Lake Region Comprehensive Plan
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July, 2019
Prepared for:
Hawley Borough, Palmyra Township and Paupack Township Wayne County, Pennsylvania
Prepared by:
Shepstone Management Company Wayne County Planning Department
www.shepstone.net/LakeRegion THE LAKE REGION COMPREHENSIVE PLAN
ACKNOWLEDGMENTS
The Lake Region Plan Partnership participating municipalities of Hawley Borough, Palmyra Township, and Paupack Township would like to acknowledge the efforts of the following individuals who participated on the Lake Region Steering Committee, which provided oversight and direction on this multi-municipal Compre- hensive Plan project:
Leigh Gilbert, Supervisor – Paupack Township, Wayne County James R. Martin, Supervisor – Paupack Township, Wayne County Frank Williams, Chairperson – Paupack Township Planning Commission Joseph Kmetz - Palmyra Township Supervisor Paul Natale - Palmyra Township Zoning Officer Michele Rojas - Hawley Borough Council/Planning Commission Pat Bartleson - Hawley Borough Council/Building Committee
The Lake Region Partnership would like to also express their appreciation to the following agencies that supported the development of this multi-municipal Lake Region Comprehensive Plan project through finan- cial assistance or professional staff support:
The Department of Community and Economic Development (DCED) The Wayne County Department of Planning
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Lake Region Comprehensive Plan Acknowledgments
Lake Region Comprehensive Plan
Table of Contents
1.0 Introduction 1-1
2.0 Background Studies 2-1
2.1 Regional Relationships 2-1 2.2 Natural and Historic Features 2-3 2.3 Existing Land Use 2-10 2.4 Population and Economic Base 2-18
3.0 Goals and Objectives 3-1
3.1 Land Use and Natural Resources 3-1 3.2 Transportation 3-3 3.3 Community Facilities 3-4 3.4 Water Resource Protection 3-4 3.5 Open Space and Recreation 3-5 3.6 Economic Development 3-6
4.0 Plans 4-1
4.1 Land Use and Natural Resources 4-1 4.2 Housing 4-7 4.3 Transportation 4-11 4.4 Community Facilities and Water Supply 4-16 4.5 Recreation, Parks and Open Space 4-18 4.6 Economic Development 4-19 4.7 Interrelationships of Plan Components 4-19 4.8 Short and Long-Range Implementation Strategies 4-20 4.9 Relationships to Other Planning and Development 4-21
Signature Page
Appendices:
A - Community Survey Results (All Surveys) B - Model Ordinance Provisions C - 2007 Recreation, Parks and Open Space Plan
Lake Region Comprehensive Plan Table of Contents
Lake Region Comprehensive Plan
1.0 Introduction
A Comprehensive Plan is one of the tools created under the Pennsylvania Municipalities Planning Code for communities to use in guiding land use and planning community facilities and transportation. It serves several purposes, among them being to serve as a policy guide, a source of information on the community and a legal foundation for subdivision and zoning regulations. It can also serve as a budgeting guide for purposes of making capital improvements to roads, parks, and other facilities.
Hawley Borough, Palmyra Township and Paupack Township, Wayne County have joined together to prepare a regional comprehensive plan. This Lake Region Comprehensive Plan represents an update of several individual plans prepared by the communities over the years and a previously enacted four- municipality regional plan, that plan then also including Lake Township. It is also intended to address shared concerns of the three municipalities on a joint basis.
The Lake Region of Wayne County extends from Lake Constance on the east to Paupackan Lake on the west with Lake Wallenpaupack, now owned by Brookfield Renewable Partners, being a defining aspect of the entire region. It also includes several other major bodies of water including Goose Pond, Hidden Lake, Deer Lake, Lake Florence, Long Ridge Pond, Unger’s Lake, Wangum Lake, Whitney (Degman) Lake, Locklin Pond, Lake Moc-a-Tek and Valley View Lake (Lake Woodledge).
Numerous second-home developments have arisen around many of these lakes and ponds during the last several decades. Many of these are now converting to bedroom communities, with major impacts on the growth of the region and the resulting demands for public services and facilities. This growth has brought with it many cultural and economic benefits but also challenged municipalities to address planning issues.
This plan includes a thorough inventory of the three communities, looking at natural resources, demographic characteristics and related factors. It also encompasses a detailed set of community development goals and objectives based upon a combination of public comment at meetings, the input of steering committee members and a community survey. Finally, it includes specific plans relating to land use, community facilities, transportation, recreation, housing and economic development.
This plan is intended to be a guide for the three communities, but should not be considered the definitive answer to all policy or planning questions. Comprehensive plans offer a foundation upon which the other details can be built using municipal ordinances, specific policies and other tools available to local government.
Such plans do not, however, limit the ability of any participating community to do its own planning or employ whatever tools it may find appropriate. Likewise, the plan, by itself, does not limit the use of any private property. It does not have the force of law or regulation and should not be interpreted as either limiting or directing the decisions of local officials in administering such laws or regulations.
This plan also recognizes the critical importance of private property rights to a free society. Planning should help in laying out common rules that protect everyone’s property rights and ensure high standards. That is the purpose of this plan. It is not intended to supersede property rights so as to impose one particular vision over another. Rather, it proposes allowing the market to do that under reasonable common standards that protect all property rights.
Lake Region Comprehensive Plan Introduction Page 1-1! Lake Region Comprehensive Plan
2.0 Background Studies
2.1 Regional Relationships
The Lake Region's growth over the last several decades came largely from the New York City metropolitan area. Hawley Borough is only 99 miles from Manhattan, which is the heart of the nation's largest urban area, the New York-Newark, NY-NJ-CT-PA Combined Statistical Area. The metro region had an estimated population of 23,689,255 in 2016 and the Lake Region directly adjoins Pike County which is officially part of it as defined by the Census Bureau.
! Lake Region Location Relative to Metropolitan Areas
All three municipalities are also part of the Lake Wallenpaupack region of Pike and Wayne Counties. This area has, for many years now, attracted large numbers of second home households. The second-home buyers who produced the original explosion of growth were attracted by the recreational opportunities and natural environment. They were also enticed by the lower land and building prices, rural character, quality of life and lower taxes the region offered.
Over time, large numbers of second homes have been converted to first homes. Many were planned as eventual permanent residences when they were first constructed or acquired. Retirees and second-home owners are also now being supplemented by first-home buyers. Indeed, this is now the stronger trend within the area, although growth has largely stalled within the Lake Region today.
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Lake Region
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Some of those households who relocated from the metropolitan area to the Lake Region migrated to the area to both live and work. Some have decided to reside locally and retain jobs in the City or its outlying regions. This sort of growth has greatly tapered off in recent years, though.
Many local jobs in construction and real estate were created as a result of the growth coming out of the metro area. Much of this has been driven by excellent housing values available locally and the region suffered when this growth came mostly to a halt in the latter part of the last decade.
Nonetheless, the Lake Region’s future is clearly still heavily influenced by the New York City metropolitan area. Planning for the future must take this central fact into account, for it affects everything from cultural interests to economic development.
