CITY OF WARREN COMPREHENSIVE PLAN

1998

Prepared by the

WARREN CITY PLANNING COMMISSION

for the

CITY OF WARREN

Assisted by

GRANEY, GROSSMAN, RAY AND ASSOCIATES Hanisville, Pennsylvania

This document was financed, in part, by a State Planning Assistance Grant (SPAG) from the Commonwealth of Pennsylvania, Department of Community and Economic Development. City of Warren Council Members

John R. Nemcovsky, Mayor

Mary E. Conarro James P. Hunter Mark Danielson Mark A. Phillips Karen Davis Mark Zavinski

A. Kenneth Dupont, City Manager David Hildebrand, Planner

Warren Citv Plannine Commission

David See, Chairman

James Carbon Ellen Shepherd Peter Mangini William Tarpenning Pat Scutella Donna Zariczny TABLE OF CONTENTS

..

Background Analysis

Population ...... P-1 .. Agecharactensacs ...... P-3 Gender ...... P-5 Race ...... P-5 HouseholdTypeandSize ...... P-5 PersonsPerHousehold ...... P-7 Group Quarters ...... P-7 .. PopulationProjections ...... P-8 Preschoolers (0-4) ...... P-11 SchoolAgers(5-19) ...... P-11 Young Adults (20-34) ...... P-11 Adults (35-64) ...... P-11 Older Citizens (65+) ...... P-11 FutureHouseholds ...... P-12

EconomicBase ...... E-1 Personallncome ...... E-1 LaborForce ...... E-3 . Occupation and Employment Characteristics ...... E-4 SectorAnalysis ...... E-4 Tax Base ...... E-6 CulTentEconomicInitiatives ...... E-6 Summary ...... E-8

Housing ...... H-1 Introduction ...... H-1 Housingcount ...... H-2 HousingType ...... H-2 HousingTenure ...... H-3 AgeofHousing ...... H-4 GroupQuarters ...... H-5 Housingvalues ...... H-5 Housing Affordability ...... H-7 HousingSurvey ...... H-8 Code Enforcement ...... H-10 Housing Rehabilitation ...... H-10 AssistedHousing ...... H-10 Summary ...... H-11 I E LandUse ...... 1u-1 Introduction ...... 1u-1 1’ ExistingLandUse ...... 1u-2 ExistingZoning ...... 1u-6 I: Summary ...... 1u-7 Transportation ...... T-1 Air ...... T-1 c Rail ...... T-2 RoadsandHighways ...... T-2 .. RoadCharactenstlcs ...... T-2 I Route6 ...... T-3 Route62 ...... T-3 SR6006 ...... T-3 I; Conewango Avenue (SR 1011) ...... T-3 Jackson Avenue (SR 1021) ...... T-4 ParkAvenue(SR1013) ...... T-4 HemlockStreet(SR1006) ...... T-4 Market Street (SR 1017) ...... T-4 6 Hickory Street Bridge/ Crescent Park. Mohawk Avenue (SR 3005) ...... : ...... T-4 Pennsylvania Avenue (West of Ludlow) ...... T-4 City Streets ...... T-5 a TruckUse ...... T-5 Bridges ...... T-5 Trafficsignals ...... T-6 1. Transit ...... T-6 Accidents ...... T-7 Parking ...... T-8 I. Analysis ...... T-9

Community Facilities and Services ...... CF-1 I Introduction ...... CF-1 Public Buildings ...... CF-1 StormDrains ...... CF-2 1 Sanitary Sewers ...... CF-5 Recreation ...... CF-7 I Activeparks ...... CF-8 BeatyPark ...... CF-8 Clifford R . Betts Memorial Park ...... CF-8 1 Betts-Jacksonpark ...... CF-9 John Carbon Memorial Park ...... CF-9 Conewango/Allegheny River Pool Park ...... CF- 10 I Crescent ...... CF-10 DeFrees Park ...... CF-10 I MemorialPark ...... CF-10 1...... CF-1 1 Passive Parks ...... CF-I 1 Celoron Park and the General Joseph Warren Park ...... CF-I 1 Clemens and Wetmore ...... CF-11 Fourth Avenue, Levee, Reier, Boulevard, and Liberty Mall Parks ...... CF-11 Pennsylvania Avenue Park ...... CF-11 I Point Park ...... CF-11 . Morck Park ...... CF-12 Scofield Park ...... CF-12 I Washington Park ...... CF-12 Waterfront , ,. . , . . , ,. . , ...... CF-12 YMCA ...... CF-12 I Warren County Scho Ct ...... CF-12 Analysis ...... Non-Municipal Corn y Facilities ...... I Library ...... Schools ...... CF-15 Water ...... CF-16 I Public Services ...... Police ...... Fire Service ...... CF-17 I Warren General Hospital ...... CF-18 I Struthers Library Theater ...... CF-19 Historic Resources ...... HR-1 I Trbles Table P-I, Population Change -Warren City, Warren County, and State ...... P-1 I Table P-2, 1990 Age Characteristics - Warren City, Warren County, and Pennsylvania Table P-3, General Household Types - Warren City, Warren County, and Pennsylvania Table P-4, Detailed Household Types in Warren - 1990 ...... I Table P-5, Population Projections -High Series - City of Warren ...... P-10 Table P-6, Population Projections - Low Series - City of Warren ...... P-10 Table E-1, 1990 Census, Median Income Characteristics ...... E-1 I Table E-2, Comparison - 1980-1990, Median Household ...... E-2 Table E-3, Comparative Unemployment Rate - Warren County, Pennsylvania, United States, 1990-1996 Annual Average ...... E-3 I Table E-4, Jobs and Wages, Warren County - 1995 ...... E-6 Table H-I, Housing Count -Warren City, County, and State ...... H-2 I Table H-2, Housing by Type - Warren City - 1980 and 1990 ...... H-3 Table H-3, Housing Stock by Age - City of Warre Table H-4, Value of Owner-Occupied Housing - I Table H-5, Median Value, Owner-Occupied Dwellings - Warren City, County, and State ...... H-6 Table H-6, Median Rents - 1990, City of Warren, County, and State __ ...... H-7 I I Table H.7. Housing Affordability Index ...... H-8 Table L.1. Existing Land Use .City of Warren ...... 1u-3 Table CF.l. Park System Analysis .Warren. Pennsylvania ...... CF-13

Population Change by Percent .Warren City. Warren County. State ...... P-2 Plates

City of Warren. Pennsylvania ...... Frontispiece Problem Housing ...... Follows H-9 Existing Land Use ...... Follows 1u-2 Generalized Zoning ...... Follows 1u-5 Road Classification and Traffic Volumes ...... Follows T-2 Intersection and Mid-Block Accidents. 1993-1995 ...... Follows T-7 Parks and Community Facilities ...... Follows CF-1 Drainage Problem Areas ...... Follows CF-3

Comprehensive Plan

Preface ...... Page 1 Plan Philosophy ... Page 1

Housingplan ...... Page3 MaintainQuality Housing ...... Page3 Improving Current Housing ...... Page 3 Tax Abatement ...... Page4 Ownership Assistance ...... Page 4 NewHousingUnits ...... Page4 SpecialNeeds ...... Page5 OtherIssues ...... Page5 ExpectedtoReside ...... Page5 Barriers to Affordable Housing ...... Page 6

LandUsePlan ...... Page7 Land Use Policies ...... Page 8 TheLandUsePlan ...... Page9 Implementation ...... Page IO Zoning ...... Page10 Subdivision and Land Development ...... Page 12

Transportation Plan ...... Page14 Maintenance ...... Page14 Regional Transportation Concerns ...... Page15 Air ...... Page 15 Rail ...... Page 15 Roads and Highways ...... Page 15 Warrencity ...... Page16 GeneralConcerns ...... Page 17 Projects ...... Page 18 Proposed Intersection Studies ...... Page 18 ConidorStudies ...... Page18 SpecialNeeds ...... Page19 Transit ...... Page 19 Parking ...... Page19 Bikeways ...... Page20

HistoricConcerns ...... Page21

Community Facilities Plan ...... Page 23 Public Utilihes...... Page 23 StorrnDrains ...... Page23 Sanitary Sewer System ...... Page25 Water ...... Page27 PublicBuildings ...... Page27 Needs for Additional Study ...... Page 27 Recreation ...... Page 28 TheCARPool ...... Page29 Public Safety Services ...... Page30 Other Community Facilities ...... Page 30

Economic Development Plan ...... Page 31 Manufacturing ...... Page 31 Services ...... Page32 Downtown ...... Page32

Plan Relationships ...... Page 34

Implementation - Action Plan ...... Page 36 Tables

Table H.1. City of Warren. Expected to Reside ...... Page 6

LandUsePlan ...... FollowsPage9 Transportation Projects ...... Follows Page 15 Proposed Road Classification ...... Follows Page 16 Proposed Historic District ...... Follows Page 21 Community Facilities Plan ...... Follows Page 27 City of Warren

N

1998 Graney. Grossman, Ray, and Associates This Project was funded in part with a State Planning Assistance Grant (SPAG) from the PA Dept. of Community and Economic Development. km POPULATION city’s population is its primary asset as well as its primary customer. AAs taxpayers, residents provide Warren’s operating capital; as citizens, they “consume” its service. Just as any retailer must know its market, so too must Warren City understand the “demographics” of its consumers.

Since 1900 to the most recent Census (1990), Warren’s population has grown from 8,043 to 11,122, a 38 percent increase. Yet, this period was not one of sustained growth. Warren’s highest population phase was from 1920 to 1960, when it hovered between 14,000 and 15,000. Since 1960, there has been a marked reduction.

- ,...... - . . r ...... is its primary asset : TbLE.. . P-i .. .. . :’. .. . POP~hONC&CE ,...... as well IIS its primry Wm’CTN. WARRJlN COUNTY. AND SI’AW . ” . , ...... customer. .:...... , . .. .m ’ S ’” .‘.a mr . ,‘-S rn .. s ..m...... ’ W- Ci& 14304 -2.3 12,998 -10.4 12,146 65 11,lU 4.4 WmCouory. .’ 45582. 6.8 41.682 . 4.6 47.449 . 45 45.050 -5.1 Pckrylvmia 11319366 7.8 11.800.766 ’. 4.3 11.863.895 0.5 11.881.643- . . 0.1 ...... Source: Vnriour Census Repam, previous planning mmdicr . .

Population - Warren Ciiy Page P- I I 17 POPULATION CHANGE BY PERCENT c WARREN CITY, WARREN COUNTY, STATE

I 0.1 -,

c 0.05

I WARREN CITY -..'.. ----~---...... ---~~------I: ! WARREN COUNTY -0 05 ...... '.. \ ! i i ...... I ...... I PENNSYLVANIA -0.1 .'.. sl. , 1 ...... j -0.1 5 - I l&O 1970 1&0 I& i i CHART P-1 1 These three separate trends can be best explained as follows: Warren Citv: Population losses are tied to economic problems and out- I migration to the suburbs. Warren County: Its changes are reflected more by economic conditions (i.e., i the industrial restructuring of the 1980s). Pennsvlvania: Its continued growth is focused primarily on southeast I Pennsylvania which has experienced sustained good economic times. Demographics influence a wide variety of needs from community facilities to recreation, I housing, and jobs. To help assess such needs, two elements are essential, the characteristics

I Popularion - Warren Ciry Page P-2 i 1. r of the City's current population and its future properties. The following segments of the II Population section will examine these topics. Age Characteristics: One of the most critical characteristics of population is age. The I Census Bureau provides age data in se-gnents called cohorts. These are presented in five- year age groups (Le., age 0-4 inclusive). Overall, there are some 18 cohorts reported stopping at the 85 and over category. Furthermore, cohorts can often be further separated I by gender yielding 36 separate bits of information. Unfortunately, this much detail merely serves to create confusion. For the purpose of analysis, some of the cohorts are combined in logical groups. 'Table P-2 contains a comparison of age groups using Warren City, the I County, and the Commonwealth.

I TABLE P-2 1990 AGE CHARACTERISTICS c' WARREN CITY, WARREN COUNTY, AND PENNSYLVANIA Warren Warren E Age Group City . 5 County Pennsvlvania* 0-4-Preschoolers 791 7.1 3,024 6.7 6.7% E 5-19 - School Agers 2,085 18.7 9,432 21.0 19.9% 20-34 - Young Adults 2,452 22.0 9,151 20.3 23.4% 35-64 - Adults 3,727 33.5 16,390 36.4 34.7% l 65+ - Older 2.067 18.6 7,053 15.7 15.4% Total 11,122 100.0 45,050 100.0 100.0%

I: *Percentages only I 11 Source: 1990 Census, STF-1

I Table P-2 is arranged to assist policy makers. It separates the age groups by life activity. I These are categorized as follows: Preschoolers, Ages 0-4: Most needs for this group are met in the home. The cohort is an indicator of future growth. Also, with an increasing number of families needing 1 day care, this population takes on special significance (consists of one age cohort). I

I Popularion - Warren Ciry Page P-3 I I 1 School Agers, Ages 5-19: This age bracket demands extensive community investment. Schools are needed, most recreational facilities service this group, and I social needs begin (consists of three age cohorts).

Young Adults. Ages 20-34*: Perhaps the most critical population group. It is the age I of family formation, childbearing, and home buying. This is the group that carries I the community into the next generation (consists of three age cohorts). Adults, Ages 35-64*: If the prior group is critical for the future, this category is necessary for the present. Typically, it is the cohort group that owns homes, has the I better jobs, and contributes most of the social and economic welfare of a community i (consists of six age cohorts). Older, Aged 65+: Often, at age 65, persons begin to retire. Incomes start to diminish and housing requirements change. For some older citizens, health care needs i increase and mobility could be impaired (consists of remaining age cohorts).

*Note: The “Baby-Boom’’ generations are those born between 1946 and 1964 - are i in these two segments. “Boomers” were aged 26 to 44 in 1990. I In Warren, these groups had varying traits in 1990. The Preschoolers (0-4) made up 7.1 percent of the population. This is a little surprising, as that proportion exceeded County and i State percentages, something unusual in an urban setting. School-Age (5-19) children comprised 18.7 percent of all persons. This was slightly lower than the County and State figures, and is typical of urban areas where populations tend to I be older. i The Young Adults (20-34) segment represented 22 percent of Warren’s population. This was slightly higher than expected, and was reflected by the population of “preschoolers.”

i While the prior category was larger than expected, the Adult (35-64) was smaller. This is unusual, as the influence of the Baby Boom typically increases this age segment. As can be i seen, both the County and the State proportion of “adults” are hgher. Finally, the Older (65+) category is found. Here, the results were very much in the urban 1 norm. Warren had a much higher percentage of this age group than found in County or State figures. I

i Popirlntion - Warren Ciry Page P-4 I I i In summary, Warren’s population is dominated by the very young, young adults, and its older citizens. This mixture is truly unusual, but the skew is not so great that some I generalities cannot be made: I . The need for facilities for young families is likely to be present for some time. . Services and housing for older citizens must be analyzed. I . The middle age - adult group - is slightly smaller than normal. The future I retention of these cohorts is financially important to the City. Gender: According to the 1990 Census, the City’s population is composed of 5,177 (46.5 percent) males and 5,945 (53.5 percent) females. Here, Warren fits the typical scenario, as 1 urban places often have more women than men. This is for two reasons. First, as a general rule, women live longer than men. Secondly, women often prefer the expanded level of I services offered by urban locations.

Race: Racially, the City’s population is relatively homogenous. According to the 1990 E Census, 11,040 (99.3 percent) of its residents were white, 9 black, 29 Native American, 34 Asian or Pacific Islander, and 10 of “other races.” There were 32 persons of Hispanic l origin. Household Type and Size: Information concerning families and households is important I to communities, and especially to their governing bodies. Many of the services that municipal governments provide are done on a housing-unit basis. Table P-3 compares I general household types between Warren City, Warren County, and Pennsylvania.

TABLE P-3 i GENERAL HOUSEHOLD TYPES WARREN CITY, WARREN COUNTY, AND PENNSYLVANIA

i Total I Households Non-Family -%- 0 Warren City 4,775 1,828 38.3 2,947 61.7 Warren County 17,244 4,725 27.4 12,519 72.6 I Pennsylvania 4,495,966 1,339,977 29.8 3,155,985 70.2 I Source: 1990 Census, STF-1A

I Popularion - Warreri Ciy Page P-5 I I I For the purpose of the Census, “A household includes all the persons who occupy a housing unit.” A household could consist of a traditional family, a single person, or a group of 1‘ unrelated persons, such as four college students who share an apartment. Conversely, a family must contain at least two persons and they must be related by blood, marriage, or I adoption. People who live in nursing homes, dormitories, or are in such places as the Warren County Jail are counted in group quarters, not households.

I As urban centers have health facilities, cultural and religious resources, as well as critical public utilities, they attract a greater percentage of multi-family dwellings. This being the I case, urban areas are more attractive to single persons who wish to rent. That tendency is reflected by Table P-4. Though the percentage of households that are 1 families (61.7 percent) is lower than the County or State figure, this is not surprising. In fact, it is very much consistent with other nearby urban places. The family group is important to Warren, as they tend to create a more stable community environment. It also I suggests that traditional family-centered services, i.e., recreation and education, are important.

1 Table P-4 examines household characteristics in more detail.

I TABLE P-4 DETAILED HOUSEHOLD TYPES I IN WARREN - 1990

Number % I Household Tvpe Households Total

Family Households 2,947 61.7 1 Married Couple Families 2,309 48.4 Male Household Families 128 2.7 I Female Household Families 510 10.7 Non-Family Households 1,828 38.3 Householder Living Alone 1,642 34.4 I Householder 65 and Over 768 16.1 I Source: U.S. Census of 1990, STF-1 I

I Popularion - Warren Ciy Page P-6 I Table P-4 reveals some other very interesting characteristics. Within the category of family household in 1990, one fifth are headed by a single parent. Overwhelmingly, these are females. National studies clearly document that such families tend to have much lower incomes. That generalization is me in Warren. Female-headed families, with children under 18, have a poverty rate six times that of all families. Another interesting fact is found in the non-family households. Here, the clear majority are single-person households and a I' goodly percentage are composed of persons 65 or older, retirees. I. As the wage tax, from earned income, represents the most important general fund income source for Warren, the number of such households (sic, single parent, single person 65+) must be of some concern.

Persons Per Household: The persons per household figure is another piece of data which is generated by the Census Bureau. Essentially, it divides the total number of persons living in households by the total number of householders. For Warren City in 1990, this figure was 2.27. In comparison, the Warren County average was 2.54 and Pennsylvania's was 2.57. Thus, local households are, on average, about 11 percent smaller than the norm. The reasons are obvious from the preceding section. This pattern is similar to 1980 results which were 2.44,2.76, and 2.74 for the City, County, and State, respectively. The conclusions are that Warren has relatively small households, and they have been shrinking for the past decade. Why is this important? It does have some obvious applications:

. Public Utilities - Smaller households will likely consume less electricity, water, and gas than the norm. Also, they will generate &flow to Warren's already overloaded sanitary sewer service.

. Housino - The need for housing is a function of population and household size. In 1980, every 1,000 persons, in Warren City, required 410 housing units. By 1990, the average 1,000 citizens needed 441 homes -- an increase of 31 units. For the household population of Warren City in 1990 that meant an extra 333 housing units were needed to accommodate them over a comparable population in 1980. Perhaps the most interesting statistic is that .. while Warren's population fell by 1,024 (1980-1990), the occupied households increased by 183!

The national trend in household size has been downward over the past few decades. Generally, this decline is attributed to an increase in single-parent families and single-person households. According to Census Bureau news releases, they believe this trend is slowing nationally. However, in Warren City, many of the causal factors are still in place.

Population - Warren Ciry Page P-7 Group Quarters: Those persons who are not in households can be found in group quarters. This category includes various institutions, such as nursing homes as well as other group facilities (for example, college dormitories). In Warren City, the 1990 Census reported 260 persons in group quarters. This is about 2 percent of the City’s population. Of those individuals so classified, 174 were in nursing homes. The remainder, 86, were in the County prison.

Popularion - Warren Ciry Page P-9 POPULATION PROJECTIONS

ne of the important tasks of a comprehensive plan is to predict the number of residents 0in the Study Area for future years. The usefulness of such information is obvious. There are implications for community services, housing needs, as well as a measurement of general vitality. There are several options available to obtain future population figures. Various state agencies produce such numbers and there are even proprietary estimates available. For the City of Warren's Comprehensive Plan, it was decided to prepare a cohort survival, adjusted for migration, population projection. This is a tedious, complex, undertaking. And, as is common with all such predictions, it can under or over estimate actual future populations. But, of all of the demographic projection options available, this process has a few valuable characteristics:

. It uses local historic data. . It is based upon the unique population characteristics of the Study Area.

. It yields future age profiles as well as total figures.

To gather input for a cohort survival (adjusted for migration) mathematical model, certain basic information was needed. For the City of Warren, they were as follows:

. AgdGender Cohort Data, gathered from the 1990 Census, the base year of the projections series. Cohorts are 5-year groupings for males and females which begin with the 0-4 year olds and end with an 85+ group.

. Survival Rates: The incidence of deaths by cohort, per each 1,000 of population, is needed to estimate how many persons of an age group cohort are likely to survive the next 10 years. Fortunately, rather detailed data is available from the Pennsylvania Department of Health. Statewide figures were used to create survival rates.

. Fertility Rates: A population is replenished by births. Once again, the Pennsylvania Department of Health provided the data. A composite rate was prepared and applied to the total number of females in the childbearing years.

. Migration Rates: Migration rates were established for Warren City using a three-step process. First, the 1980 population by cohort was determined from

Population - Warren City Page P-9 the 1980 Census. To each 5-year cohort, male and female, survival rates were applied to simulate the passing of a decade. The 1990 projection figures were compared to the 1990 “actual” census data. The differences, plus or minus, became the crude migration rates. This projected 1990 total was then compared to a 1990 population estimate, determined by adding to the 1980 population the natural increase (excess of births over deaths) experienced in Warren City in the decade of the 1980s. The cohort model indicated that Warren’s 1980 population, assuming no migration, would grow to 12,268 by 1990. Natural increase (excess of known births over deaths) in the same period projected a population of 12,339. The difference was 29 persons - a mere two tenths of one percent. This demonstrated the cohort survival model, as yet unadjusted for migration, was accurate.

However, the decade of the 1980s was a unique one. In 1983, the nation’s economy went through the most dramatic readjustment since the Great Depression of the 1930s. As a consequence, most Pennsylvania communities suffered from a population out-migration as workers moved to the Sun Belt in search of jobs. Warren County did not escape its share of economic woes. In 1983, the County’s annual unemployment rate was 14.2 percent, higher than that of either the United States or Pennsylvania. Yet, since 1990, matters have changed. In those years, County annual unemployment rates have been below both State and national figures. In the three instances where local figures were higher, they were only so by one or two tenths of one percent.

Overall, the Warren Area’s recent economy has consistently performed well. Thus, the cause of out-migration -jobs - so prevalent in prior years, is no longer so pressing. Consequently, migration rates at one half those experienced in the decade of the 1980s were used for the projection model.

The information compiled in the preceding process was gathered and two sets of population projections were prepared. A “high” series to the year 2020 was prepared using a ‘‘natural‘’ increase scenario. This is actually an optimistic approach as both Warren City and Warren County have experienced out-migration over the past two decades. For the low series, the migration rates previously discussed where used.

The high series shows a modest increase to the year 2000, then a gradual drop to the year 2020. Such a demographic pattern indicates that females, of childbearing years, will fall in number, to below the zero population growth figure.

