 15. OpenSpace Action.

16.Land Acquisition for Outdoor Recreation Analysis of Selected Legal Problems.

17.Multiple Use of Land and Water Areas. 18. ALook Abroad, the Effect of Foreign Travelon Domestic Outdoor Recreation and a Brief Survey of Outdoor Recreationin Six Countries. 19.National Recreation Survey.

20.Participation in Outdoor Recreation: Factors AffectingDemand Among American Adults. 21.The Future of Outdoor Recreation in MetropolitanRegions of tbe United States.

22.Trends in American Living and OutdoorRecreation.

23.Projections to the Years 1976 and 2000: Economic Growth,Popu- lation, Labor Force and Leisure, and Transportation.

123 24.Economic Studies of Outdoor Recreation.

25.Public Expenditures for Outdoor Recreation. 26.Prospective Demand for Outdoor Recreation.

27.Outdoor Recreation in tbe U. S.: Its Literature and History. Rippey, Donald.Ways and Means of Preserving Prime Agricultural Landin An Exploding Urban Setting, witb Reference to tbe State of New Jersey.A planning report, Middlesex County Planning Board, June, 1966. Siegel, Shirley Adelson.Tbe Law of Open Space,New York: Regional Plan Association, 1960. State Promotion Section.New Jersey Boat Basins.2nd Listing, revised, Trenton: State of New Jersey, Spring, 1966. Strong, Ann Louise.Open Space in tbe Penierdel Region: Now or Never. Philadelphia: Penjerdel, 1963. Strong, Ann Louise. OpenSpace for Urban America,Washington: Department of Housing and Urban Development, 1965. Whyte,William H. Jr.Cluster Development.New York: American Conservation Association, April, 1964.

TABULATIONS New Jersey Division of State and Regional Planning.Tabulations.Trenton: State of New Jersey. New Jersey State Owned Real Property.PBT-7, March, 1964. United States Government Owned Lands in tbe State of New Jersey. PBT-13, January, 1964.

LEGISLATION AND LEGAL CITATIONS Berman v. Parker,348 U.S. 26, 75 S. Ct. 98 (1954). Cbrinko v. Soutb Brunswick Twp. Planning Board 77 N.J. Super 594, 187 A. 2d. 221 (1963). County Court of St. Louis County v. Griswold,58 Mo. 175, 196 (1874). Housing Act of 1961,as amended by the Housing and Urban Development Act of 1965,Title VII, Public Law 89-117, 42 U.S.C. 1500-1500e. Housing and Urban Development Act of 1965,Public Law 89-117, 79 Stat 451. Land and Water Conservation Fund Act of 1965.Public Law 88-578,78 Stet. 897.

124 Midtown Properties, Inc. v. Madison Twp.,78 N. J. Super 471, 189 A. 2d. 226 (1961). Morris County Land Improvement Co.v.Twp. of Parsippany-Troy Hills, 40 N. J. 537, 193 A. 2d. 232 (1963). New jersey Statutes Annotated: 13:1-18. 13:2-6. 13:8-22, 23. 13:8A-1 et. seq. 40:12-14. 40:37-33, 81, 95, 101, 204 et seq. 40:55-1 et seq., 1. 38. 40:61-1, 19, 22. 21, 22. 22, 22. 6. 54:4-33, 23.1 et seq. L. 1964. 54:5-117. State of New jersey Constitution Art. IV, Sec. 6, para. 3, 1947. Art. VIII, Sec. 3, 1947. Watershed Protection and Flood Prevention Act c. 656 of 1954, 16 U.S.C. 1001 et. seq., 33 U.S.C. 701 b.

125 DIVISION OF STATE AND REGIONAL PLANNING

BUREAU OF STATEWIDE PLANNING Donald H. Stansfield, Chief T. Ledyard Blakeman, Advisor

STATEWIDE PLANNING SECTION Beatrice B. Blakeman, Snpervising Phonier Walter Brennfleck, Supervising Planner *Richard N. Binetsky, Principal Planner Jay T. Fiedler, Principal Planner David C. Mattek, Principal Planner Jerry H. Eure, Senior Planner Nelson S. Silver, Senior Planner Thomas Norman, Assistmit Mayne.). Richard Z. Osworth, Assistant Planner Michael S. Van Sickle, Assistant Planner John R. Parke, Junior Planner John F. Azzaretto, Stmlent Assistant

CAPITAL IMPROVEMENTS PROGRAMMING SECTION Roger Scattergood, Section Chkf William J. Bolen, Principal Planner

GRAPHICS SECTION William A. Billings, Snpervisor Beatrice F. Smith, Senior Draftsman Andrew A. Wallace, Senior Draftsman

*The final draft of this report was prepared by Richard N. Binetsky

Acknowledgement is made to Stuart 1. Turner and Alan W. Steiss,former Section Chiefs in the Bureau of Statewide Planning, for supervision in thepreparation of this report.

Acknowledgement is also made to Nancy Carr Mattek, Charles A. Boster,Susan Rogers Vitella and Donald E. Shirar, formerly with the Division, for their contributionsto this report.