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2.2 Natural and Historic Features 2.2.1 Geology
The Lake Region is almost entirely a part of the glaciated low plateau section of the Appalachian Plateaus Province. The primary geologic formation is the Devonian Catskill Formation which includes sandstones, shale and conglomerates, the first of these generally being good water producers.
However, the glacial formation characteristics of the rock overlying the sandstone bedrock can be porous or highly permeable creating potential contamination problems for shallow aquifers.
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Other geologic limitations for development include; 1) low upper layer soil permeability that can slow the regeneration of ground water supplies, and 2) rock outcroppings, shallow depths to bedrock and seasonal high water tables making it difficult to locate on-site sewage disposal fields.
2.2.2 Topography
The topography of the Lake Region varies considerably, with the highest elevations being near Maines Road in Paupack Township (1,585 feet above sea level) and the lowest being along the Lackawaxen River as it leaves Hawley (896 feet).
Paupack Township drains into Lake Wallenpaupack (1,185 feet pool elevation) and falls toward it. Hawley and Palmyra largely drain into the Lackawaxen River, a tributary of the Delaware and generally slope toward it.
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Small parts of the Lake Region planning area are characterized by steep slopes (25%+ grades). The main concentrations of steep slopes generally parallel the Lackawaxen River in Palmyra Township. These areas are depicted in red on the Potential Conservation Areas Map on page 2-16.
Steep slopes can present serious problems for intensive development, but offer opportunities for recreation and unique forms of low density development if clearing and disturbance are limited and proper stormwater management techniques are applied.
Given their relatively limited scope within the planning area, steep slopes are not a major issue. Nonetheless, there remains a need for erosion control and stormwater management in these areas. The three municipalities should consider restricting land disturbance and clearing in these areas to relatively small amounts.
2.2.3 Soils
Lake Region soils are relatively young and exhibit only limited development. Most were formed in materials deposited by the Wisconsin Glacier between 11,000 and 30,000 years ago. This till material originated mainly from local shale and sandstone which was ground up, mixed and moved around by the advancing glacier. As the ice melted it was redeposited in an uneven pattern, leaving many outcrops and ledges through the Lake Region.
Sand and gravel commonly occur along the area’s larger streams (e.g., the Lackawaxen River in White Mills area), while the upland areas and plateaus contain many stones. Most of the Lake Region consists of glacial uplands, the Wallenpaupack Creek having been flooded to create Lake Wallenpaupack.
Soil characteristics were mapped in the 1970’s and published in the Wayne County Soil Survey. Further analysis of soil suitability for sewage disposal was conducted during wastewater facility plan updates made at the county and municipal levels during the 1970’s and 1980’s.
The technology of on-site sewage treatment has advanced considerably since then and numerous additional treatment options are available for some of these soils. This includes, for example, on-site spray irrigation, which can be used on soils as shallow as 10” from the surface. Therefore, a larger portion of the Lake Region is suitable for systems and development than was the case a few decades ago.
Paupack Township soils are largely glacial uplands, except along the Middle Creek. Most of the Township’s floodplains, steep slopes and other problem areas are now submerged, leaving relatively good land for on- site sewage disposal and development. Only 23% of the Township was classified as unsuitable for these purposes in its 1987 Official Wastewater Facilities Plan. There are some floodplains along the Middle Creek and adjoining various ponds and lakes, but the primary limitation, once again, consists of seasonal high water tables. These are found mostly in the western portion of the Township near Goose Pond, Paupackan Lake and Wangum Creek.
Palmyra Township also has relatively good soils by Pocono standards. Approximately 80% of the Township was classified in 1986 as generally suitable for on-site sewage systems and development. Once again, the most common limitation is a seasonal high water table. Most of these soils are found in the central portion of the Township.
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2.2.4 Wetlands
Significant areas of wetlands within the Lake Region are mapped on the Potential Conservation Areas Map. Many additional smaller wetlands, subject to regulation by the Army Corps of Engineers, exist throughout the region. These are identified through mapping at the time of development and comprise some of the more significant hindrances to development. Effective working of these wetlands into development designs as open space attractions, water traps for golf courses and similar uses is one technique for ensuring their most productive use.
There are many areas with fluctuating water tables just below the surface, rising to the surface only during wet periods. Lowlands along stream valleys are often poorly drained or water-saturated at certain times of the year. Some form the floodplains of these streams. The soils along these floodplains are often made up of soft, sandy deposits from the water.
Numerous small swamps dot the countryside. Many of these swamps are located at the headwaters of streams and along or near their banks. Wetlands, nevertheless, are not limited to the lowlands. Early glaciation scraped out many depressions in which swamps have formed. These swampy depressions can be found throughout the area.
2.2.5 Watersheds
All of the Lake Region lies within the Lackawaxen River sub-watershed of the Delaware River Basin, the northern portion of which is depicted to the right. It is considered a special protection waters area with all streams classified as high quality for regulatory purposes. This severely limits the ability to discharge treated sewage effluent into streams.
The Borough of Hawley and Palmyra Lake Township both drain directly into the Region Lackawaxen, except for small sections of the Township that fall towards the Middle Creek and into Lake Wallenpaupack.
Most of Paupack Township drains into these two as well, with the Lake accounting for the bulk of the area. All these watersheds come together in Hawley Borough, a fact which has accounted for some serious flooding there in past years. A flood control system of levees is, indeed, now in place to protect the Borough.
2.2.6 Climate
The Lake Region is in the cooler part of the temperate zone and is generally characterized by short mild summers and fairly long, moderate winters. The mean temperature for the region is approximately 50ºF
Lake Region Comprehensive Plan Background Studies Page 2-5! Lake Region Comprehensive Plan with a maximum mean monthly temperature of about 82ºF in July and a mean monthly low of 17ºF in January. Temperatures of 95ºF or more occur occasionally and each winter there are usually several days of below 0ºF temperature, sometimes as low -20ºF.
Precipitation averages about 36 inches per year. June is the wettest month with 4.0 inches and January is the driest month with 2.1 inches. Snowfall averages 39 inches per year with 23 inches of that total falling in January and February. July has the most sunshine, at 40% average.
2.2.7 Unique Natural Features
The Lake Region includes a number of outstanding natural features, ranging from Wangum Falls to the Lacawac Sanctuary. These are generally depicted on the Potential Conservation Areas Map, although additional sites are identified in the Pennsylvania Natural Diversity Inventory. The Sanctuary is a particularly valuable natural resource, described as follows by the organization managing it:
“Five hundred fifty acres on the shore of Lake Wallenpaupack in the Northern Poconos, Lacawac Sanctuary is a mix between an environmental education center, nature center, and biological field station, provides visitors with an opportunity for outdoor education and exposure to a blend of diverse habitats including wetlands, open fields, forests, and lakes. To fulfill our mission of Research, Education and Preservation, Lacawac offers environmental education and public programs to the community, educating environmental stewards by communicating the core values of environmental responsibility, citizenship, inclusiveness, and the pursuit of knowledge; undergraduate research and research partnerships with a consortium of colleges and universities; and over 8 miles of hiking trails open to the public, free of charge, from dawn to dusk year-round.”