The low series displays a steady downward trend. This is a combination of losses, due to out-migration as well a drop in childbearing females. A look at projected age category characteristics is instructive.

Popidorion - Warren Cie Page P-IO TABLE P-5 POPULATION PROJECTIONS - HIGH SERIES CITY OF WARREN

k -1990* rn -2010 2020

04 79 1 696 649 607 5-19 2,085 2,214 2,051 1,915 20-34 2,452 2,034 2,180 2,152 35-64 3,727 4,268 4,412 4.262 65+ 11,122 11,298 11,045 10,990 I- *I990 Census figures I’ Source: Consultant projections TABLE P-6 POPULATION PROJECTIONS - LOW SERIES i CITY OF WARREN I- & -1990* m 2010 2020 04 791 687 687 598 5-19 2,085 2,082 2,005 1,859 20-34 2,452 1,909 1,933 1,828 I 35-64 3,727 4,047 4,000 3,832 65+ J&jQ 11,122 10,600 10.475 9,890

* 1990 Census figures I Source: Consultant projections

I Frankly though, both sets of these projections are more optimistic than the Census Bureau “Estimates.” According to a release dated 1997, the Bureau estimates for the 1996 population of Warren City was 10,347 persons. That figure is nearly 1,000 persons under I the projection of the “High” series (1996 population - 11,227). It is also over 400 less than the “Low” series (1996 population - 10,809). Yet, there certainly are some indicators that I the Bureau’s figures are low. For example, between 1990 and 1997, there was an official net loss of housing units in the City, but only a loss of 25. Conversely, the real estate market, though not booming, is reported as stable. Furthermore, a number of conversion I aprutrnents were constructed without permits. Used homes sell and rentals are being leased.

I Popularion - Warren Ci? Pnge P-1 I I I Finally, a look at recent unemployment data reveals a strong local economy. It must be remembered that the Census Bureau’s estimates are just that. They are based upon I mathematical models and not inter-decennial counts. Consequently, the issue is one of Bureau assumptions for its estimates versus the assumption used in the Population Projection. Given the local economy and housing market, the projections set forth in ths I report appear valid. i Preschoolers (0-4): Under both series, a steady drop is predicted for the oncoming years. Both scenarios show a loss of more than 20 percent.

I School Agers (5-19): Under the high series, a marked increase to the year 2000 is seen, then a steady drop. The low series has no increase. Losses by 2020 range from -8 percent i (high) to 11 percent (low). Young Adults (20-34): This is the critical age of family forming. The high series projects 1 a severe drop in 2000, then a slight recovery to 2020 (-12 percent). The low series sees an even more severe drop - but no recovery (-25 percent). Historically, these age groups are 5 the most likely to relocate, due to economic reasons. Adults (35-64): Adults are the backbone of the community. Many are home owners and often their wages are good. The high series sees an increase in these persons (+14 percent). 1 These are the “Baby Boomers.” Due to the size of the “Boomers,” even the low series i predicts an increase of 3 percent. Older Citizens (65+): Here, the high series sees an almost static situation, with a change of less than 1 percent. Conversely, the low series predicts a drop of 14 percent. Please 1 remember that the Baby Boomers will not begin to turn 65 until the year 2011; thus, less than half of them will be in this bracket by 2020. It must also be noted that healthy, affluent retirees are a highly coveted age group. Many southern states have active “recruitment” i programs to lure these older citizens to their “sunny climate.” Consequently, out-migration i in this group is not surprising. The results of these projections are similar to the Census Bureau’s middle series of projections whch were released in 1992. Although the overall population in the United I States was predicted to increase by 50 percent over 60 years (1990-2050), there were vast differences between different groups which compose the United States as well as among the I states themselves. For example, State projections (only available to 2010) give Pennsylvania’s highest growth to that date as 12,331,000; an increase of some 3.7 percent, while the national increase was estimated at 12.9 percent. Thus, Pennsylvania’s overall I growth pattern is about one quarter that for the United States. In addition, different ethnic

I Population - Warren City Page P-12 I groups have varying growth projections. The nowHispanic white population, Warren’s overwhelming ethnic majority, should see a 60-year increase of only 5.8 percent. Hispanic, Asian, and Black segments are assigned much higher growth rates. Thus, the conservative projections of Warren City are generally in line with national demographic trends.

Future Households: Actually, the household is the key unit of municipal concern. Householders need dwellings, consume utilities, and require various services. To translate the raw population projection numbers to households, some assumptions and adjustments are required. Perhaps first is the need to use a mid-point projection figure. If the future population projections for Warren, the High Series and the Low Series, are averaged, the following population forecasts are yielded:

Year 2000 - 10,949 Year 2010 - 10,760 Year 2020 - 10,180

The next requirement is to estimate the size of future households. As noted previously, the number of persons per household is dropping in Warren City. In fact, between 1980 and 1990, it fell about 7 percent. The Census Bureau reports that trend is slowing. Yet, some of the historic factors causing the previous decline are still present in Warren. If an assumption can be made that the future reduction in household size will average only one half prior figures a factor of -3.5 percent per decade can be used. i To translate future population projection to households, the following formula was devised I Average population projected - group quarters (260) + average household size 1. That formula yields the following:

I -Year Households Decennial Change I 2000 4,88 1 +lo6 2010 4,976 +20 1 I 2020 4,990 +14 I Source: Census Reports and consultant’s calculations The preceding scenario indicates that if the population of Warren City changes per the average of the population projections, the number of households will increase to 2010. I After that point, they will be essentially stable. This will happen in spite of a forecast i population decline.

Popnlarion - Warren City Page P-I3 (i I] Ii ECONOMICBASE I! he purpose of this element of the Background Analysis is to .- Tprovide an overview of Warren's economy, another aspect needed to arrive at a comprehensive picture of the City. Primary sources for data in this section are reports of the U.S. Census Bureau and various publications of the Commonwealth.

Personal Income: Typical measurements of personal income focus on the household, the family, and the individual. All Census data for these categories are based upon the respondent income for the prior year. Thus, the 1990 Census reports on 1989 income information. This Table E-1 sets forth the City of Warren data along with the County section of the and State and three nearby communities. Background Analysis will provide an overview of Warren's economy.

. ....~. . Warren- .. >.: '-:County ..$z6,3s~.- --.: $3i.w2 .. :j. $i2;350'; i . , Pennsylvania .-' $29,969 .. $34,856 ,. $14,068 ,'...... ,.C~...... ~. Sourie: 1990 Census; STF-3A Files. .j

This table indicates that local income is less than the State but is generally equivalent with that of the County. Neither fact is particularly surprising. Overall, the income levels of northwestern Pennsylvania have historically lagged behind those for the entire Commonwealth. The primary reason for ths is the long-term prosperity of southeast Pennsylvania. Its large population base and income characteristics skew Statewide data upward.

I! Economic Bare - Warren City Page E- I The general parity with County figures is a little unusual. Typically, urban places rank significantly below County income figures. For Warren City, only the data for household income demonstrates that trend. There, the City is about 5 percent under County figures. Family income figures are nearly on par, and per capita data gives the City an 11 percent edge.

Of more interest is the comparison with other nearby third-class cities. In all categories, Warren outpaces these other economies, and it does so handily. Why? That question is difficult to answer. One suggestion is that Warren city has not seen the level of suburbanization these other areas have experienced. Traditionally, the more affluent 'I families are those which migrate to suburbs. A second reason is simply that Warren's economy is a more prosperous one.

Another method to measure local economic health is to compare income indicators of the 1990 Census with the 1980 Census. This is done in two ways. One is a straight-change comparison. The second is to adjust 1980 data to 1990 levels using an inflator based upon the Consumer Price Index. This measures income changes using a constant of purchasing power.

...... TABLE E-2 ...... , ..... COhWAkISON - 1980-1990: . .~ MEDIAN HOUSEHOLD INCOME I...... 1980* .,. 1980-1990 Adjusted 1980 Adiusted -1990 ' Chance Change

Warren City $14,786 $24,781 $24,948 +$10,162 (+68%) +$167 (+1%) Warren County $16,445 $27,561 $26,351 +$9,906 (+bo%) -$1,210 (4%) Pennsylvania $16,880 $28,291 $29,069 +$12,189 (+72%) +$778 (+3%)

*Adjusted via an inflator, based upon the Consumer Price Index.

Source: U.S. Census, 1980 and 1990; consultant's calculations

Table E-2 shows clearly how misleading unadjusted data can be. On an unadjusted basis, all three areas experience a healthy growth in income. However, once inflation is factored into this equation, it becomes evident that City incomes - measured in purchasing power - hardly changed. The picture for the County was modestly negative, and for the State, modest growth.

Economic Base - Warren City Page E-2 Detailed up-to-date estimates of income are not readily available on a municipal basis. However, the Census Bureau recently published county tables for 1993. They estimate Warren County’s median-household income at $29,716; a 12 percent increase since 1989. It can be assumed that Warren City had a similar experience.

Overall, Warren seems to have endured the economic turbulence of the 1980s quite well.

Labor Force: Labor force participation rates, per the Census, are based upon the number of persons aged 16 and over in the civilian labor force. For Warren City, that figure was 62.2 percent, in 1990. This was very similar to the rate in Warren County (61.2 percent), and the Commonwealth (61.7 percent). In a similar vein, Census-reported 1990 unemployment rates were close, the City’s at 4.6 percent, the County’s at 5.5 percent, and the State’s at 6.0 percent.

The Census Bureau only measures unemployment rates every ten years. The Pennsylvania Department of Labor and Industry does it on a monthly and annual basis. In the Warren area, such rates are only determined for the County. Comparative unemployment since 1990 is presented on Table E-3. Please note: Due to different data sources, these figures vary from the Census figures presented in the preceding paragraph.

TABLE E-3 COMPARATIVE UNEMPLOYMENT RATE* WARREN COUNTY, PENNSYLVANIA, UNITED STATES 1990-1996 ANNUAL AVERAGE

Warre; County Pennsvlvania United -~States

1990 4.5 5.4 5.5 1991 6.4 6.9 6.7 1992 1.6 7.5 7.2 1993 7.0 7.0 6.8 1994 5.6 6.2 6.1 1995 4.9 5.9 5.6 1996 5.1 5.3 5.6 1997 5.3 5.2 4.9

*Rates are expressed as a percentage of the Civilian Work Force.

Source: Pennsylvania Department of Labor and Industry

Economic Base - Warren City Page E-3 These statistics, along with those of the Census, help to explain the economic characteristics of Warren. The relative prosperity of Warren can apparently be linked to a strong labor market. Of the seven years displayed above, in only three years were County unemployment rates higher than those for the State or nation. In one of these two instances (sic 1993), the County had the same rate as the State and was only d.2 percent higher than the nation.

Occupation and Employment Characteristics: The prior paragraphs of this element have established Warren as a community which has apparently enjoyed a long-term period of economic stability and prosperity. Why? Usually, one reason is the type of job and industrial sectors of the local economy. Once more, we can turn to the Census for data. The Census sets forth both occupational and industrial characteristics of Warren's working population. Census data indicates a high level of management and professional employment in the City. Service jobs comprise about 700 persons, while about 1,100 are listed in precision crafts and machine operators. Based upon the profiles of the 1990 Census, about 45 percent of all employment was in areas where higher incomes could be expected. Employment sectors in Warren focus on manufacturing, 1,200jobs, and services, 1,200jobs. These are about 45 percent of the total employment and are in sectors where individual earnings tend to be higher.

Such figures are further supported by the 1992 Economic Census Series. They show concentrations in manufacturing and high-end service jobs. A listing of key local employers supports these generalized statistical assumptions:

Rexnard - coupling operation Betts Industries - tank truck and chemical processing equipment Loranger Manufacturing - custom plastic molding Whirley - specialty plastic products United Refining - petroleum products Sylvania - lighting Allegheny National Forest - USDA Blair - clothing, via mail order and outlets

Sector Analysis: The Census Bureau has a series of reports, the Economic Series, which are published every five years. The last edition was 1992. This provides information at a County and sub-county basis, though confidentiality, requirements sometime suppress key data. Some reports also exclude certain types of activities. For example, the Census of Service Industries excludes public education, political organizations, and household

Economic Base - Warren City Page E-4 workers. A companion series is the County Business Patterns. This is an annual publication. It covers all economic sectors in an abbreviated fashion but does not provide municipal level data.

The last available release from the Census Bureau’s Economic Series is now over five years i old. Though dated, a brief analysis is useful. Sub-county data was of limited value. Retail .- sales in Warren County increased 32 percent from 1987 to 1992. This figure was nearly 10 I points over the Statewide growth during the same period. However, retail employment experienced a 21 percent decrease. Historically, shoppers from the New York area have visited the Warren area, due to a better sales tax climate. However, recent events in New York State and improved access to the “big-box’’ retailers in the Erie area may be bringing that era to an end.

The .Census of Manufacturing was also examined. Countywide data was interesting. If 1982 information is included, the following scenario is observed.

. From 1982 to 1987, dramatic losses in employment (-1,300), payroll (-18%), and shipments (-30%) took place.

. From 1987 to 1992, manufacturing employment regained 700 jobs, payroll recovered all its losses and gained an additional $14 million, while shipments recovered most of its losses.

The City also showed a gain of manufacturing jobs from 1987 to 1992 of +300 jobs. The average annual wage in 1992 was $27,812.

Based upon these figures, and contemporary sources, it does appear the manufacturing sector has made a solid recovery.

Another important economic sector is service. With the presence of Warren General Hospital, the County Courts, banking, and North Warren State Hospital, this has been a d traditional strong element in Warren’s economy. The annual average pay for service employers was $16,752. In 1992, the Census Bureau reported 1,242 service- sector employees, Countywide, an increase of only 10 from 1987. For the City, the five-year job f increase in service employment of 53 was reported. The average wage in Warren City was $17,861. Compared to other areas of Western Pennsylvania, this number is high. This figure was likely due to the fact 48 percent of all service employment income was in health D care. Health care is better paid than the hospitality, personal services, or amusement sectors. d Economic Base - Warren City Page E-5 ii While the Economic Series will not release its 1997 data for another two years, it is possible to obtain a flavor of Countywide trends via the County Business Reports. The most recent of these documents gives account for 80 percent of 1995 data. It indicates that the "big three," manufacturing, retail, and service, still account for 80 percent of all reported jobs in Warren County and that the relative pay differential has remained roughly constant. A highlight of data is shown in the following table.

TABLE E-4 JOBS &ND WAGES . .. WARREN COUNTY ..-. 1995 ' .. .. , .. ..., .. ,...... , Sector -Jobs Average Wa& ..' . ,. , , I... ." ... ..

Manufacturing -: 5,001. : .: $29,22i. ...- . retail^. 4,797, 17.;833.. .. . ',< . , ', . . ... , ..Service 3,840 $21.<466'.,.' ... ' , .. -.. ~ . I'.

All 'Sectors 15,827 : ' ' $22,945 .. .. Source: 1995 County Business Patterns, U.S. Census.,,.

Tax Base: The economic health of the City of Warren is measured in a variety of ways. Certainly, one aspect is covered in prior paragraphs of this section. However, the City cannot function unless it has funds to provide the services described elsewhere in this document. From the standpoint of earned income, an important wage tax resource, it would appear Warren has a healthy condition.

However, real estate taxes are also important to the City. A brief analysis of the City's taxable real estate base was completed for the years 1992 and 1997. Taxable assessments grew from $109,447,031 to $1 10,424,108 in five years, an increase ofjust under one million dollars (4.9 percent). Yet, in that same period of time, the Consumer Price Index jumped 15.2 percent. Consequently, the City saw an effective decrease of 14.3 percent in this element of its tax base.

Economic Base - Warren Ciry Page E-6 Current Economic Initiatives: The picture of Warren’s economy, presented thus far, has been using various statistical sources. It is, in fact, more than numbers. Economic development has been a public concern for more than a decade.

In the early 1980s, the City assisted in a facade and housing rehabilitation program, targeted to revitalize Warren’s Downtown. Activities included the facade renovation of 32 storefronts and the conversion of the former Kresege store to a retail incubator. Now known I. as the Liberty Street Marketplace, it successfully combines retail and services outlets for .. local consumers. At the same time, 30 upper-floor apartments in the Downtown were refurbished. This had a dual function. It provides more attractive housing to solidify real I estate. It also helps to put a few more shoppers Downtown.

Over time, the Downtown has continued to change with the loss of traditional national retails chains and the start up of local retail or service businesses. Currently, the Downtown merchants are considering the institution of a Main Street Program.

To further support commercial as well as industrial development, Warren City adopted a LERTA real estate tax abatement program in 1987. This program suspends taxes on new, assessable real estate improvements for a period of three years. All areas of the City, except the Conewango area and the east side, north of the properties fronting on Pennsylvania Avenue, are included. The County and School District also participate in the LERTA effort.

Assistance for manufacturing efforts extends beyond the LERTA program. Warren is one of Pennsylvania’s Enterprise Zones (EZ). The Zone boundaries are the same as those for the LERTA program. While LERTA deals with real estate tax abatement, the EZ program (i offers: . Corporate tax credits . Low interest loans 1 . Special need grants ,I I Warren’s EZ program has received close to a million dollars since its inception. When I appropriate, Warren has also included its Community Development Block Grant funds to i further assist in these efforts. These funds were primarily used for the following: . Purchase and improvements to an industrial incubator complex (Fourth Avenue)

. Purchase and development of the Tuscarora Industrial Park

Econontic Base - Warren City Page E-7 . Purchase of an industrial property

. Loans to ten local businesses

It should be noted the industrial incubator was sold to a private entrepreneur. Further, the industrial site, about 2% acres, has been improved and is now on the market for industrial reuse.

_- Current activities in Warren and its immediate environs include:

The Warren Industrial Center: The former Struthers Wells complex, on Pennsylvania Avenue west, has been undergoing a comprehensive rehabilitation program for some time. This has included the demolition of some structures and the rehabilitation of others. Recently, a plastic firm moved into the renovated plant building at Pennsylvania and Chestnut. Also, construction for a Sears catalog operation is being initiated. The project was undertaken by SPEDD, Inc., with assistance from the City.

Warren Countv Industrial Complex: This complex is just outside the City limits, off Main Street (south side). It is a multi-tenant facility, managed by Warren County’s industrial development organization. There are six tenants at this facility. ’. The area continues to offer assistance to its industrial base to keep the local economy viable. Summary

A summary of Warren’s economy indicates the following:

. The manufacturing and service sectors are the two key sectors . Their continued prosperity is critical for Warren’s overall well-being

. Warren has seen low unemployment figures for some years

Much of the stability of Warren’s housing and the capacity of its municipal government to offer full services can be directly linked to Warren’s economy.

Economic Base - Warren City Page E-8 HOUSING

INTRODUCTION

his section of Warren City’s Comprehensive Plan deals with its housing stock. Be it an apartment or a traditional Tone-story ranch, a person’s home is most important. As we spend nearly half our lives at home, the importance to the individual is obvious. For the community, housing is significant, both as a base for tax income and as a symbol of stability. But, the critical nature of housing extends beyond the individual. For the visitor, the appearance of a community’s homes creates a critical, first impression.

In the City of Warren, that view is a very positive one. Housing is certainly one of this City’s assets. Housing is important for a commun?Y9 To complete this Housing Plan, various sources were used. For as a base for statistical purposes, the U.S. Census has become a standard income and as reference. Even though the 1990 Census is over seven years old, a symbol ofstabilify. it remains the best, comprehensive, statistical source on housing. It allows an examination of a municipality’s housing stock, affords comparisons with other entities as well as a means to measure historic trends. This document will quote two basic Census sources on housing, STF-1 and STFS. The STF-1 data represents Census questions asked of all householders in the Census process. Conversely, STF-3 contains items derived from statistical sampling. Obviously, the STF-1 data is more reliable, though STF-3 information is typically excellent. The only concern must be that, in a smaller universe, such as Warren City, any sampling errors will tend to be exaggerated. One final caveat. Though the Census Reports are good, they are not infallible. Occasionally, entries simply do not make sense. That occurrence, though rare, must be recognized.

Census data was not used alone. Warren City has an extensive code program that keeps excellent records. This allows the Plan

Hoiising - Warren City Page H-l to use contemporary information. Finally, there was extensive field work completed. Literally, all the streets of Warren were traversed to view its housing stock and to note their condition.

Housing Count: The 1990 Census counted 5,223 housing units in Warren City, about one I fourth of the County’s total. The following table shows housing unit count for the City, .- I County, and State. .. TABLE H-1 .. . HOUSING COUNT WARREN CITY, COUNTY, AND STATE .. .,..1. . .. ,. .. . , ,I -.r .. -1990 -Gain . Percent

As can be seen, the increase of housing units from 1980 to 1990 was quite nominal in the City and County, while the State saw a growth of 7.4 percent. Of course, the housing count increases for Warren City and the County were somewhat surprising, as both lost population, -8.4 percent and -5.1 percent, respectively. The State enjoyed a population increase during this decade, even though it was a modest one. The pattern of growing housing counts for I all three entities can be traced to an overall decrease in household sizes. As household size shrinks, the number of units needed to house a given population increases (please see the c section on Population for a more detailed discussion). Between 1990 and the present, data from the Warren City Codes Office indicate there has 1 been a net loss of 25 housing units. Thus, as this Plan was prepared, we can officially estimate there were 5,218 dwelling units in the City. Unofficially, we can estimate there were likely 75 to 100 units added to the housing stock through unpermitted conversion I apartments.

Housing Type: The typical home whch most people envision is a single-family, detached 3 dwelling. Yet, there are many alternatives, especially in an urban area. Table H-2 sets forth I the housing types for the City of Warren and a comparison between 1980 and 1990. I Hoirsirrg - Warren Ciry Page H-2 t TABLE H-2 HOUSING BY TYPE WARREN CITY - 1980 AND 1990

Tvue of Unit 1980% ~ 1990 -%

1 Family 3,474 67.0 3,097 60.0 -377 -10.9 2 Through 9* 1,461 28.3 1,747 33.9 280 19.1 I 10 and Oveic 24 1 4.6 311 6.0 70 29.0 __ Mobile Homes --1 0.0 3-0.1 -__2 200.0 I- Total 5,183 100.0 5,158** 100.0 -25 -0.5 *Units per structure

**The 1990 figures do not include 65 units classified as Others. ., .. Source: 1990 Census, STF-1,1980 Census, General Housing Characteristics, Pennsylvania ......

I The changes are interesting. In 1980, there were 5,183 dwelling units, with some 67 percent li single-family units, 28 percent low-density apartments, and 4.6 percent higher-density multi- . family. Further detail does reveal that one- and two-family units, combined, equal 77 percent of all housing in the City. Between 1980 and 1990, the ahousing counts in Warren City changed by only 40 units. But, their characteristics changed dramatically. Single-family units dropped by 377, while multi-family structures increased by 350. Based upon current data, it can be assumed that a good percentage in the decline of single-family units was in their conversion to apartments.

Housing Tenure: The characteristic of tenure examines the proportion of home ownershlp and renters in a community. As Warren is an urban place, the expected ratio of rental units tends to be higher. This ratio can vary significantly. In college towns, such as Edinboro, * renters are in the majority (63 percent). In large cities like Erie, there is a more even division (56 percent owner-occupied, 44 percent renter) of tenure. Historically, planners have held that home ownership is a crucial ingredient for a stable, pleasant-appearing community.

In Warren City, there were 4,775 occupied housing units at the time of the 1990 Census. Of these, 2,802, or 58.7 percent, were owner-occupied. The remaining 1,973 (41.3 percent) were rentals. As a comparison, in Warren County, overall, the ratio of home ownershlp to rentals is 77 percent to 23 percent.