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Significantly, Lacawac has been a research site for a number of colleges, agencies, research institutions and others. These include, but are not limited to, Miami University of Ohio, Drexel University, Pennsyvania State University, Global Lake Ecological Observatory Network and the Organization of Biological Field Sta- tions. Lake Region Comprehensive Plan Background Studies Page 2-6! Lake Region Comprehensive Plan
2.2.8 Historical Resources
Although the historical information available for the County of Wayne and the three participating municipalities is extensive, it is the history of early industrial development that has most influenced the development of the Lake Region. Several sources of information on the early history of the County and the three municipalities were consulted. These included;
1) “History of Wayne County Pennsylvania (1798-1998), Barbe and Reed, 1998,
2) “Illustrated Wayne County,” Haines, 1900,
3) “History of Wayne County,” Goodrich, Reprint Edition, 1992, and
4) “100th Anniversary Souvenir History of Hawley,” McAndrew, 1927.
The Wayne County Historical Society was also consulted for the purpose of identifying historical sites within the project area by municipality.
Wayne County
The territory that now constitutes Wayne and Pike Counties was set off from the County of Northampton, by act of the Pennsylvania Legislature on March 21, 1798. It was described as “all that part of Northampton County lying, and being to the northward of a line to be drawn, and beginning at the west end of George Michaels farm, on the river Delaware, in Middle Smithfield Township and from thence a straight line to the mouth of Trout Creek, on the Lehigh, adjoining Luzerne County, shall be and the same is hereby erected into a county henceforth to be called Wayne.” It was named for “Mad” Anthony Wayne, a highly regarded major-general in the Revolutionary War.
The original boundaries of Wayne County were, therefore, New York State on the north, the Delaware River on the east, Northampton (now Monroe County) on the south, and Luzerne (now Lackawanna) and Susquehanna Counties on the west. The population in 1800 was only 2,562 persons, a density of less than 2 persons per square mile.
The County Seat was moved from Milford to Wilsonville (on the border of the Lake Region) by the Legislature in 1799, until suitable buildings could be erected, “within four miles of the Dyberry forks of the Lackawaxen River.” Dyberry Forks was the name given at the time to the junction, at what is now Honesdale, of the North and West Branches of the Lackawaxen River. Bethany became the County Seat of as a result of this legislation. A court-house and jail were erected and the court was moved there from Milford in 1805. Pike County, however, was set off from Wayne in 1814 and Milford became a county seat once more.
Hawley Borough
Hawley Borough was incorporated on January 23, 1884, making this the second largest community in Wayne County at the time. The Borough separated from Palmyra Township and was defined as that section of the township extending from the Marble Hill Bridge to the Eddy and taking in the Bellmonte section as far as the Wilsonville Toll Gate, with the entire east side from the Walnut Cemetery to the intersection of
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Prospect and Hudson Street. The first Borough elections were held on February 19, 1884, using the Keystone Hotel, a substantial concrete building, three stories high, erected by William Schardt in1876 as the polls.
What is now Main Avenue was, at this time, rapidly becoming the principal business thoroughfare of the community. Church and River Streets were also areas of increasing business activity as large numbers of stores were being erected in those areas.
Industrial development simultaneously started to take shape in the Borough. A glass factory was erected at the foot of Wallenpaupack Falls in 1890, for example. The new business provided employment for more than 200 men and boys within the Borough.
This first glass factory was the beginning of the glass cutting business in the Borough. It lead to the development of several other plants later on including, the Keystone Cut Glass Company and the Wangum Cut Glass Company.
The silk industry also played a significant role in the early industrial development of the Borough. Coal, too, was important, providing the business foundation for the D&H Canal and later the railroad lines coming out of Scranton and Honesdale.
Palmyra Township
The Township of Palmyra was created through the separation of Pike and Wayne Counties. Palmyra Township was separated into two sections with this division of the two counties, the Wallenpaupack Creek being the dividing line.
Later, Paupack Township was created from the remaining portion of Palmyra Township in Wayne County, leaving the current portion of Palmyra Township as one of the smallest townships within the County of Wayne.
Early settlers in Palmyra Township included Daniel Kimble, who was for many years a Justice of the Peace. Another was George Neldin, who made some of the early improvements at Paupack Eddy and built the first sawmill in the region. John R. Compton, who lived on the old Milford and Owego Turnpike, was one of the first Township Supervisors. He also served as Constable.
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Lumbering and agricultural industries were most common in Palmyra Township in the late 1700’s and the 1800’s. However, it was felt at that time the Township was best suited for trade and manufacturing. Many expected it to become one of the wealthiest townships within the County of Wayne.
Once again, the D&H Canal had a great influence on early development and, probably, expectations, as did the Jefferson (later Erie) Railroad. The Dorflinger Glass enterprises at White Mills (although mostly in Texas Township) also created numerous jobs and much attention for the area. Christian Dorflinger, the founder, was attracted to the area by the canal.
The Lock 31 House, located on Route 6 (formerly the Daniels farm) remains along with several intact pieces of the canal and towpath. The property was later purchased by Ernest A. Hintze in 1878 who operated a grocery store and hotel there. The property is presently owned by the Wayne County Historical Society, which is undertaking a restoration. The D&H Canal is listed on the National Register of Historic Places.
Paupack Township
The creation of Paupack as a Township within Wayne County was completed in 1850 when it was separated from Palmyra Township. The newly created Township was bounded on the northwest by Cherry Ridge Township, north-east by Palmyra Township, southeast by the Wallenpaupack Creek and west by Salem and Lake Townships. Most of the land in the northern and eastern parts of the Township was unimproved at that time.
Paupack Township was always characterized by many ponds and lakes. Goose Pond is located within the middle southern portion of the Township and Paupackan Lake and Locklin Pond lie in the western portion.
Middle Creek runs through the northeast part of the Township and Lake Wallenpaupack (formerly Wallenpaupack Creek) now serves as the south-east boundary of the Township.
The early settlers in the Township were dominated by the family name of Purdy. Silas Purdy, Sr., and his family were the first settlers. They permanently located on the west side of the Wallenpaupack during the period around 1787. He was a farmer by occupation and had six (6) sons and several daughters. His sons were blacksmiths, Jacob, his eldest son, was the first blacksmith.
Another son, Ephraim built the first grist mill which was located at the outlet of the Hallock or Long Pond Creek. Reuben Purdy was for many years the Justice of the Peace. The Purdy family had a cemetery in a hamlet known as Purdytown, which had to be moved when Pennsylvania Power and Light built Lake Wallenpaupack in 1924. This was the largest construction project and most important historical development in the life of the Township.
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Paupack Township had one Methodist Episcopal Church and six public schools in the late 1800’s. Hemlock Hollow School was located on Avoy Road in Lakeville. This one-room schoolhouse still exists and is now owned by Paupack Township. It is maintained as a historical landmark by the Hemlock Hollow School Association. Hemlock Hollow also had a post office. The principal industries were tied to the local mills, lumbering industry and agriculture.
The Pennsylvania Coal Company gravity railroad that brought coal from Pittston to Hawley for loading on the Delaware and Hudson Canal at Hawley was also important feature of what is now the Lake Region, running along side Middle Creek and what is known as the Owego Turnpike.
2.3 Existing Land Use
Existing land use information was generated by the Wayne County Department of Planning, an active partner in the development of this Lake Regional Comprehensive Plan. Relying upon a combination of aerial photos, inspections and consultations with local officials, the Department of Planning made a detailed comparison of land use by municipality since 1959.
This study was conducted mostly for purposes of measuring the conversion of farmland to non-agricultural uses, but also provides a basis for understanding other land use changes countywide. It offers many insights that give a much fuller understanding of what actually takes place on the land as growth occurs.
The following tables detail the changes made from 1959 through 2005 and then 2017. Public/semi-public uses include government and institutional activities. Utilities uses include communications uses.
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Hawley Borough is primarily residential and commercial in character, but includes significant forest land. Forest land, in fact, has grown slightly since 1959. Residential land has grown by 27.1 acres or 6.8% as a proportion of total land use, which is the most significant land use change in the Borough, followed by recreational land uses, which grew by 16.7 acres or 4.1%. The Borough accounts for 62.0% of all public and semi-public land in the Lake Region as well as 27.1% of religious land, 21.5% of land use for transportation and 9.6% of recreation land. This reflects its role as the primary center for the Lake Region.
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Palmyra Township is primarily forested and residential in character. Residential land has grown by 629.1 acres or 6.1% since 1959 as a proportion of total land use, which is the most significant land use change in the Township, followed by mining and extraction uses, which grew by 150.0 acres or 1.4% of total land uses in the Township.
The Township also lost significant forest and cropland. It accounts for 100.0% of all mining and extraction land in the Lake Region as well as 78.5% of transportation land, 54.8% of farmstead land uses, 53.7% of religious land, 48.8% of cropland and 45.3% of pasture/brushland.
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Paupack Township, like Palmyra Township and much of Southern Wayne County, is also primarily forested and residential in character. Residential land has grown by 3,110.5 acres or 14.9% since 1959 as a proportion of total land use, which is the most significant land use change in the Township.
This is followed by water, which grew by 351.0 acres or 1.7% of total land uses in the Township.
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Commercial land grew by 240 acres or 1.1% as a percentage of total land use.
The Township also lost significant forest, pasture/brushland and cropland. Nonetheless, it still accounts for 90.0% of all industrial land in the Lake Region, 89.8% of recreational land, 80.5% of utility land, 77.0% of residential land, 72.1% of commercial land and 61.3% of forest land. It also has 90.3% of water.
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The Lake Region image, as the two charts on the following page illustrate, is still one of a largely forested landscape with almost two-thirds of all land falling into that land use category. This is somewhat less than 1959 when 73% of the Lake Region was forested, but forest land still dominates regional character in a major way.
Pasture, bushland, cropland and water account for another 19% of land in 2017, bringing total undeveloped land (including forest) and water in the Lake Region to a minimum of 83% of all land. It was 96% in 1959. Residential land grew from 2% in 1959 to 14% in 2017, accounting for the bulk off all new development.
Overall, the pattern of development in the Lake Region remains distinctly rural, despite the many hundreds of new second and permanent homes constructed over the last 58 years. Meanwhile, new development has considerably slowed and, therefore, the character of the Lake Region is likely to remain largely the same for the foreseeable future.
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Maps illustrating existing land use and changing patterns over the last 58 years follow:
Lake Region Comprehensive Plan Background Studies Page 2-!13 Lake Region Comprehensive Plan December, 2017 (570) 253-5970 x4060 Hawley Borough www.waynecountypa.gov Wayne County, Pennsylvania Including the Including municipalities of 925 Court Street Honesdale, PA 18431 2017 Land Use/Land Cover THE LAKE REGION PLAN
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LN Y IT AL QU 1,000 Roads COMMERCIAL CROPLAND FARMSTEADS FOREST INDUSTRIAL INSTITUTIONAL/GOVERNMENTAL MINING/EXTRACTION PASTURE/BRUSH RECREATIONAL RELIGIOUS RESIDENTIAL TRANSPORTATION UTILITIES WATER Land Use Type 0.0 acres 0.0 acres 0.2 acres 0.0 acres 8.4 acres 2.2 acres 42.7 acres 93.4 acres 10.1 acres 16.4 acres 30.2 acres 10.0 acres 23.0 acres 165.0 acres ! 2,000
Lake Region Comprehensive Plan Background Studies Page 2-!14 Lake Region Comprehensive Plan December, 2017 (570) 253-5970 x4060 www.waynecountypa.gov Palmyra Township Wayne County, Pennsylvania Including the Including municipalities of 925 Court Street Honesdale, PA 18431
THE LAKE REGION PLAN 2017 Land Use/Land Cover
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COMMERCIAL CROPLAND FARMSTEADS FOREST INDUSTRIAL INSTITUTIONAL/GOVERNMENTAL MINING/EXTRACTION PASTURE/BRUSH RECREATIONAL RELIGIOUS RESIDENTIAL TRANSPORTATION UTILITIES WATER
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Lake Region Comprehensive Plan Background Studies Page 2-!15 Lake Region Comprehensive Plan
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L L I H THE LAKE REGION PLAN Including the municipalities of
N L K Hawley Borough, Palmyra, and Paupack Townships R P A M LE SA Wayne County, Pennsylvania Wayne County Department of Planning/GIS 925 Court Street Honesdale, PA 18431 (570) 253-5970 x4060 8,000 4,000 0 8,000 www.waynecountypa.gov Feet December, 2017
Lake Region Comprehensive Plan Background Studies Page 2-!16 Lake Region Comprehensive Plan
Lake Region, Wayne County, Pennsylvania Conservation Areas R OCK Y Hawley Borough, Palmyra Township, and Paupack Township R U N 0120.5 R
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Wayne County Department of Planning/GIS, August, 2018. https://websoilsurvey.nrcs.usda.gov/ *Steep Slopes determined by soil type, Soil Data Source: United States Department of Agriculture (USDA), Natural Resources Conservation Service (NRCS).
Lake Region Comprehensive Plan Background Studies Page 2-!17 Lake Region Comprehensive Plan
2.4 Population and Economic Base
2.4.1 Population Trends
Lake Region population growth has slowed considerably in recent years, with a small population decline projected over the next five years. The following chart plots Census data for 2000-2010 along with an ESRI estimate for 2016 and a projection for 2021:
Lake Region Popula:on Growth 2000-2016 and Projected Change 10,000 9,000 9,690 9,653 9,633 8,000 8,577 7,000 6,000 5,000 4,000 3,000 2,000 1,000 0 ! 2000 2010 2016 2021
Household growth has already leveled off:
Lake Region Household Growth 2000-2016 and Projected Change 4,500 4,000 4,198 4,183 4,172 3,500 3,562 3,000 2,500 2,000 1,500 1,000 500 0 ! 2000 2010 2016 2021
Lake Region Comprehensive Plan Background Studies Page 2-!18 Lake Region Comprehensive Plan
Housing growth has also slowed but is projected to continue to grow at a very restrained rate compared to previous years:
Lake Region Housing Growth 2000-2016 and Projected Change 10,000 9,000 9,432 9,589 9,658 8,000 8,501 7,000 6,000 5,000 4,000 3,000 2,000 1,000 0 2000 2010 2016 2021 !