Housirig - Warren City Page H-3 The City of Warren is, in fact, the rental unit “headquarters” of the County. Out of Warren County’s nearly 4,000 rental units, almost half are in the City. Several reasons can explain the higher level of rental units in Warren City. The most obvious is available infrastructure. Good roads, public water and sewer are all needed for denser residential developments. The age of the built environment is another factor. Older homes were typically very large. Often, the second, third, or fourth generation no longer lives in the home of their forebearers. These larger homes, which are expensive to maintain for one family, are frequently converted to multiple use. Finally, the presence of shopping, health, cultural, and recreational resources helps to attract tenants to Warren City, creating a market for rentals.

Though Warren City may be the rental center for the County, there is some evidence that the rental market is somewhat “softer” now than it was five years ago. In prior times, a vacancy may have been leased purely through word of mouth. Now they must often be advertised before they are rented. Local real estate sources believe this is in the nature of a modest adjustment rather than a dramatic downturn. Overall, the market is regarded as stable. Monthly rents (summer 1997) of good units averaged $300 to $400 a month.

There appears to be one unfilled market need. Historically, most of Warren’s rentals are aimed at young to middle-age families. A market niche for “non-assisted” rentalkondo units, aimed at an older (55+) market, which was suggested by a real estate source. Given the age profile of the population, that observation warrants attention.

In Warren, the most significant aspect of tenure is the fact that the high number of rental units has created an environment of poor housing.

As noted in the previous section, there were significant shifts between 1980 and 1990 of housing types for Warren. There was a decrease in the traditional single-family detached unit, favored by home owners, and an increase in apartment-type units - favored for rentals. Given these shifts in housing types, there should also have been a dramatic change in the owner/rental tenure proportion. That did not happen. The 10-year change was small, only an increase of 1 percent in rentals. This may be one of those rare instances where the Census figures are not completely accurate.

Age of Housing: Traditionally, the age of housing is measured from a bench mark of 1940. Homes constructed before that time (now over 50 years old) are classified as old, while other units are considered contemporary. Though this may be a crude yardstick, it generally is a valid one.

According to the 1990 Census, Table H-3 shows the City’s housing stock by year built.

Horrsing - Warren City Page HJ TABLE H-3 HOUSING STOCK BY AGE CITY OF WARREN

Number I Year Built of Units Percentage .. 1980-1990 158 3 1970-1979 .319’ 6 1960-1969 206 4,~,

. ’ , 437 8. .... 1950-1959...... ,1940-1949 .... -.345. .. 7’ ..

... :- 1939 or Earlier ..:. . 3j800. ’ . 12- .. I ...... , ...... ,., j ’.- ...... - ...... ~ . . .. <..*.- ...... _ .-: ...... ~ ., TSGur&.:.... 1990... CeniuS,~sP73’ ...... ’. ; . ’- ......

As Table H-3 demonstrates, nearly three quarters of Warren’s housing is over fifty years old. Experience in numerous communities has demonstrated older homes are more apt to have maintenance and code problems. Warren’s Housing Plan must reflect this concern.

Group Quarters: For the City of Warren, this category of housing is not a large one. Only 2.3 percent of the City’s 1990 population was classified as residing in group quarters. Of these, 86 were listed as in a correctional institution (i.e., the County Jail), while the remaining 174 were in nursing homes. Please note that “group homes” are not counted as group quarters by the Census.

Housing Values: There are two segments of the Census questionnGre which covers housing values. One asks homeowners to estimate the market value of the units; the other asks renters the monthly rent.

To set these responses in context, please see Table H-4.

Housing - Warren City Pase H-5 TABLE H-4 VALUE OF OWNER-OCCUPIED HOUSING WARREN CITY, COUNTY AND STATE

Value a”/.Counh,- % State -% $0-24,999 206 8.5 1,159 12.9 243,082 9.4 $25,000-49,000 1,429 58.8 4,352 48.4 586,144 22.7 $50,000-74,999 543 22.3 2,321 25.8 583,866 22.6 $75.000-99.999 143 5.9 734 8.2 433,929 16.8 $100,000-149,999 73 3.0 332 3.1 395,881 15.3 $150,000+ 36-1.5 --101 1.1 338,359 -13.1 Total 2,430 100.0 8,999 100.0 2,581,261 100.0

Source: 1990 Census STF-1

Values for City’s dwellings show the great majority are valued under $75,000 and a majority less than $50,000. Conversely, more expensive units ($75,000 and more) make up only 10.4 percent of all dwellings. As Table H-5 clearly shows, there is a similarity between the City and the County. It shows over 60 percent of all County homes were valued less than $50,000 and nearly 90 percent under $75,000. Conversely, homes on the State level are generally valued at a higher level. Only 32 percent are listed less than $50,000 and just less than 55 percent valued at $75,000 or under. Units valued at $75,000 and hgher represent 45 percent of all homes in Pennsylvania, over four times the level found in the City.

Median values for three entities are reported as:

TABLE H-5 MEDIAN VALUE OWNER-OCCUPIED DWELLINGS WARREN CITY, COUNTY AND STATE

$42,800 City of Warren $43,900 County of Warren $69,700 State of Pennsylvania

Source: 1990 Census, STF-1

Huusing - Warren Ciw Page H-6 These values re-enforce the previously detailed break down. The higher values at the State level demonstrate the high demand for real estate in southeast Pennsylvania. Such differences in housing value, viz. a viz., local to state, are commonly seen in Northwestern Pennsylvania.

Census data on housing values is now seven years old and is considered as conservative. I .- More recent information was available from local real estate sources. Over a six-quarter period (all of 1996 and two quarters in 1997), some 113 used homes were sold in Warren City. The average selling price was $62,240. This is in line with the results of discussions with area real estate persons. They stress that quality homes still maintain their value, and prestige units up to $300,000 are quite marketable.

The issue of contract rents is very similar. In 1990, the median monthly values were:

,I TABLEH-6 -, ._ ...... MEDIAN RENTS- 1990 ..,. . ,

-. ' . ' .CITY OF WARREN, COUNTY AND STATE .' .. . ,:., .... -...... '. I : ._l;. $232 ' . City of Warren .., ...... $228 -. '.County &When $322 State of Pennsylvania I' Source: 1990 Census, STF-1

I Once more, the high market demand of Southeast Pennsylvania has elevated the State's median values, while the local values are about one third below the State's. For City-County rents, the only difference is a slight one. For owner-occupied units, the County figures were i slightly higher than the City. In rental units, the reverse was true, demonstrating the slightly stronger rental market of the City. As noted on page H-4, current rentals have increased I since 1990 and are averaging $300 to $400 per month. Housing Affordability: The State of Pennsylvania has taken a strong interest in the issue i of affordable housing. The reasons for this interest are twofold. First, it reflects changes to the Pennsylvania Municipalities Planning Code, which requires zoning ordinances be designed to provide for all basic forms of housing. The second reason is the Affordable P Housing Act. The Federal government has a clear policy promoting affordable housing and reinforcing that policy through its funding, such as the Community Development Block 1 Grant Program. I Housing - Wnrren Cie Page H-7 I. Housing affordability is analyzed in Table H-7. This index illustrates how affordable the median-value house is relative to the median-income household. For the typical Pennsylvanian, yearly rental equal 13 percent of annual household income. A purchased house will Likely cost 2.3 times a household's annual income. In Warren County and Warren City, rental costs are only 10 to 11 percent of annual income. Purchase costs are locally 1.7 times the median income. Thus, in Warren City, housing is generally much more affordable to local residents than on the State level.

TABLE H-I HOUSING AFFORDABILITY INDEX I .. -...... ~ _- Median Median.' ' Annual I...... Household Hou'sing Median .. Purchase dentab 1 ./-Piace Income Vahe . '~ ~ent Index .. -. Index .;. i

f . ... ~, ... .

Housing Survey: Though the Census and other statistical sources give valuable I. information, they do not provide an adequate picture on the physical condition of housing stock. In addition, the City's Code Office can provide condition information, but that tends to be focused on few problem units. Neither source provides a comprehensive picture of the City's total housing.

To develop this view of Warren, a 100 percent housing survey was undertaken and completed in the early summer of 1997. This undertalang was a "windshield" survey, as it I: was primarily completed from an automobile - though occasionally, it was necessary to I observe some units by foot. Typically, there were two persons on the survey team. All public streets in the City were traveled to conduct the survey. During this effort, the most difficult task was to identify I occupancy. Usually mailboxes, utility meters, or other exterior features help to distinguish between single-family, duplexes, and multi-family units. But, hswas not always the case. 1 I i Housing - Warren Ciry Page H-8 I The survey team rated the condition of housing, based upon a four-tier objective system, as described below:

Sound: A sound house is defined as one which has no visible defects or only those slight defects which are corrected during the course of regular maintenance. Under this approach, a house may have some peeling paint, minor cracks in wood or masonry, or broken gutterddrain spouts, and still be considered sound.

.- Deteriorating: Deteriorating housing is that which needs more repairs than would be provided through normal homeowner maintenance. The defects and problems are such that, if not addressed, the structure may no longer be considered adequate shelter. Elements of deterioration are holes or cracks in the foundation, framing, walls or roofs, evidence of structural sag, cracked windows, or broken stair treads. Other elements considered were a combination of deferred maintenance aspects, which, singly, may not be a concern, but, in combination, create a problem unit. Deteriorated housing was divided in two categories: Deteriorated-Minor and Deteriorated-Major. The difference being the degree of problems for an individual structure.

Dilapidated: Dilapidated housing has deteriorated to the point that it may no longer be safe or adequate shelter. Its defects are so severe that it would require extensive repair or rebuilding. Open holes, missing material over roofs, floors, or siding; missing windows; and serious structural sags are all indications of dilapidation. Dilapidation also includes buildings occupied, but not intended for human habitation. Examples of those would include inadequately converted sheds, barns, or garages.

The results of the survey showed that only 130 structures in the City's housing stock were regarded as deteriorated; the one unit determined dilapidated was not included, as it is scheduled for demolition. Of the 130 structures regarded as problems, just under half were duplexes or multi-unit housing.

Obviously, the number of deteriorated housing units, not structures, is the critical figure. Sometimes, the number of apartments in a multi-family dwelling was not obvious. But, by using averages, the total number of problem housing units could be accurately estimated. Overall, the survey estimated 217 dwellings units were deteriorated. Of these, 32 percent (69) were listed as single-family, 41 percent (88) as duplexes, and 27 percent (60) as multi- family. In terms of severity, 32 percent of deteriorated units had only minor problems, while 68 percent were rated as those with major deterioration. The general location of problem housing is shown by the map, Warren City - Problem Housing.

Housing - Warren CiN Page H-9

Based upon previous studies in Western Pennsylvania, the windshield field survey process underestimates the number of problem units by 15 to 20 percent. This is due to two shortcomings. First, not all of the structure’s exterior was visible for inspection. Second, some problems are internal (plumbing, wiring, etc.) and cannot be seen. Assuming a “worst- case” scenario, perhaps 260 units could be regarded as deteriorated in the City of Warren. This figure represents approximately 5 percent of the City’s housing stock. That was less than half the anticipated figure, based upon other municipalities in Western Pennsylvania. For example, similar surveys which were taken in the City of Franklin found 10.85 percent problem units and in Indiana County, the figure was 14.4 percent.

Code Enforcement: Perhaps one reason for the City’s good housing stock is its active code enforcement program. Due to financial constraints, Warren shifted code enforcement to its Fire Department some years back.

The whole concept of code enforcement is not to impose Draconian penalties, but to enhance public safety. Citizens can better relate to this fact, when dealing with public safety forces. Also, firefighters realize that safe, sound, structures mean fewer fires. The success of this approach was seen as the Fire Department’s 1997 statistics showed a 25 percent drop in fires since the public safety concept has been initiated.

Beyond inspections requested via new permits, the Department also acts on complaints. The majority of these deal with deteriorated structures, unsafe conditions, or poor exterior housekeeping. Generally, most complaints (over 90 percent) are addressed within three days.

Overall, the transfer of code enforcement to the Fire Department in Warren must be viewed as a practical move which has paid public safety dividends.

Housing Rehabilitation: The quality of housing in Warren is not due solely to code efforts. Another reason is housing rehabilitation. This fact was evident when the housing condition survey was completed. Many units which were noted as deteriorated were being remodeled at the time.

Rehabilitation in Warren has been both a private and a government-assisted endeavor. From 1980 to 1982, some 75 units of housing were assisted through Warren’s “Block Grant” funds. Another 30 apartments located in the downtown were completed from 1982 to 1984. In the past few years, the assisted housing rehabilitation program has, once more, been reactivated. About a dozen units, owner-occupied, are now in the program.

Housing - Warren City Page H-IO Overall, however, non-assisted private endeavors appear to be the primary well spring of housing rehabilitation. Many of Warren’s homeowners are reinvesting in their housing. This fact underscores both the solidity of Warren’s housing stock and its real estate market.

Assisted Housing: For the past several decades, there have been a variety of housing programs, essentially Federal, which have had a major impact upon housing. These are particularly active in urban areas. In fact, for some communities, such housing comprises 15 to 20 percent of all rental units. There are three primary categories. The traditional housing projects were comprised of family units. A second category was housing for the elderly or handicapped. Traditionally, family and elderly projects occupy separate developments. Finally, over the past several years, government program have turned to the private market. In this approach, under the Section 8 Program, private rentals, meeting certain standards, are used. In both programs, income-eligible households pay approximately 30 percent of their total income for rent, with the balance from Federal funds.

For Warren County, the Housing Authority of the County of Warren is the public housing agency. There is no City housing authority. The Authority’s ofices are at 108 Oak Street in the City where the “Towers” are situated. The Conewango Towers is a 134-unit high rise housing project catering to elderly residents (age 62 and over) as well as the handicapped. In addition, the Authority manages, but does not own, a 50-unit complex called Canterbeny Court at 310 Liberty Street, in the City. Also, there are some 29 “Section 8” rentals in the City. In all, the total of public housing units in Warren are 213, about 11 percent of the City’s total rental housing stock.

In addition to these units, there are two mixed projects where assisted and non-assisted rentals exist side by side. Operated by the Patterson-Erie Corporation, these developments are Buchanan Court and Lincoln Woods.

Summary: . There are approximately 5,200 housing units in Warren City (about 24 percent of the County total). . The proportion of owner units are 58.7 percent, rentals are 41.3 percent of the occupied housing stock. . Nearly one half (49 percent) of all rental units in Warren County ire in Warren City. . Sixty percent of all units are single-family homes.

Housing - Warren City Page H-11 . Most rental units tend to be smaller developments - 2 to 4 apartments per building. . Almost three quarters of Warren’s housing was constructed before 1940. . Housing values in Warren tend to be slightly under County levels for owner- occupied units; rental units are slightly higher.

. Housing is affordable in Warren when compared to the State. . Based upon a 1997 survey, the overall condition of housing is good though pockets of deteriorated housing exists. . Though housing conditions are now good, constant vigilance is warranted, due to the overall age of dwellings and the percentage of rental units.

Housing - Warren Ciry Page H-12 LANDUSE

INTRODUCTION

n the City of Warren, public policy, via zoning, has been Iconcerned with land use for over three decades. Consequently, it is obvious this is an important aspect of Warren’s Comprehensive Plan.

Traditionally, the Land Use Plan is a centerpiece of the Comprehensive Plan. Indeed, an understanding of the existing land use in a municipality is important before any recommendations can be made for future change. To think of land use from purely a “zoning” context does not recognize the importance of this element. The classic text on the subject URBAN LAND USE PLANNING (Chapin, et. al.) states there are four elements of this topic: The issue of land use as a visual resource . Land as functional space is critical to a . Land as a setting for activity systems community’s self- . Land as a commodity to be developed Land as a perceptual or esthetic resource perception. . At first, this may appear to be purely an academic view, but it is actually quite a valid assessment.

Of all of the qualities of land use, its functional and developmental aspects are most closely tied to traditional municipal zoning concerns. Activity systems are not a far reach from the first two concepts, especially in the field of economic development. It is only the last element that most persons do not recognize. And, given land use law in Pennsylvania, many would question its inclusion. Yet, the issue of land use as a visual resource is critical to a community’s self-perception.

To this list, two more qualities could be added. First, land use is a picture of the developmental history of any municipality. Second, the existing land use is a clear statement of market forces.

lnnd Use - Warren City Page LU-1 Commercial and industrial patterns are reflections on how the private market has related to, and impacted on, development patterns in the community.

Existing Land Use: To determine the existing land use for the City of Warren, a windshield survey was completed in the summer of 1997. Land uses were categorized as: I‘ Low Densitv Residential - This includes single-family and duplex units. Medium Density Residential - All residential buildings with three or more units.

Public/Semi-Public - Parks, public buildings, churches, and similar organizations.

Commercial - Retail, office, and similar uses.

Industrial - Manufacturing, warehousing, and similar activities.

A series of field maps were obtained based upon the City’s CIS system. This included the “structure” layer. Property lines were not available. To actually determine the land use, a team of two or three persons drove each street in the City color-coding the field maps. This was done so the results could be accurate as possible. Results of the field map were place on an electronic map of Warren, using the City’s GIS base map.

That map is on the following page. A few observations are in order:

. Multi-family residential uses were based upon exterior evidence, Le., mailboxes, utility connections, etc.; occasional errors were possible.

. For mapping purposes, the Land Use Map was based upon the predominate ground floor use. Using traditional split-use symbols was too confusing.

. Uses ancillary to a different principal use were coded per the principal use; hence, offices associated with manufactures were classified as industrial.

. Certain “public” uses are classified as industrial (sewer plant, City Garage, water plant).

This map is based upon uses coded in the summer of 1997. Some uses may have changed since that time.

Land Use - Warren City Page LU-2

I

I A team of two to three persons drove each public street in Warren color-coding land use upon the City's CIS map. This map was based upon aerial photos which had existing buildings shown. Consequently, current land use could be tied to the City's built I environment. I The results of the survey are shown graphically by the Existing Land Use map and statistically by Table L-I, Existing Land Use. This table includes both acreage and percentages for the 1997 survey. Results from the 1991 County Plan and the 1963 Plan are I shown as percentages only.

I TABLE L-1 EXISTING LAND USE I CITY OF WARREN Classification Acres% -1991 1963

I Residential - Low Density 780 38.1% 36.6% 26.5% Residential - Medium Density 39 1.9% 0.8% 5.8% I Public/Semi-Public 212 10.4% 11.O% 11.4% Commercial 122 6.0% 5.9% .. 2-7%

Industrial 269 13.2% ' 15.1%; 14.I% . . : Street Right-of-way 405 '. 19.8% 20.9%- .' 22.2%.. .. :: I .. . Vacant .49 2.4% 4.2%' ' 10.5% '9 Water -. 169* -8.3% '' 5.3%. . -' 6.8% I Total 2,045* 100.0% . 99.8% 100.0% I *Per the US. Census figures Source: Land Use Survey 1997;1991 data from the Warren County Comprehensive Plan, Volume 1, page 90, Table 23; 1963 data from A MASTER PLANFOR WARFEN BOROUGH, page 37, I Table Land Use Distribution

I The prior documents were completed using somewhat different approaches. Three primary I differences exist: One: Prior work focused on tax parcels; current work was based on a structure map.

I Two:Prior work used a mechanical planimeter to estimate areas; current work used electronic mapping programs. I I Land Use - Warren Ciry Page LU-3 I I

I m:Between 1963 and 1998, there have been changes to Warren’s boundary and adjustments to its total acreage.

I Consequently, it is more interesting - and informative - to look at the proportion of use over I the past 35 years. Between 1963 and 1998, the most significant change has been to residential use. In 1963, total residential use was 32.3 percent, while in 1998, it was 40 percent. A second major I increase has been in the commercial category. This appears to be a paradox, as many of Warren’s Downtown merchants have left. Yet, the resulting storefronts are still used for commercial, but service types (insurance, real estate, etc.) are now more prevalent. This I change also reflects the conversion of some older homes to ofice use. Also, land use is a measure of area, not necessarily of intensity. Vacant land has decreased as active land use 1 has increased. Finally, the percent classified as “Water” has increased. This figure was taken from Census Bureau measurements and used to keep a standard measurement.

I In 1963, planners made an effort to relate local land use percentages to national ‘‘noms.” Given the unique quality of each community and the rigid fixing of municipal boundaries in Pennsylvania, that approach has little merit. However, it is interesting to compare the land I use patterns of yesterday and today.

I Though the Existing Land Use Map will give the reader an accurate picture of Warren today, a brief narrative may help to analyze the situation. This narrative will use natural or recognized physical boundaries. Included in this narrative are comments relating to the I current Zoning Map as well as the land use. A generalized Zoning Map is presented on the I next page for additional reference. Area 1. for the West Side (all land north of the Allegheny River and west of Laurel Street): This area is dominated by two separate uses: residential and industrial. There I is some commercial use off Ludlow Street, off the Route 6 Interchange and along Pennsylvania Avenue. A few older nonconforming commercial uses are also found I in residential areas. Comments: In the past 30 years, there have been significant changes in this area. The I most notable was the conversion of the Warren Airport to Betts Park and the loss of some recreation land along Hall Street, areas taken by the Route 6 Bypass I construction. Zoning: This area is dominated by five zoning districts: R-2, R-3, C-2, Industrial, and I Preservation. The land use pattern is predominately single-family, in the Ludlow to I Land Use - Warren City Page LU-4 I I

I Pine area, and much of the commercial strip along both Pennsylvania and Ludlow is occupied by residential uses. The former Struthers-Wells complex formerly zoned Industrial is being redeveloped, and at least part of this parcel is being used for I commercial purposes. I Area 2, West SideDowntown: This section of the City is bounded on the east by Conewango Creek and on the south by the Allegheny River. Its western boundary I is Laurel and the northern edge is the City line. The southern portion of this area is dominated by commercial land uses of Warren’s Downtown. That is framed by some new commercial uses and long-term industrial I sites along the river. The City Building and County Courthouse complexes are also located here. Market Street, the site of many older fine homes, is dominated by the I County Library, various religious institutions, and professional offices using converted residences. Much of the remaining land is a mixture of residential I structures. This area contains Warren’s proposed historic district. Comments: Even though the Downtown has lost many of its historic anchors, the land use in this sector has remained quite stable over the past 30 years. Changes have I been primarily single-lot conversions - no wholesale block redevelopment.

I m:There are five basic zoning patterns in this area: R-I, R-2, R-3, C-1 (Central Commercial), and Industrial. To a large extent, zoning and land use are in concert I with one another. Area 3, The Umer Conewango Area: This area includes all land north of Jackson I Avenue, and east of Conewango Creek within the City. Comment: This is essentially a residential section, with only a sprinkling of duplexes I and multi-family units. Though an occasional commercial use is found (primarily along Conewango Avenue), they are very much an exception. One nonconforming industry is located along Lookout Street. Land use patterns are remarkably similar 1 to 1963. I Zoning: This land is primarily zoned R-2, with a small C-1 district. Parks and floodplain regions are zoned Preservation. A limited R-1 Zone includes a great number of Warren’s newer homes. In general, the zoning and land uses are I consistent, except in terms of density. I I Laird Use - Warren Ciry Page LU-5 I

I

I Area 4. the East Side: This includes all of the remaining east side of Warren, generally stretched out along the Allegheny River.