Some 84% of the Lake Region population is found in family households. Householders are weighted heavily toward those of retirement age and up with fully 58% being 55 years of age or older and 35% being 65 years of age or older.
Lake Region 2010 Popula9on by Lake Region 2010 Household Type Householders by Age
1,590 834 16% 1,447 20% 35% 932 985 22% 8,100 23% 84%
Householder Age 15 - 44 Householder Age 45 - 54 ! In Family Households In Nonfamily Households ! Householder Age 55 - 64 Householder Age 65+
There are numerous implications with respect to this aging, particular among a population that is no longer growing. It portends a need for more services oriented toward the elderly, increased pressure on schools to contend with their overhead costs as enrollments decline and a declining labor supply with which to attract much needed economic development.
Lake Region Comprehensive Plan Background Studies Page 2-!19 Lake Region Comprehensive Plan
The following charts further illustrate the age problem. All age groups below age 60 exhibit estimated and expected future loss with the one exception of ages 30 to 39 years of age. The median age is up projected to rise to an extremely high 54.6 years by 2021:
Lake Region Popula=on by Age 2,000
1,750
1,500
1,250
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750
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- <1 - 9 10 - 15 16 - 19 20 - 29 30 - 39 40 - 49 50 - 59 60 - 69 70 - 79 80 + 2010 809 692 537 694 737 1,404 1,662 1,634 1,001 520 2016 753 606 447 760 718 1,185 1,660 1,864 1,109 551 ! 2021 712 578 408 683 792 1,041 1,507 1,960 1,366 586
Lake Region Median Age 60
50
40
30 49.8 52.4 54.6 20
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0 2010 2016 2021 Median Age Linear (Median Age) !
An additional potential impact of this rising age level is also a declining interest in economic development, as this older population has less direct interest in job creation. Aging is a very significant issue, therefore, for the Lake Region, which is no longer threatened by growth but, rather, a shrinking labor force and all that goes with it, including a stressed tax base with which to support services to which the community has become accustomed.
Lake Region Comprehensive Plan Background Studies Page 2-!20 Lake Region Comprehensive Plan
!
Estimated average household sizes within the Lake Region are, with the exception of Hawley Borough, well below those of Pennsylvania and Wayne and Pike Counties, indicating a much higher level of retired households. Many householders moved to the Lake Region and commuted to work elsewhere (including New York City) so they could retire locally.
Lake Region Mean Travel Time to Work (Minutes), 2015 50.0 44.0 44.0 45.0 43.1
40.0 37.6 35.6 34.4 34.1 35.0 30.3 30.0 27.8 26.3 26.3 26.9 24.3 25.0 19.8 20.0
15.0
10.0
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Lake Berlin Salem Texas Greene Hawley Paupack Pennsylvania Pike County Lackawaxen Cherry Ridge Palmyra (Pike) Wayne County ! Palmyra (Wayne)
As a result, the Lake Region and Paupack Township, in particular, like adjoining Pike County, exhibits somewhat longer travel times to work than are typical for most of Wayne County or the Commonwealth as a whole.
Lake Region Comprehensive Plan Background Studies Page 2-!21 Lake Region Comprehensive Plan
2.4.2 Economic Base
The economic base of the Lake Region is clearly driven by recreation and tourism which accounts for the very percentage of service sector employment:
Lake Region 2016 Employed Popula?on 16+ by Industry
9.7% 13.1% Services 6.8% 5.8% Retail Trade
Construc?on 4.5% Manufacturing 17.8% Finance/Insurance/Real Estate 3.9% Public Administra?on 52.5% Transporta?on/U?li?es 3.6% Other
!
The same pattern is evident in Lake Region employment by occupation with services occupying the top spot, followed by professional occupations (reflecting migration to the area), administrative support positions, management type occupations and sales jobs.
Lake Region 2016 Employed Popula=on 16+ by Occupa=on
13.5% 10.4% Services 6.5% 5.6% Professional Administra=ve Support 14.6% Management/Business/Financial 14.6% Sales 5.0% Construc=on/Extrac=on Transporta=on/Material Moving 17.1% 4.0% Installa=on/Maintenance/Repair 23.4% Produc=on/Other
!
The Lake Region economy is, as these charts demonstrate, heavily oriented toward sales and service occupations typical of a recreation and tourism area. There is no significant agriculture, mining or manufacturing and production, but there is significant professional/managerial employment.
Lake Region Comprehensive Plan Background Studies Page 2-!22 Lake Region Comprehensive Plan
3.0 Goals and Objectives
The following goals and objectives form the foundation of this Plan. They are intended to serve as the community development objectives for land use regulations.
3.1 Land Use and Natural Resources
3.1.1 Provide for the use of conservation subdivision techniques as a preferred option for residential land development.
a) Rely upon the benefits of reduced infrastructure costs and flexibility in design as incentives to encourage conservation subdivisions.
b) Allow for conservation subdivision in the cases where on-site sewage disposal methods are employed as well as those instances central sewage are involved, provided that protections are in place to ensure performance.
c) Provide for flexibility in design of conservation subdivisions as a trade-off for protection of open spaces and special natural resources such as farmland and wetlands, offering a range of incentives and options tied to the percentage of open space preserved, starting at a threshold level of 40% open space.
3.1.2 Support the strengthening of existing village centers, including the greater Hawley area, White Mills and Route 590 commercial nodes.
a) Provide for higher densities and a broad range of permitted uses in village centers.
b) Provide for traditional neighborhood development of mixed residential-commercial uses in village centers or as expansions of such centers.
c) Require curbs, street lights and sidewalks within village centers and in the case of village center expansions.
d) Establish distinct planning criteria for village centers that reinforce traditional neighborhood development with interconnected parking lots in the rear, building to the dominant setback and similar measures.
3.1.3 Provide wide flexibility for the establishment, throughout the region, of small businesses and industrial enterprises that do not require extensive infrastructure or generate major environmental impacts.
a) Designate specific districts within zoned portions of the region for small business and industrial enterprises as well as allowing for these uses in rural portions of the region.
b) Establish performance standards for small business and industrial enterprises that ensure these uses will not require major infrastructure or generate major environmental impacts.
Lake Region Comprehensive Plan Goals and Objectives Page 3-1! Lake Region Comprehensive Plan
c) Provide for a full-range of home-based businesses in land use regulations.
d) Incorporate provisions that both allow for and protect the right to farm and conduct ancillary agricultural businesses.
3.1.4 Provide for a mix of housing types and densities to accommodate the needs of all income segments of the population at assured high levels of quality in design and construction.
a) Designate districts within zoned portions of the region for various types of housing ranging from affordable higher-density models, such as multi-family dwellings, to large single-family dwellings.
b) Provide for mixtures of housing types within districts and within specific projects, using the conservation subdivision option to accommodate multi-family as well as single-family development.
c) Establish performance standards for mobile home parks, multi-family dwellings, active-adult and senior housing and other special forms of housing that demand different treatment to be successful and ensure high-quality development.