I Comments: Land use is dominated by residential uses. The areas off Madison and Lincoln (except Lincoln Woods) are generally single family or duplexes. Uses I fronting on Pennsylvania are commercial, mixed commercialhesidential, or residential in nature. Those areas along the Allegheny are heavily industrial, with I many significant employers located here. -: There is much similarity between land use and zoning in this area. However, once more, residential zoning is usually denser (i.e., R-3, R-2) than actual use (single I family). Similarly, the dominance of Commercial zones along Pennsylvania does not I match uses in all instances. Area 5. the South Side: This includes all land in Warren south of the Allegheny I River. Comments: There are three major land uses here: institutional, the Hospital; mixed residential; and industrial. Since 1963, the biggest change to this area is the I annexation of land from the Allegheny and Eastern Railroad right-of-way south, to I below Harmer Street. Other than that, land use patterns are remarkably stable. Zoninp: This area is primarily zoned R-2, R-3, C-1 (Commercial), and Industrial. A sliver of Preservation follows the Allegheny River. Once more, the residential I zoning allows much greater density than the actual use.

I Zoning is the single most important land use I control. I Existing Zoning: In April of 1981, Warren’s existing Zoning Ordinance was adopted. In I Pennsylvania, zoning is the single most important land use control. That document espoused I various policies. Two are most apparent: . Encourage a “greater density of residential development in a controlled I manner.” [Section 103(1)] . “Protect the waterways from adverse or undesirable development.” [Section I 103(g)i I Lmd Use - Warren City Page LU-6 I I I The former policy was achieved by covering the great majority of Warren’s land with R-2 or R-3 residential districts. Both classifications allow multi-family development. Though I the R-3 district permits quite dense development, even the R-2 allows residential projects 1 in excess of 30 units per acre. The latter policy was implemented via the institution of a Preservation zoning district. This classification is applied to some City parks and much (not all) of Warren’s waterfront I properties. The east bank of Conewango Creek, the Point, the CrescentPennsylvania Avenue areas, and a small section off Glade Run were so zoned. Permitted uses in this I district are limited to recreation, open space, and parks. The Zoning Map supports the ordinance’s expressed policy. Only three areas of limited size I were designated as R-1, with the balance of all residential areas either R-2 or R-3. Other than that, the Zoning Map was quite typical. The Industrial designation followed then I current land uses, as did the C-1, Central Commercial designation. The “C-2” General Commercial district was applied primarily in a strip fashion along Ludlow Street and I Pennsylvania Avenue, with one small enclave along upper Conewango Avenue. The ordinance text is based upon older style narrative ordinances. It is quite lengthy in I nature, uses few tables, and, in all, is a difficult document to fully understand. By contrast, the City’s Subdivision Ordinance was written at the same time as its original I MASTER PLAN, 1963. It is a brief and relatively straightforward document. Its principal drawbacks are a lack of detail in certain key areas (i.e., replats) and a need to bring its I provisions into compliance with current enabling statutes. Summary: Warren’s current land use patterns really present a historic picture of the City. I The Downtown, older historic districts, and industrial comdors all are evidence of the natural evolution of Warren prior to 1900. Much of the development along upper I Conewango and on the east side is more contemporary. For the past decade, Warren has seen an exodus of people and commercial businesses, while I at the same time, industry has also suffered. However, current trends may be changing. A few generalizations can be set forth:

I . Field surveys revealed there is increasing reinvestment in local homes by remodeling. I I Land Use - Warren City Page LU-7 I 1

I . The industrial sector is stabilized and modest growth can be expected.

. The commercial core remains constant, though retail operations may be spotty I - office and service areas remain strong. I . Overall, the population is aging and may soon reflect a need for apartment/ townhouse developments. I I 1 I I I I I I I I I 1 I Land Use - Warren City Page LU-8 I I I TRANSPORTATION 1

1 he transportation network for the Warren Area performs two important functions. It links the community internally and 1 Tprovides access to, and from, outside destinations. Typically, local streets are utilized as residents drive to work, drop the children at school, shop, or recreate. The larger network is important as a I means of personal mobility and is critical for Warren’s economic vitality.

I There are four key modes of transportation: road, rail, water, and air. The Plan will focus on three only. Water transportation in the Study I Area is limited to recreational small water craft. It has virtually no impact on Warren’s transportation needs and is not covered in this The transportation Plan element. I network for the Warren Area Air: Some years ago, there was a small airport I links the community within Warren’s corporate boundaries. It was internally and closed, and the Clifford R. Betts Memorial Park is now located in its place. Brokenstraw Airport, a private field, is provides access 1 located just a few miles west. This is a small turf facility, geared to, andfrom, outside primarily to the recreational flyer, not toward commercial use. A destinations. popular local airport is the Chautauqua CountylJamestown Airport, I located in nearby Jamestown, New York. This small commercial facility does feature a commuter feeder service to US Air. Another nearby airport is Bradford Regional, which is about 40 minutes’ I travel time, east. Historically, Warren County financially supported ths facility. Bradford Regional had 16,698 emplanements in 1996, 1 and it also provides commuter service. Erie International Airport is about an hour-and-a-half away. It is much busier than Bradford, with 131,822 emplanements reported in 1996. Yet, it, too, is 1 essentially a “feeder” operation. The largest wort in the region is Buffalo. It provides multiple national and international flights. I Thus, local residents have a variety of commercial air facilities to choose from within the region, but none are in Warren’s immediate I vicinity. I Transportation - Warren City Page T-1 I I I Rail: Rail service to the Warren Area is provided by the Allegheny and Eastern Railroad. This line is 150 miles long and stretches from Emporium to Erie City. It was formerly I owned by Conrail and subsequently acquired by the Hammermill Paper Company in 1986. Hammermill purchased the line as Conrail was proposing abandonment. This service hauls 1 the pulpwood and wood chips, critical to Hammermill’s papermaking plant in Erie. Hammermill was subsequently acquired by the International Paper Company, which then sold the railroad to Genesee and Wyoming Industries, who still operate it. Total rail activity I over the entire line is reported at 10,OOO to 15,000 cars annually. Within the City of Warren, there are approximately six rail users, with origins and destinations totaling about 5,000 cars per year. The primary goods shipped are petroleum products and plastics. Railroad I personnel report the system is scheduled for rehabilitation, under PennDOT’s railroad assistance program. This includes new rails, new ties, and surfacing. It will be a multi-year I undertaking. I I Roads and Highways: For most municipalities, the local roadhighway network is the key ;I element of the transportation system. The purpose of the Background section of the Plan is to describe and analyze the existing road system.

I Generally, roads are classified as one of three types: arterial, collector, and local. Their names clearly indicate the road’s function. Arterials are long-distance roads, connecting I major places, both Statewide and Interstate. Route 6 and Route 62 are examples of such roads. Collectors draw traffic from abutting local streets, “collecting” flows to arterials. Madison would be a good illustration of a collector. The basic function of local roads is to I provide access to adjoining property.

In Warren, another basic division is between local and State roads. Local roads are, by far, I the largest part in Warren’s inventory. There are approximately 45 miles of City streets. In ~I addition, the State owns some 7.8 miles of roads within Warren City. Road Characteristics: One of the most important functions of the Transportation Background is to describe the local road system and how it functions. The items of I particular interest are:

Road classification I Traffic volume I Transportation - Warren City Page T-2 I

Estimated peak hour flows Estimated flow versus capacity

I The Pennsylvania Department of Transportation has computerized records for it roads. Data I on traffic volume and other key characteristics of State roads are taken from that source. Route 6: Route 6, the Grand Army of the Republic Highway, is listed as a principal arterial by PennDOT. This is a major east-west highway serving Pennsylvania’s northern tier of I counties stretching from the New York, New Jersey border to Route 20 in Erie County (via 6N). It is part of the National Highway System. Route 6 is a key regional road for Warren City. Route 6 enters Warren as a limited-access facility and bypasses all but the extreme I western section of Warren. In the City proper, it is a four-lane reinforced concrete freeway. Each lane is 12 feet wide. Volume is estimated at 14,516 vehicles daily. Estimated truck use is not given by PennDOT traffic data. Based upon default values (see PROCEDURES FOR ADJUSTING TRAFFIC COUNT DATA - PennDOT, FHA), the peak flow hour would be 1,750 vehicles, which is under 500 per lane. This is less than one third the suggested capacity for such roads.

Route 62: This road is also listed as a principal arterial by PennDOT, and it, too, is on the National Highway System. It travels from the New York border on the north of Warren, through the City, then south and west, traversing Oil City, Franklin, Mercer, and Sharon, before exiting to Ohio.

Route 62 enters the City on the west, combined with Route 6, then exits on Ludlow, travels Pennsylvania Avenue to Laurel, then along East Fourth Avenue to Market Street, finally following Market north. Traffic values vary but are quite heavy, particularly as it leaves Warren. Vehicle counts are estimated from 8,500 to more than 17,000 vehicles per day. Truck volume is listed as 3 to 7 percent of this traffic. The busiest section of Route 62 is near the north boundary of the City, where volumes of 17,794 per day are reported. Estimated peak hour lane volumes vary from just over 500, up to 1,000. Such figures would indicate this highway is at, or well over, capacity during peak traffic hours.

SR 6006: This road is the former Route 6, Pennsylvania Avenue, in Warren. Though no longer a traffic route, it remains listed as a principal arterial by PennDOT. Volume estimates vary from over 10,000 to 14,440 vehicles per day supporting this classification. Truck volumes are estimated at 7 to 11 percent of all traffic. Traffic counts seem particularly high near the east end of this road. Peak hourly volumes are estimated at 850 plus per lane, indicating this facility is over capacity during rush hours.

Conewango Avenue (SR 1011): This two-lane road runs from Lexington to the north line of Warren. From Pennsylvania Avenue north, it is a State road. PennDOT lists Conewango

Transportation - Warren City Page T-3 I

I as a minor arterial. Recently published counts estimate daily traffic at 7,665 to 10,672 per day. No estimate of truck volume is provided. Using the standard approach, peak hour- lane-volume estimates approach 640 vehicles. During rush hour, volumes would be 20 to I 30 percent over Conewango’s practical capacity. I Jackson Avenue (SR 1021): This two-lane road is on Warren’s east side, starting at Conewango Avenue. According to recent volume estimates, there are 6,402 vehicles a day. This road is classified as a collector by PennDOT. Estimates of truck volumes are not I available, but empirically, it appears to be essentially used for personal autos. Even during peak hour traffic, Jackson Avenue should be operating withm its capacity.

I Park Avenue (SR 1013): This road starts on Pennsylvania Avenue (East) and extends north into Glade Township. Volumes are light, 1,300 to 1,400 vehicles per day. The road is 1 classified as a collector. Given its low volume, capacity should be more than adequate. Hemlock Street (SR 1006): Hemlock is a two-lane street which primarily serves residential I users. The volume is listed at 1,800 vehicles a day in Warren, but it drops rapidly in Glade Township. PennDOT lists the road as a collector. Given its low volume, there should be I no capacity problems on Hemlock. Market Street (SR 1017): South of Route 62 (Fourth Avenue), Market Street’s route designation is SR 1017 to Pennsylvania Avenue. Traffic is estimated as nearly 12,000 vehicles per day. No reliable estimate of truck volume is available. Given its volume, Market is apt to be slightly over capacity during peak use.

Hickory Street BridgeKrescent Park, Mohawk Avenue (SR 3005): This combination crosses the Allegheny River from Pennsylvania Avenue and extends to the southern boundary of Warren. Traffic volume is reported to be quite heavy, nearly 19,200 vehicles per day. Given the count, this two-lane road may be over capacity even during off-peak times. Undoubtedly, one reason for this heavy volume is the fact the Hickory Street Bridge is the primary crossing between Warren’s Downtown, the residential neighborhoods of the South Side, Warren General Hospital, and Pleasant Township. PennDOT lists the road as an arterial in the City.

Pennsylvania Avenue (West of Ludlow): This street (SR 3024) is actually a stub left over from the old Route 6 alignment. Traffic volume is listed at 9,276, and PennDOT classifies this road as an arterial. Both the volume and its classification are in question, as the road now services only a few industries, a bowling alley, and a motel.

Local roads which function as collectors include:

Transportation - Warreii City Page T-4 I

I Madison Lexington (west of Parker) I Maidst. Clair I These are all two-lane facilities, and traffic volume data is not available. City Streets: As previously noted, the Public Works Department has the responsibility of maintaining approximately 45 miles of local streets, some 440 blocks. Its duties include I maintenance, snow plowing, and street sweeping. These are discharged primarily by City crews and equipment, though some contract services are used. In addition to its own streets, the City plows some 7.8 miles of State Road in the winter, under an agreement with I PennDOT. I To properly maintain its streets, a multilevel approach is used. The entire road inventory of Warren is annually reviewed and rated. From this process, streets are selected for one of the treatments described in the next paragraph. To date, the approach is working. Since 1986, I approximately 70 percent of the asphalt road system has been resurfaced. The Department of Public Works’ goal is to treat all streets needing attention, by the year 2002.

I The resurfacing of an asphalt street varies. Reconstruction, micro-resurfacing, overlays, and milling with repaving are all used. These actions are appropriate for such pavements. I However, Warren does have 49 blocks of cement-concrete surfaced roads and 22 blocks of brick paving. Though these latter roads last longer, they, too, must be periodically maintained. Consequently, deteriorated sections of concrete roads are being replaced. Brick I roads normally do not have surface problems but do experience subsurface settling. They also must be scheduled for corrective treatment.

I Truck Use: A chronic problem for the City’s street system is truck traffic. When the Route 6 bypass was constructed, much of the east-west through-truck traffic was rerouted and no I longer travels through the heart of the Warren. However, trucks using Route 62 north still need to go through the heart of the City, as do such vehicles originating to the north. Within the City, the United Refining Company is a heavy generator of truck traffic. Its estimated I daily volumes are 200 to 400 rigs. Their traffic focused on Pennsylvania east, the location of the loading facilities. East and westbound traffic, originating there, can use the Glade I Bridge to access Route 6. However, northbound vehicles will use the Pennsylvania Avenue, Market Street route. Other manufacturers in Warren’s east side generate additional truck traffic. North/south traffic, funneled to Market Street (Route 62),creates a chronic capacity I problem on the highway. I I Trampoflation - Warren City Page T-5 I I I Bridges: In addition to streets, there are six major bridges in the local surface network. These include the Pennsylvania Avenue Bridge, Third Avenue Bridge and the Fifth Avenue Bridge. The Pennsylvania and Third Avenue Bridges were replaced within the past 10 years 1 and are in excellent condition. Also, the Fifth Avenue Bridge is scheduled for replacement in 2001. This is an older through-truss structure. Because of its age, certain historical documentation must take place before it is replaced. The total project cost is estimated at I just over $2.5 million, and costs will be shared by Federal (80 percent), State (15 percent), I and local (5 percent) funds. Next, there is the Hickory Street Bridge. As previously noted, this structure is a key link between the Warren Business District and the south side-hospital area. Constructed in 1917, I tills cement arch structure is in obvious need of attention. The arches on the downstream side are spalled and the re-bars the exposed. Some settling is also apparent. According to the current PennDOT 12-YEAR TRANSPORTATION PROGRAM (1997-2008 edition), I this facility is scheduled for some $3.5 million in rehabilitation - in the second four-year program segment. There is every indication that PennDOT may agree to giving this activity I a higher priority. Beyond addressing the physical needs of the bridge, any project which physically closes the Hickory Street link could cause traffic chaos in the City. Just under 20,000 vehicles a day use the structure. This problem must be addressed as part of any I construction plan. I The final two structures are the Glade Bridge and the Route 6 bypass bridge. Both are relatively new structures over the Allegheny River, and are not likely to need attention for I many years to come. Traffic Signals: The City has 22 traffic lights. The timing of these signals is critical to smooth traffic flow, especially in the congested Downtown area. As can be seen by ‘I subsequent elements of this section, many of these are high accident locations. Most are of the “fender bender” variety. It is believed the new signals will decrease the incidence of I accidents. A program to upgrade signalization is now under way, under a PennDOT “SM’program. This will involve new signal heads, updating control boxes, and linking the signals to a central terminal which will allow for timing adjustments. There are 9 signals I in this program in the Downtown. These intersections include:

Market and Second Avenue I Market and Third Avenue Market and Fourth Avenue I Market and Fifth Avenue Liberty and Second Avenue I Liberty and Third Avenue I Transportation - Warren Ci@ Page T-6 I I

I Liberty and Fourth Avenue Hickory and Third Avenue I Hickory and Fourth Avenue Transit: Transit service in Warren is provided by the Transit Authority of Warren County. I It is a fixed route system, strung along Ludlow Street and Pennsylvania Avenue. There are loops using Fourth Avenue (Hickory to Union); one to the Conewango Towers (Oak Street); I one using Madison, on the east side; and service to Warren General Hospital. Bus headways are approximately one hour. Service is provided from 6:30 a.m. to about 8:OO p.m. during weekdays. Reduced service is available on Saturdays. There are no buses on I Sundays or major holidays. Senior citizens (65 and over) can ride free from 9:OO a.m. to I 3:30 p.m. weekdays and all day Saturday. Full adult fares are sixty cents. Beyond the immediate City environs, bus service extends to the Warren Mall, the Starbrick area, Tidioute, Warren High School, and Pleasant Township. Transit oficials report no I plans to change service in Warren City or its immediate environs. Of course, bus replacements are ongoing with the Authority. This is funded via the Commonwealth’s 12- I Year Transportation Program. Accidents: Accidents are of interest to the planner, as they may reveal road deficiencies. I Most, however, are primarily the function of volume. The greater the volume, the higher the incidence of possible accidents.

I For the City of Warren, a three-year accident history was obtained (1993 to 1995 inclusive) and the results plotted on a City map (see plate). The results were relatively predictable. Most accidents, either mid-block or intersectional, occurred along the major roads, I Pennsylvania Avenue and Market Street. Conewango and Fifth Avenue were the sites of I high accident rates. Specific locations of concern include the following: Third Avenue and Market Street Pennsylvania Avenue and Hickory Street I Fifth Avenue and Market Street Pennsylvania Avenue and Conewango Tlurd Avenue and Conewango I Fifth Avenue and Conewango South and Pennsylvania Avenue I The Route 6 Bypass Interchange at Ludlow Pennsylvania from Hickory to Elm Street I Market Street from Fifth Avenue to the City Line (North) I Transportation - Warren Ciry Page T-7 I

I

Pennsylvania Avenue from Schantz to Russell I Pennsylvania Avenue from Rollins to the Glade Bridge

I According to Warren police, two of these problem areas have been improved. PennDOT reconfigured lane consolidation on Route 62 (Market Street) as it enters Warren. This has lessened the accidents on upper Market Street. Also, the signal at Third Avenue and Market I was adjusted, helping that situation. I Parking: When the City of Warren was being developed, traffic flowed by horse-drawn vehicles, trolleys, or was pedestrian. As a consequence, the need for parking was minimal. Today, the one-car family is an exception and the multi-car household the rule. In addition, I most people drive to work and shop. For example, Downtown Warren is a major employment center. Consequently, parking is an issue in the older sections of Warren, both 1 for residential and commercial areas alike. Public parking resources are focused in three sectors. In Downtown Warren, there are three 1 publicly owned lots: Lot A (Riverside) - 214 spaces* I Lot B (off Market) - 32 spaces* Midtown (off Second Avenue) - 176 spaces

I *A mixture of meters and monthly leases

I In addition to public spaces, there are just under 250 metered on-street spaces. This gives Downtown Warren an overall inventory of just under 700 public parking spaces operated I by the Warren Parking Authority or controlled directly by the City. In addition, many Downtown businesses provide parking. The Blair Company has two 1 downtown parking lots for its employees and, as opportunities present themselves, add to their inventory. The shopping complex at the foot of Market Street has a large lot. These I and other private facilities meet some of the specific user needs in Warren. The purpose of public parking in downtown Warren is to provide space for office workers, retail employees, and shoppers. In general, most studies recommend approximately 3 I parking spaces per 1,000 square feet of office building, and approximately 2.4 spaces per 1,000 square feet for general retail. On average, the parking resources of Warren’s I Downtown would appear to be sufficient for approximately 260,000 square feet of oEice/retail blended in an approximate 50-50 division. At the edge of the Downtown, at I Fourth Avenue and Market Street, the County Court House creates another parking situation. I Trampoflation - Warren City Page T-8 I I I Though the Court House has some on-site parlung, and, in fact, has recently added to its inventory, its demand cannot be fully accommodated. As a result, the Court House I generates much on-street parking in that area. On Warren’s east side (Oak to Elm), an off-street lot services businesses - primarily along Pennsylvania Avenue East. Records list 32 metered spaces and 13 permit (lease) spaces. I Meter use is light. Currently, 7 of the permit spaces are leased to a nearby doctor. I On the south side, there are 48 metered spaces along Crescent Park. Primarily, they are used by hospital patrons. Formerly, there were an additional 22 spaces on Main Street, but they have been removed with the advent of the hospital’s parking garage. The Warren General I Hospital has some 214 parking spaces on its campus, primarily in its new parking garage.

Overall, the principal parking problem for Warren is in its Downtown area. It would appear I there is well in excess of 200 additional spaces needed to accommodate current users. To better determine the parlung situation in Downtown Warren data beyond the scope of this I Plan is required. This includes: - Current and potential parking rates (potential income) 1 - Use of current on-street and off-street facilities. - Daytime or seasonal variations I - Better definition of potential users, especially employers Such issues must be resolved before an accurate picture of Warren’s downtown parking I needs can be objectively developed. One thing is clear, the present demand for parking in Downtown Warren exceeds its parkmg inventory.

I Analysis

Internally, the City of Warren has a good transportation network. The traditional gridiron I arrangement facilitates maintenance and local travel. However, there are some concerns:

I Pennsylvania Avenue, East Route 62, Market Street Hickory/Crescent ParkMohawk Avenue I Conewango Avenue I All experience capacity problems during peak use times. I I Transportation - Warren City Page T-9 I 1

I Also, there are other concerns. Though east-west access between east and west Warren is 3oood, access to the south side is limited. Currently, the Hickory Street Bridge is the prime access, for most residents, to the City’s south side, the Warren General Hospital, as well as I extensive residential development in Pleasant Township. This is an old cement arch bridge, with extensive weathering and spalling on the arches, especially the downstream side. I Though the facility is on the Commonwealth’s I?--Year Transportation Plan, it is on the “second four years.” When it is repaired, rehabilitated, or replaced, the City is sure to I experience epic congestion problems. I Other areas of concern are as follows: . Explore the potential with United Refining of pipeline terminals on Route 62 I to alleviate in-town traffic congestion. . After the new traffic lights have been installed determine if selected I intersections warrant additional attention. . New ‘‘SMstudies appear warranted on Conewango at Pennsylvania, Third I Avenue, east from Conewango to Russell, and near the Glade Bridge on Pennsylvania Avenue.

I . Continue to explore the potential of a Route 62 Bypass to alleviate north- south traffic in the City. I I I I I I I I Transportation - Warren Ciry Page T-10 I I I COMMUNITYFACILITIES I AND SERVICES

I INTRODUCTION

o successfully exist, the City of Warren must have access I to a network of public and quasi-public structures and Tservices. How can a City exist without such essentials as I sewer and water, parks, hospitals, schools, and public buildings. Safety services, primarily police and fire, are also included in this heading. Some of these are under the direct control of the City I of Warren; others are not. For many of these elements, the City Plan may not have a direct impact. However, the Plan must have accurate information about them in order to complete its I task of assessing Warren’s future. Buildings, land, I and services for Comprehensive plans traditionally focus on the physical aspects the public of a community rather than its services. This Plan will generally are included in follow that tradition, but will include discussions of key services. I communily facilities, Such an approach is warranted by both the importance of these and range from sewer services to Warren’s citizens and their costs. Finally, this Plan I and water, to parks, will primarily emphasize those items which are under the direct hospitals, and schools. control of the City. As a general reference to this entire section, I the plate “Parks and Community Facilities” follows this page. In the City of Warren, those community facilities which are owned by the City generally fall under the responsibility of its I Department of Public Works. The principal elements of interest to this Plan include public buildings, parks, storm drains, and the I sanitary sewer system. PUBLIC BUILDINGS: The principal public buildings of the 1 City of Warren are found in two separate groups. The City Hall complex is located at Third Avenue and Hickory Street. The Municipal Garage is found at the foot of Elm Street. Other City- I owned structures are associated with the sanitary sewer system I and will be covered under that heading. I Comniunity Facilities - Warren City Page CF-I I

I

I The Warren Municipal Building is a 19,000 square foot, two-story brick structure, with a slate roof, constructed in 1937. Its design is in a colonial fashion with a formal entryway I flanked with columns. Although structurally sound, this building is now sixty years old. The Municipal Building houses the City’s administrative operations as well as providing I space for police and a small lockup facility. There is a meeting room on the first floor, but the Council Chambers are on the second level. Handicap accessibility is assured via a ramp to floor one and by elevator to floor two. To the rear of the City Building, a 30-space I parking lot is found. It functions as a parking area for City vehicles as well as visitors.

Physically, this structure appears in good condition. Operational maintenance is very good. I However, beyond the typical requirements of routine painting and maintenance, there is some modernization required. Primarily, it involves updating to the heating, venting, and I air-conditioning system.

The Fire Station is immediately beside the Municipal Building. This 11,000 square feet I structure was constructed with one- and two-story elements. It, too, is a bricWmasonry building, with both a slate and flat membrane roof. This facility is in good condition, overall. However, the slate portion of the roof does need attention and will need either I repair or replacement over the next five years. A plate, Parks and Community Facilities, I shows the general location of the resources (follows page 4). From a spatial viewpoint, some of the building now used for storage might be converted to active uses. Such a move would allow an examination of the overall space allocation in the 1 Municipal Building complex. I The Station provides for the storage of rolling stock for the Fire Department, space for its administrative operations, and the City’s Code Office. Maintenance on the Department’s I rolling stock and equipment is normally performed here. The City Garage site is located at the foot of Elm Street. It is composed of two metal and two wooden structures. The wooden structures are for salt storage, while the other two I buildings are used for vehicle storage and maintenance. The larger, a garage, is 27,180 square feet and the storage facility is 6,528 square feet. This complex appears in good I condition. City officials report its size is adequate for their current use. STORM DRAINS: The City of Warren has a relatively complete storm drainage system. I Engineers estimate that the total drainage area tributary to the City is about 7,150 acres. Of that amount, only about 2,100 acres (30%) is actually within City limits. The Townships of I Conewango, Glade, and Pleasant all generate stormwater to Warren and their development I Coinmimiry Facilities - Warren City Page CF-2 I I

I practices have an obvious impact on Warren’s system. Annually, the drainage area generates about 4.3 billion gallons (BG) of runoff, 2.5 BG from outside the City - 1.8 BG from the I City proper. Though a detailed description of this system is not now available, a few key statistics are:

I . Approximately 19 miles of storm sewer lines . Approximately 300 storm system manholes I . Approximately 1,700 public inlets While sanitary sewers all lead to a single point, the treatment plant, storm drains flow I generally to the nearest stream. These drains primarily outfall into the Allegheny River or Conewango Creek, though a few empty into Glade or Indian Runs. Within the City, both Indian and Glade Run are channelized, the result of a Federal program some years ago. I There are approximately 50 such outfalls. I Outfalls into the Allegheny can be affected by high water levels in the river. When river levels are high, they can be covered by river water, greatly slowing stormwater release and causing backups into the storm drain network. Such backups may flood road intersections, I depending on the duration, and intensity of the storm event.

As was common practice in past generations, some of the City’s storm drains and inlets and I private downspouts are connected directly into the sanitary sewer system. Other elements were cross-connected, often as relief sewers. Though such arrangements were typical in the I nineteenth century and, indeed, in the first half of this one, such designs are no longer followed. Existing connections of this type can introduce excessive storm water into the I sanitary system, causing numerous problems (see the next section). The physical characteristics of Warren also add to its storm drainage problems. Geographically, Warren has developed in a linear fashion, on relatively flat land, along I rivedstream courses. City boundaries are relatively narrow. The external City boundaries are typically on slopes which rise from the flat valley lands. As noted on the prior page, up- I gradient development, especially in Conewango or Glade Townships, can, and do, cause problems of storm drainage in the City. The construction of the High SchoollVo-Tech complex off Fifth Avenue is an excellent example of such drainage woes. Acres of building I and parking areas exist with no stormwater retention facilities. Consequently, all runoff is simply “dumped” into the City. This situation is reflected on the Drainage Problem Areas plate. The primary storm drain problem areas for Warren are in the Spring Street, Liberty I Street, Quaker Hill, McPherson Street, Stuart Street, and Jefferson Street areas, all I influenced by up-slope development. I Comrnuniiy Facilities - Warren Ciry Page CF-3 I

I Stormwater management has been a long-term concern of the City. Its 1995 Public Works Corporate Plan listed some 22 stormwater projects and the need to prepare a comprehensive stormwater management plan. The current strategy is to correct known problem areas, such I as ponding caused by a lack of street drains or pipe siltation. Recent projects included Lexington Avenue as well as the construction of 21 new catch basins in priority locations. I Short-term plans include a project on Linwood Street and the continued evaluation of drainage inlets. In recent years, the City’s budget devotes $66,000 to $150,000 annually for storm drainage improvements. The City traditionally has a list of larger stormwater I improvement projects. The most recent edition included seven separate activities, with a I price tag of $1.6 million. Too often, in past years, storm drains were built with little coordinated planning. Also, as- built drawings, if prepared, were frequently lost. Consequently, the exact location, pipe size, I and flow characteristics for much of this network are unknown. This lack of historic record keeping creates situations where an 18-inch drain may flow into a 12-inch pipe. However, the biggest problem is the inability to accurately assess the behavior of the storm drain I system and its impact on the sanitary sewers. With the advent of the City’s computerized CIS system, the system is being systematically mapped. Officials from the Department of I Public Works believe this action makes the creation of an accurate municipal stormwater plan closer to reality.

I The problems with storm drainage for Warren can be summarized as follows: 1 . A complete updated plan of the system does not yet exist. . Runoff from up-slope development, often outside the City, creates stormwater I problems for Warren. . There is no stormwater management plan adopted by Warren County, as I required by State statute. I . There are no County stormwater management controls. . Kinzua Dam water releases, and other high water events, slow system I stormwater releases. . The combined sanitary, stormwater sewer system and its crossovers may I introduce a diluted sanitary component into street and basement storm I surcharges . I Community Faciliries - Warren City Page CF-4 I I

I SANITARY SEWERS: Reports indicate that Warren’s sanitary sewer collection system djtes at least to the late nineteenth century. However, it was not until 1959, that the first treatment plant became operational. That plant provided primary treatment only. In 1970, I the Warren Borough Council was informed by the State that an upgrade to secondary treatment was needed. In 1973, bids for these facilities were received, and by 1975, the I secondary treatment units went “online.” These secondary units were built onto the original plant, and this complex remains in use today.

I Currently, the City’s wastewater treatment plant has a rated hydraulic capacity of 4.25 mgd (million gallons per day) and an organic capacity of 5,100 ppd (pounds per day). According to recent statistics, the City’s plant provides treatment for some 13,600+ persons. This I includes all of the City of Warren and parts of Pleasant (1,485 persons), Glade (835 I persons), and Conewango (120 persons) Townships. The City’s sanitary sewer collection system is pervasive and extends to the entire developed area of Warren City. Physically, this system is separated into three segments: the west side, I east side, and south side. The wastewater treatment plant is located on the south side. I On the east side, a sewer line, extending along Conewango, as well as lines along the Allegheny River and Lexington are the principal collectors. They meet at Oak and Peach and flow by gravity, under the Conewango Creek to the East Street line and then to the Clark I Street pump station. Sewage from Liberty Street east, on Warren’s “west side,” also flows to this point. Fro’m the Clark Street pump station, a 16-inch force main transports sewage under the Allegheny River to a 24-inch gravity line which flows along Biddle and Harmar, I to the treatment plant. I The balance of the sewage generated on the west side is transported by collectors along Pennsylvania Avenue and Sill Street to a pump station on Pine Street. This pump station transports the sewage via a 10-inch force main under the Allegheny River directly to the I plant.

Sewage collected on Warren’s south side uses collectors on Biddle and Tuscarora to flow, I by gravity, to the plant. The City’s wastewater treatment plant is situated on the western end I of HmarStreet, near the Allegheny River. Raw sewage enters the plant via an interceptor. Though the physical plant is 20 to 40 plus years old, it is well maintained and consequently in good condition. The City has an ongoing program of equipment replacement and the I rehabilitation of structures and tanks. Because of their age, pumps and similar mechanical I devices require attention, but spare parts and spare pumps are kept on hand. I Cornmriniiy Fuciliries - Warren Ciiy Page CF-5 I I

I Despite its physical problems, the system is very well operated, as the following statistics confirm. Over the period of one year, the system handles approximately 1.1 billion gallons (BG) of raw wastewater. Of this amount, approximately 1.04 BG (95%) is fully trellted and I less than 5 percent must be bypassed during periods of peak system flows. This diluted I untreated effluent is bypassed through combined sewer overflows. There are four permitted combined sewer overflow points in the City’s system. One at Oak and Peach Streets is activated by a manually operated sluice gate. It is used infrequently. I There is a bypass chamber at the plant; however, it is not operational, since its outflow elevation is too high. Most bypass discharges are generated at the two pump stations. Each have overflow pumps which are activated when required as a means to protect public health I and property. I The cause of the system’s problems is essentially hydraulic and can be generalized as follows:

I Combined Sewers: As common in many older cities, a number of Warren’s sewers were originally “combined.” That is, both storm and sanitary sewerage was accommodated in a single sewer line. Generations ago, this merely involved an I outfall to the Allegheny River. Since 1959, however, it means every rain storm causes thousands of gallons of rain water to flow to the treatment plant, combined I with its wastewater load. A related problem from combined sewers is the entry of dirt, sand, and like debris into the sewers from City streets. These cause a build up of silt in sanitary sewer lines and may seriously decrease the available volume to both I transport and store sewage. I Roof and Parking Lot Drains: In addition to rain water entering the system from City streets, there are numerous roof and parking lot drains connected to the sanitary sewers. This is especially true in older sections of the City. According to I engineering estimates, connected roof drains could generate up to three million gallons of runoff for each inch of rain fall. In addition to the excess water, these I sources also contribute dirt and debris whch can clog sewer lines. Infiltration: The preceding problems are classified as inflow. For Warren, infiltration 1 is also a big - perhaps the biggest - cause of hydraulic overloads. Infiltration is the entry of ground water into the sewer collection system. This entry is via loose joints, leaky manholes, and broken lines. The amount of ground water will have a profound I effect on infiltration. As sewers are designed to flow with gravity, they tend to follow natural water courses. Furthermore, as mains feed into collectors and I collectors into interceptors, these lines must be buried deeper and deeper to take I Commnniry Fuciliries - Warren City Page CF-6 I I

I advantage of gravity. In Warren City, large collectors and interceptors can often be found bordering the Allegheny River.

I The Army Corps of Engineers operates the Kinzua Dam. To maintain certain water levels at their impoundment, they periodically release water into the Allegheny River, I causing it to run at “bank full” levels. Typically, this occurs for two- to four-week periods in the spring and fall. Coincidentally, the worst-case capacity problems for the sanitary sewer system occurs when the Corps is sustaining a high-river elevation I and a storm andor snow-melt event is experienced. A review of system records clearly shows the direct connection between these circumstances and system I hydraulic overloads. Why? When running bank full, the Allegheny causes two situations which adversely I affect Warren’s sewer system. One problem is these flows super saturate and elevate groundwater levels. That greatly increases infiltration. High river levels often cover storm drain outfds, reducing their flow capacity. During rain storms, water can back I up into the storm system.

Such problems are, however, intermittent. In fact, the average annual daily flow is well 1 under the treatment plant’s 4.25 mgd rating. Though the system’s hydraulic operation is subject to problems during peak flow periods, it does not necessarily experience any organic I problems. Warren’s sewer plant has a rated organic intake capacity of 5,100 ppd. The average daily load is estimated at less than 3,000 ppd. Though Warren’s sewer overflows are intermittent, they could put the City in violation of State and Federal discharge I regulations. Consequently, the system’s hydraulic overload issues must be addressed. The City, along with its Public Works Department and the Engineer, are working with the I Pennsylvania Department of Environmental Protection to resolve such issues, as this report is being written. The solution phllosophy can be summarized as follows:

I - Manage total system flow better. - Take every opportunity to reduce system flow.

1 Progress is being made. System improvements will be made according to a long-term control plan. Associated costs, less grants, and low-interest loans that may be available, will 1 be incorporated into the City’s user rate fee schedule. RECREATION: In Warren, recreational facilities fall under the jurisdiction of the Public 1 Works Department. Its responsibilities encompass two basic areas, the physical resources and programming. A nine-member citizen Parks and Recreation Commission actively I assists the City in their recreation efforts. I Community Fuciliries - Warren City Puge CF-7 I I

I 1 I

I The City’s park system consists of 23 sites which total 188.5 acres. The parks are divided between active (9) and passive (14). Many of Warren’s parks have been created because of a gift from private citizens. This is a wonderful example of civic duty; yet, it also presents I limitations. Overall, the park system is comprehensive and well maintained.

The City has just completed a five-year plan for Warren City parks. That study has a rather I detailed inventory of the facilities at each site. Consequently, this Plan will not duplicate 1 such efforts. But, the essential elements of each park are presented. Active Parks

I Beaty Park: The facility is nestled between Conewango Creek and Conewango Avenue on Warren’s east side. Its southern border abuts recreational land of the School District so, I practically, this large urban park extends from Third Avenue to Fifth Avenue. Combined with School District facilities, it includes:

I Football field and running track BasebalVsoftball fields Three tennis courts (with lights) I Hard-court basketball Picnic tables and pavilion I Various pieces of children’s play apparatus (swings, climbing bars, seesaws, etc.) Generally, this park appears in good physical condition. In spite of its abundance of I facilities, it is not crowded. Given its size, about 6 acres, national standards would classify it as a neighborhood park. Yet, Beaty is somewhat isolated by busy streets and water from nearby residential neighborhoods. That isolation, along with the nature of its facilities and I use, move Beaty to the classification of a community park, especially for Warren’s east side. I This land does have deed restrictions associated with it. Clifford R. Beth Memorial Park: This is a 50-acre site located on an oxbow of the Allegheny River. It was formerly the location of the Warren Borough Airport, and the I paved runway remains, serving as both a surface parking lot and limited recreational use (hard court basketball). Physically, the park is isolated from the City by the Route 6 Bypass, I which serves as Betts Park’s northern border. The park has the following features: I Community Facilities - Warren Cie Page CF-8 I I

I . 4 permanent ballfields - all with backstops, bleachers, and needed appurtenances.

I . 3 temporary ballfields - though not as fully developed as the other ballfields, they do have backstops and bleachers. Also, temporary Field 1 and Field 2 are I so arranged that their outfield areas can be combined and easily used for other field sports.

I . A riverside arboretum trail with vistas and benches. I . 3 sets of restrooms, one associated with a concession stand. I 2 bocce courts . A sand volleyball court I . 4 picnic pavilions and charcoal grills

1 b Various play areas with children’s apparatus - 3 sites I . 4 tennis courts (with lights) In spite of its intense development, this 50-acre site conveys a feeling of openness. Also, though some trees have been removed to provide views to the Allegheny River, many I remain. The northeast section of the park is especially wooded. Given its size and facilities, Betts Park can truly be described as a community park. One of its positive assets is the I continuing financial support of the Betts Foundation. Traffic on Ludlow Street and the Route 6 Interchange presents the main deficiency of this park -poor pedestrian and bicycle I access. Betts-Jackson Park: This park is immediately north of the Route 6 Bypass, to the west of the John Carbon Park, and to the north of the Clifford E. Betts Memorial Park. It is a one- I acre ballpark that is quite extensively developed. There are dugouts, fencing, and a concession stand, with a second-story press box immediately behind the backstop. This I facility is in good condition. John Carbon Memorial Park: John A. Carbon was chairman of the Warren Park and I Recreation Commission from 1950 to 1963, and this park was named for him. It is a small one-half acre playground located on Wetmore Street, to the immediate east of the Betts- 1 Jackson ballfield. This park contains restrooms and a hard-court basketball facility, but I Cornrnuniry Facilities - Warren Ciiy Page CF-9 I I

I playground equipment for younger children are the dominating feature (swings, seesaws, merry-go-rounds, etc.). Carbon Park could be best described as a mini park, serving the I immediate neighborhood. Its condition is fair. Conewango/Allegheny River Pool Park: Known universally as the CAR Pool, this two- I acre site is located off Peach Street on Warren’s east side. There are two major pools at ths location as well as a wading facility. Two brick structures flank the deep diving pool and provide storage, concession areas, locker rooms, and staff space. A canvas pavilion is also I on-site. Unlike other Warren recreational facilities, the CAR Pool does have a fee schedule. In 1997, a family season pass was $75.00 and a daily adult admission was $2.50.

I Outdoor pools are continuing maintenance problems, and the CAR Pool is no exception. The “diving” pool was closed over the past season, due to leakage and maintenance I concerns. In 1995, the Department of Public Works estimated that repair and maintenance needs at this park were approximately $330,000. Despite its maintenance difficulties, the I CAR Pool complex is a major element in Warren’s recreational resources. Crescent: The facility can best be described as a hybrid park, with both active and passive elements. At its eastern terminus, near Hickory Street, a monument to Native Americans is I found, along with flags representing historic influences in Warren, the Indians, French, English, and Americans. The facility then fills the space between the Allegheny River and I Crescent Park Street. This lineal section has a Tree Walk planted with 23 specimens. An outdoor physical fitness center is found near its midpoint, across from Warren General Hospital. Though the Tree Walk area can be used as a jogging and as a fitness trail, it I appears to function primarily as a passive scenic park. Near the park’s western end is a picnic pavilion, and, at this point, Crescent expands into an active neighborhood park with hard-court basketball, play apparatus, and two baseball fields. A maintenance building with I a pavilion and restrooms is also located here. Condition is fair to good.

I DeFrees Park: Situated in Warren’s historic district, this 0.9-acre facility faces the north side of Fourth Avenue, just east of Hickory Street. The park frontage is a large grassed area, with picnic facilities and play apparatus in the rear. Though designed as a general purpose I playground, DeFrees is primarily used by various day care centers in this neighborhood. A vestige of its former residential use is a two-car garage which is also in the rear of this I parcel. The structure contains a storage area and restrooms. Memorial Park: This “L” shaped, 0.4-acre facility runs between Lexington Avenue and I Elm Street. It is immediately adjacent to the Warren County YMCA. A hard-surface basketball court is coupled with various pieces of playground equipment and apparatus. I Memorial Park can be classified as a neighborhood playground. Condition is fair. I Comrnuniry Facilities - Warren Ciry Page CF-IO I Mulberry Park: This is a large 9.7-acre park between Glade Avenue and Frank Street. Access is from Glade Avenue. Most of Mulberry Park is the interior of a block, with a street frontage used for residences. The developed area of Mulberry is at its western end. A ballfield, play apparatus, restrooms, and a basketball hoop (with a pad) can be found. The equipment is in fair condition. Much of Mulberry is open space, and it is used for sled riding in the winter. Drainage problems have been reported at the park, it is down slope from the High School, Vo-Tech complex.

Passive Parks I There are fourteen passive parks in Warren’s inventory. Their function and usefulness vary by type and location.

I Celoron Park and the General Joseph Warren Park are both located along Pennsylvania Avenue, the former at East Street and the latter at West Third Avenue. Celoron (0.2 acres) is important historically, as it was designated as a park when Warren was originally laid out. The Joseph Warren Park is also 0.2 acres and triangular in shape. It contains some benches and statuary. Both function as traditional city passive parks.

I Clemens and Wetmore are 0.3 and 0.1 of an acre in size, respectively, and are located on West Fourth Avenue in Warren’s historic district. They are essential passive parks. Wetmore does have an attractive garden planted and maintained by the Warren Garden Club.

-Fourth Avenue, Levee, Reier, Boulevard, and Liberty Mall Parks are small passive I parks usually associated with road rights-of-way. They function primarily as green space, although two of them do provide water access. In total, these five facilities total 3.1 acres.

1 Pennsylvania Avenue Park is only an acre in size, but it is along the Allegheny River on Pennsylvania Avenue directly across from Crescent Park. Currently, it is undeveloped, I except for a few benches. Point Park is located at the confluence of the Allegheny River and Conewango Creek. I Much of this land is flood plain. For years, Point Park was left in a natural state. However, over the past two seasons, the City has developed this land. Through selective clearance, site cleanup, and by the installation of some picnic-type facilities, these beautiful water- I related 11 acres are now beginning to experience more extensive use. I I Communiry Faciliries - Warren City Page CF-11 I I

I Morck Park: Morck is a 1.8-acre facility located off Seventh Avenue near Warren’s northern terminus. It is a passive park with a pavilion and benches. What makes Morck I unique is its location near the County bikeway trail, which leads to North Warren. Scofield Park is 27.3 acres found on Liberty Street Extension. It is wooded, hilly, and in I an area extensively drilled for gas and oil. The City does not own the mineral rights. Some timber has been harvested at this location.

I Washington Park contains 65 acres and is only accessible off Liberty Street Extension in Conewango Township. Currently, it is undeveloped, outside of some roads and a few picnic I tables. Physically, it is isolated from the City proper because of topography. Private parties hold the mineral rights.

I Waterfront: At this time, the City is beginning to develop some of its river frontage next to the Riverfront parking area, close by the Hickory Street Bridge. The area is just to the east of the Pennsylvania Avenue Park and offers the potential of an attractive lineal resource I along the Allegheny River. I YMCA: Though not a public-owned resource, Warren’s YMCA is an important recreational resource. This new structure is on Warren’s east side, at 212 Lexington, next to Memorial Park. It provides indoor swimming, a fitness center, gymnastics, and a variety of related I activities. The Jefferson-DeFrees building is a more modest structure in Warren’s Downtown.

I Warren County School District: Beyond some modest resources at individual schools, the District has three recreation sites in Warren. One, the Lacy Playground, has only a few I pieces of play apparatus and a ballfield. It is in fair to poor condition. War Memorial Field, next to the YMCA, is the football stadium for the School District. Finally, there are school- I owned facilities at Beaty Park, which were discussed previously. I Analysis An analysis of Warren’s park system reveals the following: I I I I Cornniuniry Facilities - Warren Ciry Page CF-12 I I I TABLE CF-1 PARK SYSTEM ANALYSIS I WARREN, PENNSYLVANIA I Recommended* Existin5 Comments Overall Size 68-115 Acres 188.5 Overall acreage more than I sufficient Tennis 5-6 7.0 Near demand Basketball 2-3 5.0 Slightly high I Volleyball 2 2.0 Near demand Ballfields 4 13.0 Much over that required Football 1 1 .o Does not include Lexington Avenue I Track 1 1.0 Near demand Playgrounds 2-3 8.0 Much above required

I *Based upon the suggested guidelines found in RECREATION, PARK AND OPEN SPACE STANDARDS AND GUIDELINES, published by the National Recreation and Park Association..