3.1.5 Protect the natural character of the region as development takes place.
a) Establish performance standards for buffering of commercial development through existing tree preservation and use of landscaping.
b) Provide for a stepped subdivision design process that starts with identification of conservation areas and proceeds to lot layout as the final step.
c) Develop criteria, in land development and zoning ordinances, that protect natural features through limits on clearing and the construction of impervious surfaces.
d) Provide for flexible parking requirements that do not result in overbuilding of impervious surfaces.
e) Provide incentives for "green building," use of natural stormwater control measures and minimizing intrusion into steep slopes.
f) Provide for the use of active farmland and recreation areas as open space, offering developers incentives to preserve such areas.
3.1.6 Recognize downtown Hawley’s unique design and role in the region through zoning.
a) Employ development criteria for the downtown that address issues such as sidewalks and recognize the availability of on-street parking.
Lake Region Comprehensive Plan Goals and Objectives Page 3-2! Lake Region Comprehensive Plan
b) Ensure new buildings as well as renovations of existing buildings are compatible, to the maximum extent practicable, with the downtown's existing character.
3.1.7 Protect private property rights by putting the emphasis, in all land use regulations, on the balancing of competing rights with the least possible intervention into the private market place.
a) Employ incentive-based performance criteria wherever possible to permit the use of innovative approaches and evolving technology in meeting development challenges.
b) Use site plan review and measures such as buffering, landscaping and natural methods of stormwater control to mitigate the impacts of development and resolve land use conflicts through design.
3.2 Transportation
3.2.1 Develop a long-term highway improvement plan that serves to reinforce a functional highway plan and meet the needs of the traveling public.
a) Establish a functional highway plan for the region identifying those highways that will need to play higher roles in the future, as collector or arterial roads based on current growth patterns, including, but not limited to, the Hoadleys Road and Owego Turnpike.
b) Identify accident-prone areas and needed safety improvements to address them.
c) Develop an annually updated 10 year capital budgeting process for highway and associated drainage improvements.
d) Establish and maintain up-to-date performance standards for private road construction, public road dedication, driveway construction and other highway occupancies.
e) Tailor road standards for new private roads to the size of developments and the character of the area being developed, avoiding excessive clearing or pavement widths, but ensuring appropriate sized turnarounds and accesses for emergency and maintenance vehicles.
f) Coordinate highway improvements with PennDOT and provide on-going input to the County and PennDOT in their 12-year highway planning process.
3.2.2 Provide for other modes of transportation.
a) Provide, in the case of Hawley Borough, for public transportation stops, park and ride areas and similar improvements in the course of capital improvement budgeting and land development approvals.
b) Provide for rail-using industries at key points along the Stourbridge Railroad where the opportunities exist for such development.
Lake Region Comprehensive Plan Goals and Objectives Page 3-3! Lake Region Comprehensive Plan
c) Provide for trail amenities that double as recreational assets and non-motorized transportation linkages.
3.3 Community Facilities
3.3.1 Provide for essential community facilities.
a) Identify sewer and water needs through periodic survey and updating of official wastewater facilities plans.
b) Establish population based standards for other community facilities such as recreation and parks, libraries, public buildings and emergency services that will allow these needs to be projected going forward.
3.3.2 Ensure that new development pays its own way with respect to community facility needs it generates.
a) Establish recreation standards for all new residential development that require the installation of facilities as needed or financial contributions to public projects in lieu of installing such facilities.
b) Lay a foundation for payment in lieu of recreation facilities by developing a regional park and recreation plan.
c) Develop performance criteria for new development with respect to emergency access, fire safety, school bus stops, mailbox areas and similar matters.
d) Establish public-private partnerships wherever possible to pursue the development of community facilities, employing non-profit groups as partners, developing mixed-use facilities where private tenants help to pay for the public space created and similar techniques.
3.4 Water Resource Protection
3.4.1 Protect the water quality of Lake Wallenpaupack.
a) Implement stormwater management programs that encourage the use of natural control techniques.
b) Support continuous monitoring of Lake Wallenpaupack water quality.
c) Establish appropriate setbacks from the Lake and tributaries to ensure buffering of the water bodies from runoff.
3.4.2 Address the water quality needs of other lakes within the region.
a) Implement periodic water quality testing of other lakes and water bodies.
Lake Region Comprehensive Plan Goals and Objectives Page 3-4! Lake Region Comprehensive Plan
b) Limit the percentage of clearing and the construction of extended impervious surfaces in favor of buffered development that allows for protection of water bodies from runoff.
c) Promote the use of the Lacawac Sanctuary as a resource for water quality research and education as well as other environmental education.
3.5 Open Space and Recreation
3.5.1 Continue to enhance existing municipal parks by adding new athletic facilities and other amenities as needed.
a) Continually review park facility usage to determine the need to expand facilities.
b) Coordinate the development or enhancement of park facilities between participating municipalities to insure that facility amenity duplication does not occur.
3.5.2 Work cooperatively among Hawley Borough, Palmyra Township and Paupack Township to identify the potential location of one regional passive recreation park site.
a) Determine the passive recreation of choice for residents and visitors to the three municipalities.
b) Identify possible locations that would be available for development.
3.5.3 Identify possible areas in Palmyra Township where a municipal park could be developed.
3.5.4 Continue the existing practice whereby local athletic groups and leagues which provide organized youth and adult sports opportunities cooperate with local municipalities to coordinate facility schedules.
a) Identify existing local athletic groups and leagues that use the various municipal park facilities.
b) Coordinate facility schedules between the municipalities.
c) Identify available facility amenities that have not been scheduled for league or group play opportunities.
3.5.5 Expand the range of special events programming to better meet the needs of individuals with special needs.
3.5.6 Coordinate special events programming within each of the three municipalities through the use of the recreation committees and governing boards or council.
3.5.7 Develop or refine local park maintenance, safety and risk management practices.
Lake Region Comprehensive Plan Goals and Objectives Page 3-5! Lake Region Comprehensive Plan
a) Annually review park maintenance, safety and risk management practices and adapt as needed.
b) Share best practice methods among participating municipalities.
3.5.8 Increase current revenues available for park and recreation activities through the use of new fundraising techniques.
a) Review existing fee or donation schedules.
b) Pursue grant opportunities for the further enhancement and development of park facilities.
3.5.9 Support regional trail building efforts of the Wayne-Pike Trails and Waterways Alliance to the extent determined feasible as part of a study now underway, considering factors such as costs, property rights and the like.
3.6 Economic Development
3.6.1 Ensure that all land use regulations accommodate economic development activities and avoid placing an undue burden upon commercial and industrial expansion as may be needed within the community.
3.6.2 Promote agricultural activities, small business, tourism and other niche enterprises that capitalize on visitation to the area, its natural resources, recreation facilities and cultural heritage.
3.6.3 Employ Lake Wallenpaupack’s appeal as a major recreational attraction to leverage the development of complementary tourism enterprises.
3.6.4 Avoid disincentives to economic development in the form of wage taxes that shift the tax base from property to incomes, the former being largely paid by out-of-area residents owning second-homes in the area, whereas the latter would be paid entirely by residents and workers.