I Source: Consultant’s computations

I Based upon the preceding table, it is obvious that Warren has sufficient facilities in most categories and an apparent surplus in others. In at least one instance, ballfields, the apparent 1 surplus of facilities can be explained. Warren City parks are the hubs for several baseball- softball leagues. The leagues have membership that is practically Countywide. As a I consequence, the community is serving as a regional, rather than a City, resource. When playgrounds are examined, there are two elements to consider when completing an analysis. One consideration is function. Some of Warren’s playgrounds serve large areas; I others, smaller neighborhoods. National standards for service areas vary from one-quarter mile to a half-mile radius. For the purpose of this analysis, a 2,000-foot radius was used - I a good compromise figure. Based upon that stmdard, there are two areas where service gaps in the community can be found. One is on the west side from Union Street to Momson. However, much of the land in that sector is devoted to industriaYcommercial use, I so this shortfall is not a serious concern. However, Warren’s east side is under served, especially with the continued deterioration of the Lacy Playground.

I From the standpoint of active recreation, the existing recreation program appears mainly to I be targeted toward school-age children and young adults. Yet, this population only I Co,nrnunity Facilities - Warren City Page CF-13 I represents 40 percent of Warren’s total residents. In future recreation planning, the needs I of the more mature residents of Warren must be given greater consideration.

I A second aspect of Warren’s recreational analysis centers upon four passive parks. The problems they present are as follows:

I Scofield and Washinaon: These facilities are largely undeveloped tracks of land primarily functioning as municipal forest. In fact, Scofield has seen timber harvesting I once. As previously noted, mineral rights are held by others. Though Scofield is on the northern boundary of the City, Washington is only accessible after passage through Conewango Township. Such isolation tends to discourage heavy inveslment I in park facilities, as vandalism is virtually unchecked. In fact, past efforts at improvements at these locations have suffered from that problem. Due to these considerable liabilities, the long-term viability of both facilities needs to be I questioned. I Clemens and Wetmore are quite urban, physically located in the heart of the City. They are attractive green spaces, but essentially represent an ongoing maintenance I expense, with little programmatic payback. NON-MUNICIPAL COMMUNITY FACILITIES: Several important facilities are not I municipally owned but are quite important to the City. Library: The Warren Library Association facility is located at 205 Market Street. This building is a three-story stone masonry structure of 26,543 square feet. The structure was I I originally constructed in 1915 with a new wing (south) added in 1985. There are no present plans to physically enlarge the structure.

The library’s collection consists of 210,000 books, videos, and CDs. In addition to its regular collection, the library subscribes to various magazines and newspapers. A collection of historic photographs and documents about Warren County rounds out the library’s collection. Warren is also part of the Interlibrary Loan Program which makes a host of other material accessible to its patrons.

Community Facilifies - Woven City Page CF-I4 Registered borrowers are listed as in excess of 18,000, of which 6,600 are City residents. During the average month, more than 17,000 people use the library. In addition to its I traditional library function, the building is used by community groups for meetings. The library is normally open 65.5 hours a week, with summer hours cut back to 61.5.

I A bookmobile service is provided by the Association, and it makes more than 30 stops a month. There are four separate library systems joined in the County organization, with the Warren Library Association providing administrative services. Finally, the Warren Library I also provides services to a five-county region. I There are two issues which are of contemporary concern to the library. One is a report produced by the Pennsylvania Economy League which has made various recommendations for a stronger Countywide system. The second recommendation is funding. The County I Library System has received County funds for operation. Between 1996 and 1997, $89,500 was cut from that source. A proposal for a 1.3 mill County tax for the library was on the November ballot but was voted down.

Schools: Warren is part of the Warren County School District. The following facilities are located in the City:

. Home Street Elementan, School, 200 Home Street - This school was constructed in 1930 and renovated in 1949. The building size is 11,396 square feet and there are 7 classrooms. Its capacity is 175, and enrollment was 109* in 1996.

. Jefferson Elemen- School, located at Jefferson and Conewango Streets, this structure was built in 1953. The building has 26,960 square feet and 15 classrooms. Student capacity is listed at 325 and enrollment is about 207*.

. Market Street Elementary School, situated at the comer of Second Avenue and Market Street, this school was constructed in 1964. It has 12 classrooms and 25,136 square feet in floor area. Capacity is listed at 300 and enrollment was 242* in 1995-1996.

. South Street Elementan, School is located on Pennsylvania Avenue and South Street. This elementary school was built in 1971 and is 34,645 square feet in size. There are 15 classrooms. Capacity is estimated at 375 and use for the 1995-1996 school year was 265*.

Communiq Facilities - Warren City Page CF-I5 I

I . Beaty-Warren Middle School has an address of2 Third Avenue East. This is quite a large facility of 152,300 square feet. It was originally constructed in I 1929 and has undergone three subsequent additions or renovations. Student capacity is listed at 1,317 and enrollment is 1,001* (1996).

I *Enrollment per Pennsylvania Department of Education data.

The School District reports a firm has been retained to complete a space utilization study of 1 selected facilities. Changes to school buildings in Warren City will be based upon the I recommendations of that report. . The Warren High and Vo-Tech Schools are located at a campus on Lawn 1 Avenue, just outside City limits. Water: All of Warren, and much of the surrounding area, is served by a private water utility, the Pennsylvania-American Water Company. They have not responded to requests for I information relative to their current service characteristics or future needs. I Public Services Police: The City of Warren is served by a 15-person Police Department. Its operations can I be broken down into three categories: traditional services, community safety services, and community cooperation.

I Traditional services make up the activities most citizens envision the police performing. They include patrols, traffic enforcement, and call response. Civilian personnel provide the I greater part of headquarters staff, allowing officers to focus on police activities. The Department’s five vehicles include four marked and one unmarked cars. Typically, two I cars are on duty at all times, giving the City 24-hour service. The headquarters is staffed 16 hours a day. These are averages, and personnel levels can vary. One of the staffing 1 problems the City faces is a two-tier employment agreement with its police officers. Those officers under the old contract provisions have more limitations on scheduling than newer I police officers. Criminal offenses make up a good proportion of traditional police service. Over the past four years (1993-1996 inclusive), an average of 768 offenses was reported. However, the I level of calls for service are much higher, averaging over 700 a month. I I Community Facilifies - Warren City Page CF-16 I I

Warren’s police activities are primarily focused on the traditional services. Patrols and call responses involve 60 percent of the force’s hours. Because of this demand for personnel and current complement of officers, community involvement and safety programs have not been I fully realized. In 1998, a community service officer was added to the police roster, which ~I should improve those efforts considerably. There are two detention cells in the police station at the Municipal Building. However, these can only be used for short durations, no more than six hours. Typically, prisoners are kept ‘II here until they can be arraigned before a District Magistrate and then are committed to the County Jail.

I Parking ordinance enforcement is aided by a separate contingent of personnel. There are four ordinance enforcement officers. Also, separate personnel are used at the City’s 1 attended parking lot.

In terms of capital requirements, the Police Department’s largest needs are replacement 1 patrol cars. Various pieces of enforcement equipment, computers, and video monitors are among the Department’s other requirements. Police personnel believe that better street I lighting and local police radar would also be very helpful to their efforts. I I Fire Service: Firefighting services are provided by the City of Warren Fire Department. I The current staff complement consists of 15 full-time and 15 part-time firefighters. Coverage duties are divided among three platoons during each 24-hour period. The policy is to have 6 persons on duty at all times. A two-tier collective bargaining agreement has 1 assisted in meeting staffing and community service needs in an economically responsible manner.

1 The department is housed at the Central Fire Station, next to the Municipal Building, off of I Third Avenue near Hickory Street. Its rolling stock consists of 1993 E-1 Pumper I 1977 Ward-LeFrance Pumper (rebuilt in 1991) 1979 Ward-LeFrance Ladder Truck, 100 feet (refurbished in 1997 - useful life, 10 I to 15 years) I Cornrnuniiy Facilities - Warren City Page CF-17 I 1998 Ford Ambulance

1983 special Services Unit (repainted in 1998)

In addition to their firefighting duties, the Department provides:

. Ambulance services (advanced life support is via Warren General Hospital) . Fire prevention and educational programs . Code enforcementhousing rehabilitation . HAZMAT response . Water rescue

Many of the activities of the Fire Department are traditionally associated with such operations. The ambulance service, fire suppression, HAZMAT (hazardous materials) responses, and water rescues are typical Fire Department operations. The Department also has mutual aid pacts with surrounding municipalities.

The most surprising part of Fire Department operations is the fact that costs for these services have been contained, or even reduced over the past years, while such services continue to be enhanced.

One unusual aspect of the Department’s operation is the code programs. Outside of fre code enforcement, most fire departments usually are not involved in code work. For the City of Warren, not only are building codes administered, but also the City’s zoning ordinance. The code services - Building Safety Management - are indeed an active area. In 1996, some 550 permits were issued and 90 complaints processed (82 cleared). Combined with their fire preventiodeducational program, this approach had paid dividends in a variety of ways. Perhaps the most dramatic is the reduction of fires in Warren City. In its 1996 report, some eight yeas of fire statistics are presented. In the 1989-1991 era, the City had an annual fire response average of 62 incidents. By the years 1994 to 1996, averages had dropped to 42. And, these figures are not an anomaly, but part of a steady reduction of fires.

The Department has a very active ambulance service and over the past three years, has averaged more than 700 responses annually. Currently, this service is classified as Basic Life Support. Other organizations provide Advanced Life Support systems. The ambulance service cooperates with other agencies such as Trans Care Systems.

Five-year (1999-2003) capital needs are projected at $197,000. The largest items are replacement of alarm monitoring equipment and development of a Fire Service Training area. Development at the training area is intended to support planned personnel and service

Communi? Fnciliries - Warren City Page CF-1 S I

I enhancement strategies. Use of the facility by other agencies could be used as a tool to I promote continued cooperation among fire agencies in the area. Warren General Hospital: The Warren General Hospital is located at 2 Crescent Park West in the City. Accredited by the Joint Commission of Healthcare Organizations, the t hospital is characterized as a short-term facility which offers medical and surgical care. There are 89 beds.

I During an average year, Warren General admits about 4,000 patients and has over 7,600 outpatient visits. In 1996, there were 40 babies delivered. According to available data, over I 20 services are offered by the hospital, including cardiac care, oncology, diagnostics, sports medicine, and women’s programs, among others. Its Emergency service receives over I 17,000 visits annually. Total staff is over 400. Struthers Library Theater: The theater was originally built in 1883 by Thomas Struthers, as a community cultural resource. In 1919, it was remodeled to accommodate both t vaudeville and moving pictures. It continued as a movie house until 1980, when it closed. Local contributions of over $2 million have since seen this facility’s restoration and reuse. I It now functions as a playhouse, and the original public library room has been restored. I I I I I I I 1 I Cornrnirnify Faciliries - Warren City Page CF-19 I HISTORICRESOURCES

riginally laid out in 1795, Warren has a long and rich 0history. Many of the City’s older structures are clustered around its Downtown. This concentration of historic resources has led to a program to designate the sector as a historic district. A joint effort by the Warren County Historical Society and the Warren County Planning Commission resulted in a formal application to the Pennsylvania Historic and Museum Commission for this purpose. Approval of the application is expected. Much of this section was taken from that application.

As noted above, Warren was originally laid out in 1795 by General Irvine and Andrew Ellicott. It was named for General Joseph Warren who fell at Bunker Hill during the Revolutionary War. Settlement started a year later, and by 1805, a lumber trade Designated as the had begun. However, development was slow and the Warren County seat, County area was still attached to Venango County for judicial purposes. By 1816, the County still had only 256 taxpayers. Warren has a long and rich In 1819, Warren County was officially established and the town of Warren was designated the county seat. Early settlers made history. their living through lumbering and lumber-related enterprises. During the late 1820s, the town had developed into a profitable lumber exporting center. Abundant forests of pine and oak, and the opportune location of the Allegheny and Conewango waterways provided work for many lumbermen, which increased the population and spurred the incorporation of Warren as a borough on April 3, 1832.

The lumbering industry began to decline in Warren by the 1840s. In the 1850s and 1860s, new industries were being established which revived the economy; and the introduction of the railroad to the area spurred additional growth. Some of this construction was concentrated along Market Street where, between 1865 and 1875, a number of mansions were erected.

Historic Resources - Warren City Page HR - 1 E Warren was transformed into a boom town following David Beaty's discovery of oil, east of the Conewango Creek in 1875. The oil was I discovered accidentally as Beaty drilled for natural gas on his new estate. This success drew many speculators to the area, again increasing the population. Numerous homes, businesses, and hotels were erected to I accommodate the vast numbers of new residents in search of wealth in the oil fields. Commercial development was concentrated around the southern stretch of Water Street I north of the Allegheny River (now Pennsylvania Avenue). Residential development was predominantly west of the Conewango Creek, along its bank and south of High Street (now Fourth Avenue). A majority of the houses constructed during this period were executed in I the Queen Anne style, with elaborate ornamentation, reflecting the new affluence of the 1, owners. Several churches were also constructed during the early period to meet the religious needs of the increasing population. The German Evangelicals (1852), Universalists (1860), 1: Baptists (1860), Episcopalians (1867), Presbyterians (1867), and Lutherans (1869) all built churches during this period. The Trinity Memorial Church, whch was erected in 1867, still 1. stands at the comer of Pennsylvania Avenue and Poplar Street. Other prominent homes were constructed in the early 1870s in the Second Empire style, including the Struthers-Wetmore-SchimmelfengHouse. This house was erected at 210 P Fourth Avenue in 1870 by Thomas Struthers, as a wedding present for his daughter Anna Eliza. The building is currently occupied by the Warren County Historical Society and has I! been listed on the National Register of Historic Places.

Additional churches were constructed during the oil-boom period, to keep pace with the I growing population. Churches for the German Lutherans (1884), Methodist Episcopalians (1886), and Swedish Baptists (1896) were all erected by the turn of the century, The First 1 Presbyterian Church (1895) was also constructed at this time and still stands at the comer of Market and Third Streets, on the previous site of the Thomas Struthers Mansion.

I The Warren Historic District is located in the City of Warren at the confluence of the Allegheny River and the Conewango Creek. The district is situated north of the Allegheny and west of the Conewango. It is composed of approximately 641 structures, of which 1 approximately 620 are historic. Most of the buildings in the district remain in their original use, with 566 of the structures constructed as residences. Many of these residential I properties include historic outbuildings. Commercial buildings account for approximately 56 of the structures in the district. Eight of the buildings in the district were constructed as I places of worship. The district also includes two buildings constructed as fire stations, three

I Historic Resources - Warren City Page HR - 2 I parks, one courthouse, a post office, armory, municipal building, library, and theater. The structures in the district were constructed from approximately 1823 to 1940.

The residences in the district were executed primarily in the Italianate, Second Empire, Queen Anne, and Colonial Revival styles. Other styles represented include Greek Revival, Gothic Revival, Stick, Shingle, Folk Victorian, Dutch Colonial Revival, Renaissance Revival, Neoclassical, Tudor Revival, Prairie, and Craftsman. Most of the residences rise two or two-and-one-half stones in height; many of them were constmcted as duplexes. High-style residences and prominent public buildings are located primarily in the vicinity of Fourth Avenue and Market Street. A number of residences have undergone minor renovations, including window replacements, the application of modem siding and roofing materials, as well as small additions, but these changes have not compromised the integrity of the district. In fact, many homes in this area have recently been maintained andor restored to reflect their historic character.

In addition to the high-style buildings erected in the city, a number of smaller scale houses executed in simpler versions were built throughout Warren's history. Taking a variety of forms including L-plan, side gabled, front gabled, cross gabled, and square plans, these buildings were constructed for working class families in Warren and can be found along Water Street and parts of Hazel, Poplar, and Hickory Streets. These houses represent an important segment of Warren society and are important components of the Warren Historic District.

Commercial buildings in the district are executed in a variety of styles including Italianate, Early Victorian, Romanesque Revival, Art Deco, and late 19th-century commercial styles. These buildings are typically three or four stories tall and feature storefront windows at the first story and a prominent cornice at the top story. The commercial district is concentrated along Pennsylvania Avenue and other streets in the southern part of the district. Despite some window alterations and a small number of recent intrusions, the commercial district retains its historic character and remains an active part of Warren.

The proposed Historic District in Warren is an important vestige of the City's past.

Historic Resources - Warren City Page HR - 3 CITY OF WARREN COMPREHENSIVEPLAN

reface: The power to prepare and adopt a Comprehensive Plan is granted to a Pmunicipality through Article III of the Pennsylvania Municipalities Planning Code. The Code describes, in some detail, what a Plan must contain, how it is to be prepared, and how it is to be adopted. But, it does not really explain its worth.

Why plan?

Plan Philosophy: Warren is one of Pennsylvania’s truly great cities. It must preserve what is best, correct what is wrong, and undertake what is right as it moves into the new millennium.

Warren, a City with a history - a City of today - a City with much to offer for tomorrow!

Warren has many options as it faces the future. It can, like so many other jurisdictions, simply react to events - to drift from crisis to crisis. Yet, that is not the City’s style. Internally, a series of “Corporate” plans and their annual updates indicate a policy to act in a measured and orderly way. The fact these are used by both staff and City Council attests to the value these plans are given. Yet, the Corporate plans are only part of the picture. This internalized effort must be blended into a broader context.

Another factor to consider is change. Communities are in constant change. Many of Warren’s employers, retailers, and services of a generation ago are now gone. And, attitudes are changing. In the 1940s and 1950s, public policy toward the environment was essentially one of benign indifference. It is hardly so today. The demands on the City’s sanitary sewer system are witness to this fact. The age, priorities, and needs of Warren’s citizens are also constantly evolving.

The opportunity which this Comprehensive Plan presents is to take advantage of the existing administrative planning which already exists and blend it with broader issues of development policy as well as lengthening the planning horizon.

To work toward for such a goal, this comprehensive planning endeavor was undertaken. The Plan is separated into parts. Part I, the Background Report, represented an inventory and analysis of existing conditions of the City. Part II is the Plan itself. The Plan is both a

Wurreri City Compreliensive Plun Page 1 guide and a tool to preserve and improve the City of Warren. In the Background Report, much detail has been presented. Such an approach is necessary to lay a solid foundation of facts. The Comprehensive Plan itself is designed to be much briefer, using graphics, abbreviated text, and “bulleted” phrases. Also included is an Action Plan, with suggested li activities, and a time table to accomplish short-term Plan recommendations.

There is a tendency to reiterate in the Plan all of the salient findings of the Background Report. This Plan is printed as a single document so that practice need not be followed. But a few key findings or conclusions are appropriate:

. Warren’s population will, at best, stay static - or perhaps decline. Age profiles are changing, and there is a need to accommodate this change.

. Warren’s current housing stock is good, but constant work is needed to maintain its quality. Future years will create new housing demands for smaller rentalkondo units. Younger families should be encouraged to settle in the City.

. Warren’s roads are generally good. Major problems center around truck traffic along Pennsylvania Avenue East and Market Street. The Hickory Street Bridge must receive a higher priority from PennDOT.

. The Downtown parking situation must be addressed. . The storm and sanitary sewer systems require constant attention. Projects to fully modernize these facilities approach $10 million. Regional stormwater planning, along with cooperation from the Army Corps of Engineers at the Kinzua Dam, could prove a tremendous assistance in this area. w . A long-term Park Plan is needed for a variety of reasons. . A comprehensive bikeway strategy is needed. . Small investments at the Municipal Building and City Garage complexes could pay administrative dividends for Warren.

. The local economy is healthy, now. But, continued efforts to sustain and renew it are warranted. . Warren’s land use controls need modernization. Furthermore, they must reflect historic use patterns as well as to preserve important residential areas.

. A clear policy for historic preservation is needed.

Warren Ciry Comprehensive Plan Page 2 ousing is presented first in the Plan, and it reflects the priority of Hthis subject. There is a need to examine the current housing status, as well as future needs.

There are seven strategies in Warren’s Housing Plan to accomplish a goal of continued housing quality. They are presented in general order of priority and based upon the findings of the Background Report. The residential real estate market is reported as sound. Based upon a detailed survey, Warren’s housing stock is generally in very good condition. Furthermore, there is solid evidence of homeowner reinvestment, which is complemented by public rehabilitation programs. Its homes are currently Warren’s primary assets, an asset which deserves z to be preserved. d Maintain Quality Housing: The primary concern facing Warren is to maintain the City’s excellent housing stock at its current high level. In a community where 44 percent of all dwelling units are rentals and 72 6 percent were constructed prior to 1940, this is indeed a challenge. How c can this goal be accomplished? Two primary strategies are appropriate. cz . Land Use - The residential section of the Land Use Plan contains provisions especially targeted to protect and zh preserve Warren’s housing. Essentially, this is focused on single-family neighborhoods. The implementation of that E land use element is critical.

. Codes - The enforcement of codes is a difficult and often unpopular task. But, it is a necessary one! The presence and judicious enforcement of building codes will do much to abate and often forestall poor residential maintenance practices.

Improving Current Housing: Although most of Warren’s homes are sound, in 1997, some 260 units were estimated to have noticeable deterioration. Generally, the majority of deteriorated units are focused in those areas shown on the “Problem Housing” plate. No one solution can cure these ills. But, a combination of programs can alleviate the situation.

Warren Cify Coniprehensive P lan Page 3 . Housing Rehabilitation - Often, problem housing units are occupied by persons of modest or low income. Retirees, the unemployed, and the underemployed are typical residents. Fortunately, various government- sponsored programs exist to aid in rehabilitating such housing units. Though traditionally targeted to owner-occupied homes, they can also could be offered in rental situations. The private sector can also be an ally in such endeavors. Banks have “CRA” obligations for community involvement. In many localities, one manifestation of this effort is below-market interest loans for housing rehabilitation. Between government and CRA activities, a goal of 10 to 20 rehabilitated residential units a year is reasonable for Warren. It must be remembered that such efforts are in addition to the existing tradition of private-sector home remodeling, already very much in evidence.

. Code Enforcement - This has already been covered in the first element of the Housing Plan, but is also a needed tool in this segment.

Tax Abatement: Often, the excuse given for not improving properties (especially rentals) are increased taxes. To ameliorated such problems, a residential real estate tax abatement program (RETAP) is available. It is of limited duration - only three years, but can be an important incentive in selected neighborhoods.

Ownership Assistance: Given the age profile of homeowners in Warren, the City can expect that a steady stream of used homes will come on the market. To encourage home ownership, the City must marshal all resources available. Special emphasis is suggested on assisting younger families to become homeowners. Such a program has a secondary benefit of keeping Warren’s demographic structure balanced. There are some governmental programs available. But, they have limited applicability. The private market will be the best resource to provide innovative ways to facilitate home ownership. Through a task force of public and private resources cooperative public-private actions can be realized. The participants should include: . The City . Local banks, savings institutions, and mortgage brokers . Real estate firms . Other public-sector organizations, such as the Warren-Forest EOC and the Warren County Housing Authority

This group need not be a permanent orgmization, but certainly is required to both initiate and coordinate housing efforts.

New Housing Units: There are two strategies to realize these needs. The predominate form will be the conversion of existing single units into apartments. Based upon already

Warren City Comprehensive Plan Page 4 I II mentioned demographic and housing ownership profiles, this should be an ongoing process and likely will enjoy a steady market. However, this activity must be carefully controlled I: so Warren’s housing stock is not denigrated. It will require thoughtful controls in the zoning ordinance as well as strict adherence to the City’s building code system. Though not a Ili housing element directly, there are two related concerns relative to this conversion process. I’ One is to assure that needed parking is provided, an issue particularly critical in Warren’s older neighborhoods. The second is density. Both building codes and zoning can help keep I the density reasonable and consistent with current neighborhood settlement patterns.