3.6.5 Work with Brookfield Renewable Partners, the current owner of Lake Wallenpaupack, to manage this resource in a way that serves to support its role as an economic magnet for the region and ensures access to the resource.
Lake Region Comprehensive Plan Goals and Objectives Page 3-6! Lake Region Comprehensive Plan
4.0 Plans
The following five plans relating to land use, housing, community facilities, transportation, recreation and economic development set forth specific strategies for managing the development of the Lake Region.
4.1 Land Use and Natural Resources
4.1.1 Future Land Use
Second-home conversions have been driving much of the permanent residential growth and commercial expansion of the Lake Region. Additional commercial development is occurring along Routes 6 and 590 as a result of a sewer extension. Land use challenges are likely to come from dealing with the impacts of specific uses along these routes and additional residential development throughout the region. Protecting the character of these gateways into the Lake Region should be a major focus of planning.
Land use controls must provide flexibility to accommodate development in these areas but in a manner that allows the three municipalities to exercise reasonable control to deal with the impacts of that development, especially within the gateway areas.
These types of measures enjoyed strong support in the 2017 community survey and public participation process as this Plan was being developed. The prevailing attitude among those who responded was in protecting the Lake Region’s existing rural character while also accommodating compatible economic development. Paupackan Lake
4.1.2 Land Use Recommendations
Specific major recommendations relating to land use in the Lake Region are provided below while the foregoing Goals and Objectives deal with others:
a) All three Lake Region communities should each consider establishing a corridor overlay zoning district that would apply to Routes 6 and 590. This district would apply in addition to requirements of underlying zoning districts.
The overlay district should include specific design criteria to ensure development along these critical entranceways into the Lake Region rises to a higher standard that will preserve a quality image of the area as approached from both the east and the west by travelers.
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Additional landscaping and building design criteria standards to shift parking to the rear and side where possible, for example, should apply within some portions of the overlay district, with review by qualified professionals as part of the conditional use and/or land development process. Pre-application meetings for the purpose of discussing approaches should be strongly encouraged.
Maximum front setbacks may be appropriate to ensure commercial buildings are properly scaled to the landscape. Ground signs should, for similar reasons, be given preference over pole signs in zoning standards for signage. It is also appropriate to limit the impact of billboards and electronic signs by limiting sizes, types and functions in terms of timing and related safety factors.
Shared parking options to reduce impervious coverage, lower the need for vehicular moves and permit more flexibility in design, should be highly encouraged. Incentivizing renovation of existing commercial properties to new higher standards by allowing for higher proportions of lot coverage and similar incentives should be considered as Borough/Township zoning requirements are refined.
b) Detailed traffic access management criteria should be incorporated in zoning standards and regularly applied in development reviews. State and local regulations need to be compatible and municipal standards should complement PennDOT standards, particularly in regard to traffic study requirements. Traffic Access Management The municipalities should also maintain detailed minimum street specifications within subdivision and land development regulations and a separate road ordinance establishing higher but compatible standards for road dedication so as to avoid any incentives to dedicate where the same would be inappropriate.
Traffic access management standards should also encourage joint driveways, connected parking lots and other mechanisms that will reduce traffic conflicts and the need for excessive driveway entrances onto the highway. This is especially important in the area between Hawley Borough and the Pike County line along Route 6 where a sewer extension has already stimulated new commercial development.
All three communities need clear policies on flag lots and private drives. This policy should encourage limited use of these to produce more infill development in and around Hawley and White Mills as centers, given the supportive infrastructure that exists in those communities.
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Notwithstanding this, flag lots and private drives can raise serious issues with respect to their future responsibility for maintenance of the private drives involved. Therefore, flag lots and private drives should be limited to a maximum of three or fewer lots, including the potential for any future lots not being created at the time of the initial subdivision.
An illustration of a proper flag lot design is provided to the right.
Each municipality should insist on these principles and also demand evidence of appropriate deed covenants limiting the number of lots (both current and future), assigning maintenance responsibility, providing for arbitration in the event of disputes and ensuring an understanding on the part of lot owners that the municipality shall never be required to assume such authority.
c) All municipalities should remain receptive to the development of start-up housing. The attractiveness of the Lake Region for high-end housing can, at times, price many working families out of the local housing market. Unreasonably large minimum lot sizes, yard requirements and other density limiting restrictions can exacerbate this effect and, therefore, should be avoided.
Development standards should be based on explicit health and safety standards rather than arbitrary aesthetic criteria.
d) Lake and stream management for major water bodies should be supported with municipal cooperation. Water quality monitoring programs in conjunction with watershed management groups and others, including long-term documentation should be a part of this, with information gleaned being employed in developing policies and approving projects.
e) Tree preservation along highways and the proper landscaping of all new commercial sites should be required by applying tree preservation policies to new highway improvements and establishing landscaping standards to be used in conjunction with commercial project reviews.
The municipalities should promulgate and/or adopt guidelines for landscaping of buildings and parking lots as well as existing tree preservation on all new major commercial sites.
f) Each municipality should, in its subdivision and land development regulations provide procedures and incentives for use of conservation subdivision techniques to preserve the large areas of open space that give the Lake Region its distinctive rural and scenic character.
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Conservation subdivisions not only protect environmentally sensitive lands (e.g. wetlands, floodplains, steep slopes), but also additional otherwise buildable land, from clearing.
This is accomplished by reducing lot sizes to achieve full-yield density. Such subdivisions differ from traditional clustering in several ways. They involve larger and more usable open spaces. Conservation subdivision regulations also provide density bonuses for land-conserving design (perhaps combined with disincentives to discourage land-consuming layouts).
h) Zoning ordinance revisions addressing the upgrading of second home septic systems and providing for their proper winterization in the cases of conversions to permanent occupancy are needed. Sample provisions are provided as appendix to this plan.
i) There are numerous lakefront properties now being operated by short-term rental companies as “air B&B” projects. These are causing issues within various communities as these properties are occupied by a large number of people, creating parking problems, sewage system overloads, littering and noise. Zoning ordinance revisions (or a separate stand-alone ordinance) addressing short-term rentals are needed. Sample provisions are provided as an appendix to this plan and these avoid the problems of attempting to shoehorn this new use into an existing category that doesn’t fit well.
j) All municipalities should update their land use regulations periodically to provide for new uses, update standards, streamline where possible by eliminating superfluous requirements and address issues identified through experience with administration.
4.1.3 Mineral Extraction and Forestry
Section 301(b) of the Municipalities Planning Code recognizes Pennsylvania Municipalities mineral extraction as a lawful use that must be permitted. Planning Code Definition
Mineral extraction in Palmyra Township increased from 28.5 acres Mineral: Any aggregate or in 1959 to 80.7 acres in 2005. and 178.4 acres in 2017 (see mass of mineral matter, Section 2.3 hereof). Historically, the Township Zoning ordinance whether or not coherent. The term includes, but is not has allowed mineral extraction in all Zoning Districts except the limited to, limestone and R-1 Residential District. Taken together, the RR Rural Residential dolomite, sand and gravel, District, GC General Commercial District, and I-1 Industrial District rock and stone, earth, fill, include more than 95% of the Township land area. slag, iron ore, zinc ore, vermiculite and clay, Along with other community effects, such uses can have impacts anthracite and bituminous coal, coal refuse, peat and on water supply sources and are governed by state statutes that crude oil and natural gas. specify replacement and restoration of affected water supplies Lake Region Comprehensive Plan Plans Page 4-4! Lake Region Comprehensive Plan and address many other matters having to do with operations. State regulations, although they leave control over siting of mining activities to municipalities, preempt most local regulation of the direct impacts, making the control of locations where such uses are permitted very important.