There will also be limited opportunities for new housing. Some will be in the form of single I units. A few may be multi-family apartments or condos. If a large project is possible, the City can become pro-active (see the next heading). Possible avenues to encourage new R construction are tax abatements, a targeted market study, or infrastructure assistance. Special Needs: There are three basic components of special needs: elderly housing, housing e for handicapped citizens, and retirement communities. Government programs promote certain types of elderly and handicapped housing. Primarily, these are focused with the Warren County Housing Authority. That organization has the expertise and capacity to deal € with such needs. During the preparation of this report, local officials and local real estate interest have f indicated a need for non-assisted rental or condo units aimed at older “empty-nesters.” Specifically, this niche is aimed at the private market tenant. However, when a well-known regional housing developer was contacted, they candidly felt such a project was not li economically feasible. If the City or a community group wishes to further pursue such a strategy, a solid market/feasibility study is needed. Such a study should be done by a firm I: with private-market credibility. The increasing number of such developments in Northwest Pennsylvania, coupled with I already expressed private misgivings on the practicality of such projects, clearly demonstrated that a “bankable” study is needed before any private-sector action can be E induced. OTHER ISSUES

I In addition to the foregoing strategies, specific types of analysis are requested by the Commonwealth, which has provided partial financing for this planning project. Topics li include Expected to Reside and Barriers to Affordable Housing. Expected to Reside: In the Population element of the Background Report, there is an I estimate of future household growth. Such figures account for both future population and an anticipated continued drop in household size. In addition, a housing attrition factor must

I Warren Ciry Compreherisive Plan Page 5 I I; E be included as future housing needs are projected. Attrition helps to account for homes lost by fire, demolition, as well as the reuse of dwellings for non-residential purposes. The following table estimates housing demand for the Study Area and its “expected-to-reside” figures. 1 TABLE H-1 CITY OF WARREN . I’ EXPECTED TO RESIDE

Households Housincr Need*

1990 4,175 2000 4,881 156 20io 4,916 25 1 2020 4,990 62

*Includes new households and amition factor

Source: 1990 Census, consultant’s estimate

As can be seen by this table, a steady, but modest, need for additional housing units can be expected to the year 2010. This figure varies from 15 to 25 units, annually. After that, the annual average drops to about 6 units a year. Based on future population growth, the initial need may focus on family units. However, there will be a steadily increasing market for older couples and single persons. Strategies to meet these needs have already been presented.

Barriers to Affordable Housing: The Commonwealth’s concern for affordable housing has been a policy issue for some time. This concern deals with local zoning ordinances and building codes that are used unfairly to require expensive or “estate” type housing. Warren’s zoning allows very dense development and it uses the standard BOCA building codes. Based upon these factors, no barriers to affordable housing were found. Even if the changes in zoning recommended in this Plan are followed, housing costs should not become excessive.

Warren Ciry Coinpreherisive Plan Page 6 I I;

he Land Use Plan allows the City to guide its physical development. I, TArticles V and VI of the Pennsylvania Municipalities Planning Code grants municipalities the power to regulate land subdivision, land E use, and land development. Furthermore, as long as these powers are used in a reasonable fashion, State and Federal courts have upheld them.

I Warren City presents a “built” environment, with only small enclaves of unused land. Those are primarily found in the industrial areas or along the steeper slopes in residential neighborhoods. Consequently, the Land I Use Plan and its implementation must be cognizant of that fact. This does not mean the Plan must mirror only existing use, but certainly, I proposing wholesale change is both unwise and unrealistic. By comparing the Existing Land Use plate (1997) to the map “LAND USE 1963,” contained in “A MASTER PLAN FOR WARREN t BOROUGH,” one fact is abundantly clear - the basic patterns of use have changed little in the past 30+ years.

I In 1981, when the current edition of the City Zoning Ordinance was adopted, this existing development pattern was largely ignored. City E Fathers had hoped to increase population by encouraging the very dense use of residential land. Large areas of the City were zoned to allow such housing to be built. That policy was flawed. In fact, since 1980, 1 Warren has lost - not increased - its population.

The Zoning Map is a formal expression of the Land Use Policy. In E comparing the Zoning Map with existing land use, certain factors I become apparent: . Much of the land zoned Residential Medium or Residential High is actually used for single-family homes I or duplexes. I . Much of the commercial strip zoning along Pennsylvania Avenue is used for residential purposes. Several retail uses along East and West Pennsylvania are unused or I underutilized.

. Conversely, there is a close compatibility between I industrial uses and zoning.

I Warren Cip Comprehemive Phi Page 7 I . The Preservation District is principally used for parks or floodplains.

What about the future? Even the “High” series of population projects (see Table P-5) foresees only modest growth from 1990 to 2000 with a marginal decline after that. However, as household size is expected to shrink, some growth in dwelling units can be expected. Under the High series conditions, the City of Warren will see a growth of 15 to 25 residential units annually, to 2010, then only a nominal growth to 2020. In combination, demographic factors indicated that although there will be little change in overall population, the housing market will see continued activity. Furthermore, given the age profile of homeowners, a steadily increasing demand for condo or apartment units can be anticipated.

There are other factors which impact on land use. These can be summarized as follows:

. The national trend to big-box retailers appears unabated. Consequently, in- City demand for retail uses will remain limited.

. Locally, the service sector appears strong. . After a decade of decline, the industrial sector also appears vigorous.

Land Use Policies:

Given the preceding facts and the fact that the City is developed, the following land use policies are appropriate:

. Priority should be given to protecting and preserving good existing residential areas. . Permitted residential densities should be more consistent with the existing land use.

Areas for higher density residential uses should focus in sectors already providing such housing.

. Commercial land use categories should include options for non-retail zones. . Industrial areas should follow existing zoning patterns. . Preservation areas should generally follow existing zoning patterns.

Warren Ciry Compreherrtive Plan Page 8 . Options for historic preservation should generally be made available, publicly discussed and then used when and where desired.

. City land use controls need a major technical upgrading. . Land use controls should allow the City to achieve its land use goals in a balanced manner that does not unduly burden developers or create unnecessarily cumbersome procedures.

The Land Use Plan: The purpose of the Land Use Plan is to present a municipality’s policies in graphic form. It also represents an underpinning for the Zoning Map. The two documents need not be identical, but there should be a clear relationship.

The Plan essentially speaks for itself. However, a few narrative comments are in order. They will be offered by land use category.

Residential Low Densitv - Under the Land Use Plan, this designation includes land primarily used for single-family dwellings with scattered duplexes and some low- intensity complementary uses. Geographically, much of the East Side and upper Conewango area are included. The low-density designations here are much more extensive than indicated on the current Zoning Map. Along West Fifth Avenue (Market to Hazel), an existing enclave of “R-1“ land was significantly expanded. This action was taken expressly to support the spontaneous private rehabilitation of single-family homes in this area. This use category is meant to preserve residential values.

Residential Medium-High - This category of residential use is meant for areas where the dominant uses are duplexes and multi-family complexes. They relate to the R-2 and R-3 Zoning Districts. The extremely high densities now allowed under Warren’s zoning are to be reduced considerably. This designation includes older areas where the City can expect the conversion of single dwellings to apartments.

Residential Limited Business - This is a new land use designation for Warren. It is targeted to two specific areas. First, it is intended for neighborhoods in older sections of Warren, with large homes along busy thoroughfares. Such structures have lost their attraction as family residences but, in controlled circumstances, can serve as conversion apartments or offices, without degrading nearby residences. This designation is also useful along major highways (i.e., Pennsylvania Avenue), where traffic volume detracts from residential use. Once again, office (non-retail) uses offer

Warren City Comprehensive Plan Page 9

a viable option to property owners. Yet, these uses, within reason, can coexist with nearby neighborhoods. Their hours of operation and generated foot traffic are more amenable to residential uses. Finally, the smaller offices typically do not create the parking problem which traditional retail uses do.

Commercial - This land use category includes zoning districts C-1 and C-2. As the designation infers, it provides for a full spectrum of commercial uses, retail, service, and office.

Industrial - Industrial uses are self-explanatory and follow the traditional land use patterns of Warren.

Public/Conservation - This is a dual-purpose category. Part of it is intended to represent the Preservation Zoning District. The balance is intended to designate principal public open spaces, as well as publidsemi-public buildings.

Implementation

To implement the general recommendations of the Land Use Plan and Policies, specific actions are required. They are as follows:

Zoning: The following activities relative to the zoning ordinance text are recommended:

1. The current zoning ordinance is outdated and awkward to use. It is confusing to citizens as well as cumbersome to administer. A completely new ordinance should be prepared.

2. In the new Zoning Ordinance, the Statement of Community Development Objectives should be clearly fashioned to meet Warren’s new zoning goals.

3. Specific land use recommendations:

Where current land use schedules, lot sizes, and yard spaces are compatible with new policies, they should be retained. This will eliminate extensive administrative problems relating to non-conformity. The schedule of individual uses within each district should be reviewed. Archaic land use classifications can be deleted - modem uses (sic. day care, convenience stores, etc.) can be added. Specific recommendations by zoning district are:

Residential:

Warren City Comprehensive Plan Page 10 R-1 - Retain the current emphasis on single-family homes. Though lot sizes are small, 4,000 to 5,000 square feet, no changes are recommended. A new ordinance should relax regulations moderately to allow some duplexes (on larger lots) and low-impact complementary uses (Le., home-offices with no outside employees and home day care are examples).

R-2 - Restrict density should allow no more than six units on a single lot. An overall density of 20 dwelling units per net residential acre or less is appropriate. Allow the controlled conversion of existing single-family units into multi-family units (see comments on parking). This conversion option must be carefully managed.

R-3 - Allow permitted densities to no more than 35 dwelling units per net residential acre (about 1 dwelling unit per each 1,250 square foot of lot). Allow greater densities only in closely controlled circumstances (high rises). Restrict non-residential activities to compatible uses.

New District - Introduce a Residential Limited Business District to allow low- impact, non-retail, commercial uses in mixed residential areas.

Commercial:

C-1 -This is the Downtown, Central Commercial District. It currently allows a variety of uses and multi-family residential. With the exception of removing light industrial, retention of this use schedule is recommended. Accommodation of modem uses needs consideration.

C-2 - The General Commercial District is primarily found as strip zoning along major highways. Such retail is highly auto-dependent. Specific lot sizes should be introduced, coverage limited to 50 percent, and height controls (two-floor maximum) introduced.

Industrial: Modem industrial development is horizontal - not vertical. Most workers drive, not walk, to work, and the predominate mode of material shipment is truck. This argues for setting reasonable lot sizes, and restricting coverage (50% maximum) to allow for on-lot parking, shipping, and receiving.

Preservation: Apply & to public land or floodplains.

Other Zoning Matters:

Warren City Cornpreliensive Phi Page 11 . All special exceptions or conditional uses must have specific approval criteria.

. Parking regulations must be modernized. Continue to exempt the C-1 Zone (except for residential uses). The C-2 Zone, other commercial areas, and all types of multi-family uses are of special concern. Parking is one of the major problems in the City, and new uses should not cause increased parking congestion. However, inventive initiatives, such as shared parking facilities, should be considered to allow creative options to solve off-street parking problems.

. Provisions for drive-in, drive-through businesses are needed.

. Develop a new sign section. See technical publications of the American Planning Association for guidance.

. Transfer site review regulations to the Subdivision Land Development Ordinance as a land development section.

. Either embrace the PRD philosophy wholly, or drop it from the ordinance.

. Examine the issue of Group Homes, vis-a-vis the Fair Housing Act.

Subdivision and Land Development: As Warren is essentially developed, large, new subdivision are not expected. However, there is a steady inventory of lot consolidation, lot- line adjustments, and similar activities which continuously occur. The City’s current ordinance is dated and treats minor replat activities in a bureaucratic and cumbersome manner. A new ordinance, compliant with the existing Planning Code, is needed. This ordinance should streamline routine replat activities.

A second benefit of a new ordinance is the inclusion of a section on land development. Currently, the zoning ordinance has provisions for a “site plan” requirement. Its intent was to provide some City input into site development, but its success has been mixed. Under Article V of the Planning Code, the regulation of land development is clearly permitted through the subdivision ordinance. Transfemng the “site plan” policy from zoning to land development sections of the Subdivision Ordinance would better place this function from a Planning Code viewpoint. Further, it would enhance the City’s ability to require developers to fulfill their approved site plans.

Warren City Coniprehensive Plan Page 12 Q In combination, the Land Use Plan, an updated zoning ordinance, and a new subdivision and land development ordinance will give Warren both the direction and legal tools to realize rl its land use goals. # 1 1 b[ t 1 IB li D' # t I i 1

1 Warren City Comprehensise Plan Page 13 i ransportation is always a key concern in a Comprehensive Plan. TFrom an economic standpoint, good transportation is critical. This network ties the community together and provides links to the outside world. Locally, streets should provide safe, reliable access to work, schools, shopping, and home. Regionally, the ability to send and receive goods or services is an economic necessity. Typically, transportation is one of the public’s greatest interests in the planning process.

There are many aspects to a Transportation Plan. Maintenance and new projects are certainly two obvious elements. In Warren, another consideration must be the impact of any road improvements to Warren’s quality of life. If transportation projects are designed without consideration of their physical surroundings, barriers could be created or historic vistas destroyed. Transportation is part of the total fabric of a community, not to be treated as a separate activity.

In Pennsylvania, road ownership is divided. Principal roads and highways are usually under State (PennDOT) ownership, while the balance of the network is under local control. Major transportation project funding is via Federal (TEA 21) funds and State liquid fuels money. Typically, projects are quite expensive and must be staged over a period of years. To program major activities, the State follows a 12- Year Highway Program. Projects are divided into three, four-year segments. The first four years are comprised of pending projects (known as the Transportation Improvement Program, or TIP), whle the latter two are primarily used for planning purposes.

Maintenance work is scheduled annually by PennDOT’s County Maintenance operation. Though maintenance is often thought of as pot- hole patching and minor resurfacing, it, too, can involve more substantial efforts. In some cases, roads are practically rebuilt.

Maintenance: Warren’s local roads are the responsibility of its Department of Public Works. They have inventoried the City’s approximately 45 miles of public streets. Resurfacing and maintenance projects are scheduled based upon the condition of individual streets. About 85 percent of all streets are asphalt, and nearly 70 percent of that system has been resurfaced since 1986. By 2002, the Department plans

Warren Ciry Comprehensive Plan Page 14 to have all City asphalt streets, which need remediation, treated. The remaining 15 percent of local streets are concrete or brick. These surfaces are longer lasting and are repaired on a separate maintenance schedule.

No changes are suggested to the City’s current street maintenance program. It appears well thought out - and, it works!

Because there are 7.8 miles of State roads in the City, officials are encouraged to initiate a closer liaison with PennDOT. These 7.8 miles of road include the most traveled highways in the City, so their condition is of obvious importance. A good example of potential projects are portions of Route 62 and Pennsylvania Avenue where little curb reveal is left after numerous repaving projects. There, milling and reconstruction is needed. As is the case with all transportation needs, it requires constant communication and pressure to insure PennDOT schedules needed local maintenance projects.

Regional Transportation Concerns: Warren is dependent upon regional facilities for the success of its transportation network. The following policies relate to that network.

-Air: City residents can use one of four airports in the region for air travel, while the Brokenstraw landing strip provides opportunities for private flying. The primary concern for Warren, however, is possible reductions of commercial air service which would adversely affect the transportation options of its citizens. As the City has no airport, nor does it support one, formal project type plans are not needed. However, Council should be willing to join in with local air travelers to forestall any unreasonable curtailment of available services.

-Rail: Rail transportation is critical to at least two major local industries and has a consequential importance to the City’s economy. Its retention is essential. Under the Commonwealth’s 12-Year Transportation Plan, extensive improvements to the entire Allegheny and Eastern Railroad system are scheduled. No direct intervention by the City appears necessary . However, the City should be more active with both the railroad and PennDOT. Involvement with the railroad will provide the City an “early warning” in the event adverse system changes are proposed. It will also allow for better coordination between the railroad and the City’s Department of Public Works, if needed. A more direct involvement with PennDOT permits the City to support the railroad’s already programmed improvements.

Roads and Highways: Warren is located at some distance from the Interstate Highway system. 1-79 is about 60 miles west of the City; Route 17 (the Southern Tier Expressway) is about 30 miles north. Routes 6, 6N, and 62 are all critical

Warreit Ciry Conipreheiisive Phi Page 15

transportation links for Warren to these key roadways. It must keep apprized of programmed improvements to these roads in its own interest.

Improvement projects, both within and out of Warren County, may warrant support. Of special concern are certain road segments. Route 62 North to New York is a special case, as it is likely to have few proponents beyond Warren City and County. Fortunately, both Route 6 and Route 62 are on the National Highway System. That status gives them a priority status. But, even that benefit may not be sufficient to keep these arterials in good condition. A policy of constant, cooperative, vigilance is needed. Cooperative action with Warren, Erie, and Chautauqua Counties are needed.

Warren City: Of more immediate concern to Warren residents is the local system. There are three sub-elements under this category: Road Classification, State Roads, and Local Roads.

Road Classification: Road classification assigns to a road network categories based upon function. This classification is also an indicator of traftic volume, as those roads higher on the scale tend to experience greater vehicle use. Road classification helps local officials to create a use hierarchy and thereby also facilitates planning. A community’s road classification system also can be of assistance to State and Federal officials when considering the funding of local transportation projects.

As noted in the Background section of this report, arterials are high-volume roads that connect major regional trip destinations. They are usually divided into major and minor arterials, depending on volume. Collector roads literally collect traffic from local roads and connect to arterials or major trip ends. The function of local roads is to provide access for individual properties.

The Road Classification plate identifies three classes of roads. These are Major Arterials, Minor Arterials, and Major Collectors. State roads have been classified consistent with PennDOT’s Roadway Management Information System. The classification and rationalization for locally owned roads on this plate are set forth below:

Arterial, Maior - None

Arterial, Minor - Portions of St. Clair and Main Streets. Located in the South Side, they form a link from the Route 6 Bypass to Pennsylvania Avenue via the Hickory Street Bridge. Warren Municipal Hospital is located along this

Warren City Coniprehensive Plan Page 16 route. This road network receives very heavy traffic and is the mirror image of SR 3005, a listed State arterial.

Collectors, Major:

Lexington Avenue: This is a major link via Parker and Conewango from Warren’s industrial comdor to Pennsylvania Avenue. It is an important truck route.

Madison Avenue: This road parallels Pennsylvania Avenue (a major arterial) and serves as a collector for local passenger cars that wish to avoid the congestion on Pennsylvania Avenue. It also connects two State collector roads, Park (SR 1013) to Jackson (SR 1021) via Crescent Street.

Third Avenue: A few blocks of this street from Market to Conewango have been included to reflect its function as a connector between Warren’s Downtown with the East Side. Beaty Middle School also promotes heavy use of Third Avenue.

Fifth Avenue: A similar function to Third Avenue has placed this road on collector status. In addition to its function as a connector to the East Side, it also serves as a link to the Warren Area High School and Vo- Tech campus.

To confirm these road classifications, traffic counts are vital. Cooperative action between the City, County, Northwest Pennsylvania Regional Planning and Development Commission, as well as PennDOT will facilitate the placement of traffic counting devices.

General Concerns: The City of Warren is a highly developed entity. Any new activity which requires space normally must infringe upon an already developed area. The principal transportation dilemma facing Warren is north-south traffic movement. Currently, Market Street, Route 62, is the principal conduit for such traffic. Volumes approach 18,000 vehicles per day, near the City’s northern boundary, with matters complicated by extensive truck usage. Analysis in the Background Report show the road to be over capacity at peak hours.

There are various solutions to this problem. The ideal one would find a bypass route around Warren. However, no feasible route can even be offered for study at this time. An alternative would be to direct some traffic north on Conewango Avenue to connect to Route 62 via Hatch Run Road. But, Conewango is already heavily used. Furthermore, two schools

Warren City Comprehensive Plan Page 17 and numerous residences line its borders. All of these factors argue against any increased use of that route. This leaves only Market Street. Improvements on Market from Pennsylvania Avenue to the north City line are the most likely candidate for improved traffic flow. Some improvement can be expected from already programmed traffic light projects. But, there may be a need to increase traffic lanes on Market, especially north of Fourth Avenue. Three issues must be considered in any such project: protection of the visual integrity of this area - it is the heart of Warren’s historic area, and ever-growing parking needs. The final concern is cartway width. If cartways become too wide, they form “de facto” barriers to pedestrians. Parking need, historic preservation, and the potential of barriers must be weighed if major changes are proposed in this area.

Projects: This section of the Plan lists specific projects to benefit Warren’s transportation network.

Hickory Street Bridge: PennDOT has listed this as a bridge replacement at a price tag of $7.7 million. Engineering is scheduled for the year 2000 and construction after 2002. This is a critical need; construction should not be delayed to PennDOT’s second Four Years. Therefore, efforts to reschedule this effort should be initiated.

The Bridge project is both located along Warren’s busiest traffic route and in a sensitive place. Early City involvement with PennDOT is needed to consider: . Traffic problems during construction . Riverfront Park and park areas (south bank) Possible bikeways

Market Street Comdor: Essentially, this project is comprised of signal improvements at nine stop lights in Warren’s Downtown. Scheduled for 1999, it has a potential to improve north-south travel and improve safety at key Downtown intersections.

Park and Pennsylvania: This is an intersection improvement project scheduled for design in 1999 and construction in the year 2000. It should be kept on schedule.

Proposed Intersection Studies: Due to accident rates, additional intersection improvements are suggested. To follow PennDOT protocol, they must first have studies. These include three intersections along Conewango, Pennsylvania, and Third Avenue at Fifth Avenue.

Corridor Studies: Four road segments should be studied to improve traffic flow and increase safety and make possible recommendations for physical improvements. They are:

Warren City Coriiprehensive PIan Page 18 . Pennsylvania Avenue East, east of Parker

. Market Street, north of Fourth Avenue

. Hickory Street, south of Pennsylvania via Crescent Park, and Mohawk, to its intersection with Route 6

. St. Clair and Main Street

As noted, the stated purpose of such studies is to improve traffic flow, safety, and capacity. But, any benefits must be balanced against possible physical changes. Barriers should be prevented, needed parking preserved, and historic vistas protected. If such goals cannot be achieved, then the City must persist in requiring a redesign.

Special Needs: United Refining is an important element of Warren’s economic base. It also is a major transportation player. Several trucks haul products north from their loading facilities in the City. Over the years, United has expressed interest in possible projects to improve that traffic flow. These range from traffic lights to alternative transportation modes. Joint action is a strong need here.

Transit: The City of Warren has transit service provided by the Transit Authority of Warren County. At this time, service appears adequate and the Plan recommends no changes. Para- transit services also appear adequate.

Parking: As is true in any older urban place, parking is a perennial problem in some of Warren’s neighborhoods. In older residential areas, the parking demand of multi-family units create stress. In such areas, the City must examine the current parking situation. Are residential parking lots needed? Should some areas have street permit parking only? Though such measures may not be needed now, the growth of future multi-family homes could create the need to periodically re-examine such options.

However, the principal surface parking problem exists in Warren’s Downtown. It no longer is the retail hub that it once was, but it has become an employment center. In this transition, parking demand is now more long term and space needs more chronic. The parking situation is further exacerbated by the presence of the Court House on the Downtown fringe. The courts alone generate great demand for parking spaces.

The City has approximately 700 public parking spaces (lot and on-street). This inventory is supplemented by private facilities. However, there is reported a sizeable demand for even more spaces, a demand as yet unfilled. The answer may appear, at first, to be the

Warren Ciry Comprehensive Plait Page 19 construction of a new parking garage. However, the experience with such structures in other cities of Northwest Pennsylvania has frequently been negative. If the needed parking revenue fails to cover the bond repayment and maintenance needs, such garages become an r unwelcome drain on tax dollars. This suggests the following actions:

E 1. Increase parking fees to begin the accumulation of funds to finance additional parking facilities.

2. Invite the Downtown private sector into a dialog on long-term parking needs.

3. , Have a detailed parking structure feasibility study prepared. Require the study to examine a variety of solutions and to fit it into a multi-modal response to Warren’s transportation needs.

4. Only undertake the construction of a new structure when funds in hand, and long- term leases assures economic viability.

Bikeways: In many communities, bicycles are becoming an element in the transportation mix. Though many view the “bike” purely from a recreational aspect, some now find it a convenient way to shop or commute. Warren now lacks defined bikeways to link parks, neighborhoods, and the Downtown. A Warren City Bikeway Master Plan is needed (see also Recreation under Community Facilities).

Warren City Comprehensive Plan Page 20

he Warren County Historic Society has filed for the designation of Ta Historic District in the City of Warren (see map - Proposed Historic District). This filing is for a Federal Historic District designation, but is being made to the Pennsylvania Historical and Museum Commission (PHMC). Under the provisions of the National Historic Preservation Act of 1966, PHMC has that power. To date, the City has been unsure of the next step. Is the protection afforded by the Federal designation sufficient, or are other steps appropriate? In Pennsylvania booklet, there are two basic approaches to further action by creating local historic districts. These are

Oution 1 - Creation of a Historic District and a Historic Architectural Review Board under the Historic District Act (Act 167 of 1961).

Option 2 - Creation of a Historic Overlay District in the Zoning Ordinance, under the Pennsylvania Municipalities Planning Code [Section 604(1) and Section 605(2)(VI].

However, before either approach is considered, the admonition, contained on page 5 of the Historic District Designation in Pennsylvania booklet, should be heeded.

“Accordingly, the maioritv of uroperty owners affected should fullv support the idea of becoming part of a historic district.”

(Emphasis added.)

Warren has a rich history, and many of the structures which reflect its heritage still exist. Its proposed Historic District includes several such buildings. However, experience has shown that the options, described above, will only be acceptable if the affected property owners enthusiastically support such action. The City should ask the County Historic Society to initiate a public information effort on this topic. If this Historic Society is unable to perform this service, then the City should move to resolve the issue. Through public meetings or a formal

Warren City Con7prehensive Plan Page 21 mail survey, it is necessary to gauge support for further action. Either option is capable of providing adequate protection.

Of course, it is not necessary that the entire area proposed for the Federal designation be included in a local hlstoric district. It may be that only portions of these areas have sufficient support to consider additional regulation. Regardless of the option followed, if either, the question of historic preservation should be resolved.

Warren City Comprehensive Plan Page 22 I E I: PUBLIC UTILITIES odern public utilities are essential to contemporary urban life. I’ MWarren City could not exist except for the network of water, sewer, gas, electric, storm drains, and similar services. These utilities must be installed, maintained, and often modernized to meet an ever- I increasing complex - and expensive - environmental code. For the City, two of these utilities are especially important, as they represent 1 future expenses that can be projected in the millions of dollars. 1 Storm Drains It is unusual to place the issue of storm drains first in this element of a Comprehensive Plan. Yet, for Warren, it is indeed appropriate. Due to t its location and geographic nature, storm water runoff is one of the most e critical problems facing the City. As noted in the Background section, Warren’s storm drainage system is extensive. There are some 19 miles of lines, 50 outfalls, 300 manholes, t‘ and 1,700 inlets. Furthermore, some of the system is combined with sanitary sewers, and there are numerous cross-connections that allow rain water to flow to the sewer plant and raw sewage to enter the storm I: system. To make matters more complicated, the exact configuration and characteristics of the system are not fully known. Obviously, it is a 1 complicated network. Moreover, it is subject to a variety of problems, especially during heaving rain storms. In the spring and fall when the Army Corps of Engineers is adjusting pool depth at Kinzua Dam and the 1 Allegheny is running “bank full,” it is especially acute. High water levels on the river cause some storm drain outfalls to be covered, 1 resulting in system backups. The City has various projects to solve some of its storm water problems. i Projects to increase flow capacity, relieve localized flooding and properly drain roads. But, there is one ovenvhelminP problem! Of the entire 7,150 acres of watershed tributary to the City, only 30 percent is i within the City limits. Obviously, the City can only control development in this limited area. Development on the other 70 percent I is beyond Warren’s jurisdiction. It is not the actual development itself which is the problem, rather, it is the increase of stormwater runoff that i Warren City Comprehensive Plan Page 23 I buildings, parking lots, and similar structures cause. Runoff that is now essentially uncontrolled outside of the City. Upgrade drainage can have drastic impacts. The plate, Drainage Problem Areas, illustrates current problem areas. This situation is inherently frustrating - and, to an extent, unfair. City residents should not be required to pay for poor drainage practices beyond City limits! Because of this, the following actions must be top priorities for the City of Warren under its Community Facilities Plan.

- Formally request the County of Warren, in accordance with the requirements of the Pennsylvania Storm Water Management Act, to prepare a Storm Water Management Plan. At a minimum, it should apply to those watersheds which impact the City. A copy of this request should be copied to DEP. Request for a formal DEP-City-County meeting on this issue is mandatory. Invitations must also be extended to any municipality that would be a party to such a plan.

- Identify upstream developments which have major impacts upon the City. If any have been constructed since 1978, determine if legal relief is available. If so, request the appropriate parties to ameliorate excessive runoff.

- Actively participate in the preparation of the Management Plan. Storm water management techniques, developed by the Plan, will be in force throughout the entire watershed, in Warren, as well as and the surrounding municipalities.

From a broad planning standpoint, the second priority for Warren is to complete the CIS mapping of the existing storm drain system. This is necessary to identify combined sewers and interconnections with the sanitary sewer system as well as completing the documentation of overall system characteristics. Once this task is done, the system’s flow characteristics can be “modeled.” These models can permit the preparation of a truly informed comprehensive strategy.

A third concern is the policies of the Army Corps at Kinzua. Its current practices can, and do, cause problems to Warren. To date, requests for coordination with the City have had no appreciable results. However, such efforts merit continued attempts. Efforts to obtain Congressional intervention are appropriate if local efforts fail.

While these overall initiatives are being pursued known system problems cannot be ignored. The Public Works Department keeps an extensive list of projects to improve the system. In 1995, there were 22 listed. These vary from catch basin installation to line replacement and the separation of storm and sanitary sewer. In a typical year, $100,000 is expended on such stormwater improvements.

Warren City Contprehensive Plan Page 24 1. h Seven larger projects have also been identified, and are listed below:

1 Public Way and Spring $232,000 Laurel and Fifth 232,000 r Hickory and Fifth 50,000 Jefferson Run 595,000 Connecticut Avenue, Bent TwigBird 3 10,000 I Branch and Dahl 110,000 McPherson 110,000 I Total $1,639,000 Currently, the City completes these projects based on a priority system that examines relative I need and available funding. No change is recommended at this time. Once system mapping is completed, a Storm Drain Master Plan can be prepared to objectively define and prioritize 1 total system needs. Sanitary Sewer System: Warren’s sanitary sewer system consists of approximately 42 miles a of sewer mains and interceptors, 2 pump stations, and the wastewater treatment plant. The service area includes Warren City and portions of Pleasant, Glade, and Conewango Townships. The plant is designed to accommodate future growth in these suburban li communities.

Currently, the treatment plant is permitted to accommodate 4.25 MGD of hydraulic load and 1 has an organic capacity of 5,100 ppd. Over the course of a year, the system handles approximately 1.1 billion gallons of raw waste. Of this, 95 percent is fully treated. I However, 5 percent maybe bypassed through combined sewer overflows when extreme system overloads occur.

I These overflow incidents are typically triggered by a coincidence of events. As reported previously, in the spring and fall, the Army Corps of Engineers adjust the pool depth at the Kinzua Dam. To do this, they release water and the Allegheny runs bank full. As noted in 11 the section on the storm drain system, this covers some drain outlets, slowing stormwater release and sometimes causing backups. At the same time, the increase in the flow of the I Allegheny saturates and elevates groundwater in the City. Given the age of the sewer collection system, there are cracked pipes and loose joints. This combination facilitates the flow of groundwater into the sanitary system. At such times, rain storms are the proverbial I “final straw” and overloads result.

Such situations cause various problems, but two are of particular importance for this Plan. 1 The primary one is the incidence of basement flooding. Basement flooding causes distress,

I Warrerz City Compreltensive Plan Page 25 I damage, and anger for affected homeowners. If the City's customers are its residents, these people are certainly unhappy at such times. The second problem is the bypassing of untreated wastewater from overloaded pipes into the Allegheny River. This typically occurs at the Pine Street and Clark Street pump station. Such events are contrary to DEPEPA policies.

The question remains - What to do?

There must be various strategies employed. Two are long-term approaches; the others involve short-term initiatives.

The problems of the sanitary sewer system are inextricably tied to those of the storm system. And, a complete separation, storm and sanitary, is decades away. So, too, is the replacement or relining of mains to eliminate infiltration. Consequently, as the storm drain system is controlled, improved, and repaired, it will have a beneficial effect on the wastewater network.

A second long-term strategy is to rationalize releases from Kinzua. Overflow events historically are clearly tied to the water release episodes. Can the Corps be persuaded to study its water release rates, river levels, and the impact upon Warren sewers? The exact benefits of lower rate - longer water releases from Kinzua are somewhat speculative now. What affect would a reduction of 33 percent of release rate have on overflow incidents? Certainly, the current record of inconvenience and environmental incidents are worthy of positive cooperation on this point.

Against this general background of actions are a series of projects which should relieve some symptoms or causes of sanitary sewer problems:

. Increase the flow capacity at the pump stations. This will deliver more wastewater to the plant, reducing the number and volumes of combined sewer overflows. It will also provide more capacity for service to the nearby townships.

. Continue the annual sanitary sewer line rehabilitation program. This has the double benefit of upgrading the system and decreasing groundwater infiltration.

. Improve, maintain, and upgrade the plant.

. The Linwood Avenue storm, sanitary separation project.

Warren City Comprehensive Plan Page 26

. Consider a check-valve policy in selected areas.

How much will this all cost? In 1995, a preliminary estimate of compliance with DEP regulations was estimated in excess of $5 million. With inflation, that price will continually creep up, so action is needed.

Water: Warren’s water system is controlled by a private water company. When requested to provide information on system characteristics, the local operator refused and referred inquiries to their regional office. Inquiries to that source went unanswered. It must be assumed this system is adequate.

Public Buildings: There are two primary municipal complexes in the City. One is focused at the Municipal Building, the second at the City Garage on Elm Street. Both are in reasonable condition but do need some attention. Specific recommendations are listed below: S Municipal Complex: Municipal Building: . Upgrade the HVAC system . Maintain exterior

Fire Station:

. Refurbish or replace (as needed) the slate roof . Convert low-value storage space to a functional area

To increase the efficient use of the Municipal Building complex, the conversion of current storage areas at the Fire Station to functional space makes sense. In this manner, the I combined operations at this location could be better rationalized to provide improved services to the public with the very minimum of expenditure.

City Garage: Beyond routine maintenance and upkeep this facility appears in good condition. A modest addition of dry storage is suggested. This would provide the City overflow and long-term storage in an inexpensive fashion.

Needs for Additional Study: During the discussions relative to this Plan, the potential of a fire school facility was posed. Its feasibility is beyond the scope of this report, but the

Warren Ciry Comprehensive Pian Page 27 I 1 concept is certainly worthy of a costhenefit analysis. There is an ongoing need for the training of public safety professionals and volunteers. Consequently, such schools might li prove to be self-sufficient via user fees. Also, beyond the financial consideration, any service which promotes multi-municipal harmony also deserves serious thought.

1 Recreation I There are 23 park sites in Warren, comprising 188.5 acres. These facilities can be roughly divided into two groups, active and passive parks. Similar to other entries under this section of the Plan, there are both general and specific recommendations for Warren’s park system. I The purpose of the recommendations found in the Comprehensive Plan are meant to complement and expand upon the recently completed (August 1998) FIVE YEAR PLAN FOR PARKS, completed by Warren’s Parks and Recreation Commission, and assisted by I City Planner, David Hildebrand. For the short-term, the recommendations of the FIVE 1 YEAR PLAN supply a good guideline. The mental visualization of parks always seems to focus on toddlers on swing sets or teenagers playing ball. But, parks are meant to serve all the people, not just a portion. I Consequently, a system-wide recreation study is in order. This study must be more than a physical inventory and a facility plan. It must look at Warren’s total recreation market. Who I are they? What do they need, and what facilities will be used? Two dynamics, especially, must be accounted for. First is the changing age mix of Warren’s population. Are older citizens now simply ignored? The second is the changing tastes in recreation. Who could I have foreseen the current in-line skate and skateboard craze a generation ago? Such a study will identify recreation users, trends, and needs.

I The other element of such a study is a detailed analysis of facility needs. The Background section of this Plan undertook a preliminary analysis of existing recreation facilities in I Warren and its results can be summarized as follows: I . Generally, there are sufficient facilities available. . The apparent excess of fields can be explained by Warren’s function as a I regional resource for baseball, little league, etc. . The only truly underserved area of the City is on the East Side, and the current I accommodation on Lacy Playground has provided a temporary solution for this issue. I

I Warren City Comprehensive Plan Page 28 i t The usefulness of such studies should be apparent. In 1988, a special study at the Clifford R. Betts Park was completed. This led to a partial redesign of the park, an expansion of its I. facilities and increased use. Betts is now truly the crown jewel of Warren’s park system. Within the system, there are three other locations which particularly need such detailed facility analysis.

Beaty Park comprises about 6 acres of land shared by the City and School District. It has a football field, track, tennis courts, hard court basketball, picnic tables/pavilions, and play apparatus for the youngsters. Furthermore, it has a prime location along Conewango Creek. Clearly, it deserved a special development scheme. It should receive special priority examination under the proposed City’s overall Park Plan.

The second facility which truly cries for special treatment is Point Park. For decades, it was an overgrown floodplain. However, over the past few years, City employees have opened the area - giving Warren citizens a glimpse of what might be.

The final special issue is the current improvements planned and completed near the War Memorial along the Allegheny at the Hickory Street Bridge. Much citizen work, force account efforts, and volunteer time has help transform this section of Riverfront. It poses questions such as, what more can be done, and what about the Allegheny bank west of this development as well as its south bank east of Crescent Park?

But once more, these very developments point out the need for an overall plan. As new parks are grafted on the existing system, what function do they serve, and can they be maintained? Any park plan must remember an important truth. Namely, that parks and recreation are just one of several City services. This function competes against police services, snow removal, and the myriad of other Warren City activities for the dollar provided in a limited budget.

A second question the recreation study should answer. Does the City have excessive parks? As the Parks and Recreation Commission asks - Should Clemons Park revert to the private sector? A similar question could be asked about Scofield and Washington Parks. Should they be converted to municipal forests, revert to private ownership, or be considered for other purposes? A point to consider is, many of these parks have associated limitations (;.e., use covenants, other paties own mineral rights, poor accessibility, etc.). But, currently, the City lacks definite policy to constructively use many of its public spaces or to dispose of them. It needs such a policy!

The CAR Pool: The CAR Pool is treated separately from other park. Why? Because swimming pools are expensive, unique facilities which need specialized attention. At this

Warren Ciry Cornprehensive Plait Page 29 1 I writing, a feasibility study on the CAR Pool has been authorized. This study will guide the future of its rehabilitation and u5e. The Pool is a treasured asset for Warren and must be I preserved. Bike Trails: Currently, the City serves as the southern terminus of a County-sponsored bike I trail. It can be found along the City’s northern boundary at the end of East Street. This limits bike trail usage in the City. Suggestions for a bike trail in the City linking local recreation resources and possibly providing an extension along Conewango Avenue have I been discussed. The Community Facilities Plan shows a possible schematic layout of such a resource. However, a formal bikeway study is needed to assess the feasibility of such an 1 endeavor.

Trees: For some years, the City of Warren has had an urban forestry program. For control, I the City has a tree ordinance. It also plants new trees. These efforts help maintain Warren’s urban beauty and has resulted in national recognition. The urban forestry program must I continue. I Public Safety Services The Warren Police and Fire Departments are housed at the Municipal Building complex. Some of their physical needs are covered with the recommendations made in that section. 1 Each service also has rolling stock that must be periodically replaced or rehabilitated. For example, the Fire Department’s 1998 Ford ambulance was a replacement of a 1990 model. Similarly, police cruisers need to be replaced on a regular sequence. These needs are I included in the various “Corporate Plans” used by the City to forecast its operational and capital needs. For the public safety forces, such needs are modest (usually under $100,000 I annually), and are best handled in the annual operational plans. I Other Community Facilities Schools, the Warren Memorial Hospital, the Library, the YMCA, and the YWCA, as well many other organizations are all important to the City of Warren. They make up a physical I and service environment which makes this a wonderful place to live. I However, this Comprehensive Plan does not intend to thrust itself into the decision-making process of these other organizations. Each has a separate funding base, administrative arm, and board. There is no need for an “all encompassing” master plan to direct their future I activities. 1 I Warren City ComprehensivePlan Page 30 I I II

I: urrently, the economy of the Warren Area is sound. CUnemployment is low, and local firms appear prosperous. I However, as past business cycles clearly illustrate, these conditions can, and do, change. In the contemporary Global Economy, it could be argued that localities can exert little influence on economy forces. I Decisions made in New York, Washington, Tokyo, London, and elsewhere drive the major markets. True! But, Warren can take appropriate steps locally to encourage existing local businesses and I foster new ones. The recommendations contained in this section of the Comprehensive Plan are predicated upon existing programs and should I not place inordinate demands upon the City. Manufacturing: Historically, manufacturing is the single most I important element of Warren City’s economy. It creates good jobs and solid real estate values. Based on these findings, the following li recommendations are made: 1. LERTA: This program provides a limited tax abatement for new t assessable construction. It is already in place and should be retained.

I 2. Below-Market Business Loans: Attractive loan rates have been a feature of economic development in Pennsylvania since the I founding of the PIDA program. In Warren, the Enterprise Zone (EZ) program as well as a myriad of other State initiatives are available. They encourage capital investment to preserve or I create jobs. The biggest challenge is to keep local industry abreast of this ever-changing venue. As the City no longer receives EZ administrative grants, it may be advisable to forge a I formal liaison with the Warren County Development Association 1 and use that agency for EZ contacts. 3. Tax Credits: At this time, some limited tax credits under the EZ program are also available. These can equal up to 20 percent of I eligible capital investment. Once more, the primary task is to let industry know of this benefit and work to secure credits where I possible.

I Wurren Ciry Comprehensive Plan Page 31 1 4. Training: Technical training is becoming the single most important element in the contemporary economic scene. Once more, the Warren County Development Association could fill a key lead agency role to bring needs and resources together.

5. Finally, dialog is needed. For example, regular meetings between the City and key industries are essential. Without regular sessions, no network of mutual trust is possible.

Services: There are three major service job generators beside traditional manufacturing activities. These are:

. The Court House - legal profession . The Allegheny National Forest - USDA employees . Warren Memorial Hospital - health care

For these institutions, the City should foster positive relationships, but need not pursue promotional programs at this time. The use of the Residential-Limited Business land use should encourage such uses in older sections.

Downtown: Over the years, there have been various attempts to re-energize Warren’s Downtown retail sector. These efforts have met with only limited success. National trends still favor the large mall and “big-box’’ retailers. It is unlikely Warren can overturn these national movements. There must be a further realization that the Downtown of today is different than that of 1945. Now, it is a service and employment base beyond any retail function. Any Downtown strategy must realize this new reality.

To support existing Downtown businesses and keep a positive atmosphere, two policies are suggested.

One is to participate in Pennsylvania’s Main Street Program. It does allow facade work, joint marketing, and similar activities. But, such a program can only be effective when: . Retailers actively participate . Building owners are part of the team . A careful - detailed - fact-based stratesy must be prepared

A contemporary consideration is to work with merchants and businessmen to define the real parking need of Downtown Warren. If warranted, sensible action to resolve problem is certainly appropriate (see also Transportation).

Warren City Comprehensive Pluri Puge 32 Other aspects of potential business enhancement, such as increased tourism, is in the hands of the County’s Tourist Promotion Agency. The City can offer encouragement but has only a limited role in such matters.

Warren City Comprehensive Plan Page 33 ection 301(4.1) and (5) of the Planning Code remind the framers of SComprehensive Plans that the documents are not collections of isolated, discrete activities, but represent often complex programs which both relate to other Plan activities as well as other communities and organizations. The purpose of this section is to focus on key portions of the Plan and to briefly highlight such relationships: . Housing . One of the key relationships to implement housing goals is a strong zoning ordinance; an ordinance which is specifically designed to preserve residential neighborhoods.

. A second key liaison is with local private and public agencies to foster home ownership programs. . Land Use . As noted previously, good land use controls are directly linked to good housing.

. Land Use controls also allow economic development to occur, whde preserving the qualities which make Warren a great place to live - a sustainable community. . TransDortation . The most obvious relationship of transportation is economic development. Both highway and rail transport are critical for Warren’s businesses.

. The second series of connections are to surrounding communities, the County, Region, and State. Transportation projects need wide support (Route 6, Route 62, and rail improvements are good examples).

Warren City Comprellensive Plan Page 34 . Recreation - Bikeways can add much to Warren’s quality of life; these are both recreational and transportation options. Similar to major road projects, their full realization can only occur with City-Township-County cooperation. . Communitv Facilities . The principal problems facing the City of Warren, in terms of direct public cost, are its storm and sanitary sewer systems. This demands liaison with surrounding townships, the County, DEP, and the Army Corps to solve problems. This issue must be a first priority for the City. . Economic Development . Currently, economic development is in political favor. To fully avail local businesses of the ever-changing programs available, the City should continue its working relationship with the Warren County Development Association and other agencies involved in directly enhancing economic development opportunities.

Warren City Comprehensive Plan Page 35 hat, and when, is the topic of this portion of the Plan. What are Wagencies to do, what activities, when? This section focuses on the first five years after Plan adoption.

Timinz Codes:

0 = Ongoing A = First Year Activity B = Years 2 and 3 C = Years 4 and 5

Housing

- Code Enforcement - (0)City - Rehabilitation (0)City, private-sector banks (CRA) - REITA (B) City, other public agencies, private sector

Land Use

- Subdivision and Land Development Ordinance (A), Planning Commission (PC) - City - New Zoning Ordinance (A) PC (B) City

Transportation

- Road Classification (A) PC and City - Hickory Street Bridge (A) PC and City - Parking (B) City, County, and Downtown businesses

Community Facilities

- Storm Water Management Plan (A) City, County, Townships, DEP - Map and Model - storm, sanitary collection systems (A) City (Engineer) - Sewer Remediation and Rehabilitation (0)City - Kinzua Water Release Control (A) City, Army Corps of Engineer

Warren City Conipreherisive Plan Page 36 I

I - Recreation System Master Plan (B) City - Park and Recreation Commission - Beaty Park Facility Plan (B) City - Park and Recreation Commission - can be I combined with Master Plan - CAR Pool (A) City

I Economic Develoument I - Partnership with WCDA (0)City - WCDA I Historic Preservation - Historic District (B) - residents of historic area, Warren County Historical Society, I and City I I I I I I I I I I I Warren City Comprehensive Plan Page 37 I