Additionally, the Municipalities Planning Code now severely limits the range of development and operational standards which can be applied to mineral extraction by local municipalities, with location standards being the primary tool available to the Township.
Municipalities Planning Code Section 603(I) states that zoning ordinances shall provide for the reasonable development of minerals in each municipality. The Code, at Section 603(b) allows zoning ordinances to regulate mineral extraction, but only to the extent that such uses are not regulated by the Pennsylvania Surface Mining Conservation and Reclamation Act, the Noncoal Surface Mining Conservation and Reclamation Act, and the Oil and Gas Act.
These Acts regulate dust, noise, blasting, water supply effects, reclamation, certain setbacks and many other factors related to the operation of mines in the Commonwealth.
The Palmyra Township Board of Supervisors engaged a consulting geologist who completed a geologic assessment of the Township in 2006 to; a) identify and describe the bedrock and surficial deposits and b) appraise the potential of these geologic materials as mineral and non-mineral resources.
The Township’s consulting geologist concluded the following regarding local natural resources that are the subject of mining operations:
• The geology of Palmyra Township is characterized by two types of geologic materials: bedrock, which is found everywhere beneath the land surface of the Township, and surficial deposits, which lie on top of the bedrock surface.
• Both the sandstone bedrock and the sand and gravel deposits have potential value as economic resources.
• The sandstone can serve as a source of several types of common construction materials, including dimension stone and crushed stone.
• The surficial sediments of the Township, particularly the stratified sand and gravel deposits, are another potential source of coarse and fine aggregate materials for construction use.
• Whereas the sandstone bedrock underlies the land surface everywhere in the Township and thus represents a thick and widespread resource, the sand and gravel deposits are localized, surficial features and may vary greatly in quantity and quality throughout the Township.
This Lake Region Comprehensive Plan recognizes the need to provide for the reasonable development of minerals, but also recognizes that such operations must be directed to appropriate locations and must be conducted in accord with sound mining practices and environmental regulations. Of primary concern is the protection of existing residential development areas and those areas where new residential development is anticipated adjacent to existing residences.
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There is a specific need within Palmyra Township to evaluate the land area zoned for mineral extraction and limit mineral extraction to areas located away from such residential development, while balancing this limitation with the Pennsylvania Municipalities Planning Code mandate to provide reasonable opportunities for such mineral extraction. The Township should also investigate the legal feasibility of limiting the hours of operation to something reasonable and compatible both with existing state law and adjacent land uses (such as 6 AM to 8 PM). Concurrently, all Lake Region municipalities should update (or adopt) mineral extraction standards to ensure compliance with state regulations and include local government in the decision making process.
Also, the Municipalities Planning Code mandates zoning ordinances may not unreasonably restrict forestry activities. Forestry activities, including, but not limited to, timber harvesting, must, therefore, be a permitted use by right in all zoning districts in all three municipalities.
4.1.4 Zoning Revisions
Paupack Township is currently involved in updating its zoning ordinance to address several needs that have arisen as a result of changing patterns of growth and development as well as experience with administration. These revisions are of the nature that all three municipalities should, in part at least, consider. They include the following:
• Refining terms of existing definitions and adding new definitions to help clarify provisions.
• Specifically defining Long Term Residency, Transient Use, Tourist House, Bed & Breakfast and Boarding House with a view toward regulating weekend rentals (e.g., “air B&B” projects).
• Revamping sign regulations and addressing electronic signs.
• Establishing regulations with respect to the existing Airport Overlay District (which were previously referenced, but never included).
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• Upgrading the flood plain development standards and included a subset of definitions specific to this section. This has included securing a copy of the FEMA mapping for the township and creating a Flood Plain Overlay District (which is also referenced, but not currently addressed).
• Updating adult business regulations.
• Adding Supplementary Regulations to address specific issues that have been problems in the township or other townships, including:
Agricultural Uses Amusement Parks Detention Facilities Marinas Model Homes Outdoor Sales/Promotions Race Tracks Sawmills & Wood Processing Shooting Preserves Shopping Centers/Malls Solar Power Farms, Commercial Solid Waste Storage Yards for Forest Products & Minerals Vehicle Related Uses Warehouses
Other issues may also be addressed. Hawley Borough and Palmyra Township may want to pursue some of the same updates but need to tailor provisions to their own unique needs.
Palmyra Township also needs to amend its zoning ordinance to address a conflict between the zoning text and map and ensure the Lukan’s Resort area of the township is classified C-2 Resort Commercial District on the official zoning map. There are, in addition, certain inconsistencies in sign standards that should be resolved.
4.2 Housing
4.2.1 Persons Per Household
The number of people living in each household within the Lake Region has declined from roughly 2.45 persons in 2000 to 2.31 today. The smallest households are found in Paupack Township at 2.28 persons, with Palmyra Township at 2.36 persons and Hawley Borough at 2.47 persons.
Only Hawley appears to have increased its average household size. Projections from ESRI suggest household sizes may have bottomed out but no increases are expected going forward either.
Given this pattern, there are clearly few issues of overcrowding and the greatest implication for future planning is that many households will, in fact, be living in larger units than they need or, perhaps, can afford.
This is a double-edged sword, though, in that these units offer the potential to accommodate future growth should there be some. The existing supply of housing units can accommodate much larger populations without a need for more units.
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4.2.2 Housing Growth
The 2010 Census indicated the Lake Region had 9,432 housing units, an increase of 931 units over 2000. It represented a gain of 11.0%, compared to the 13.0% jump in population. Here is how the housing mix changed over the period, together with estimated changes as of 2016 and projected changes to 2021.
Lake Region Exis=ng, Es=mated and Projected Housing Mix 2000-2021 10,000
9,000
8,000
7,000 5,235 5,408 5,486 6,000 4,939 Vacant Units 5,000 Renter Occupied 4,000 Owner Occupied Housing Units 651 719 724 3,000 680
2,000 3,546 3,462 3,448 2,882 1,000
0 2000 2010 2016 2021 !
The second home stock, which constitutes the bulk of vacant units, has grown very slightly, as has the renter-occupied stock, but the number of permanently-occupied housing units has declined slightly since 2010.
A previously observed pattern of second home communities evolving into suburban neighborhoods was stalled by a prolonged real estate recession and apparent changes in the housing choices by younger families, although it is far from certain this will be the case going forward if the economy improves.
It was previously thought the conversion of second homes to permanent homes might result in rapid changes in school enrollments and demands for services without a corresponding increase in tax revenue.
This was because the second homes were already fully assessed as if permanently occupied. What has happened, in fact, is the opposite as school enrollments have significantly declined and permanent housing demands have weakened.
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4.2.3 Housing Values
The 2010 Census revealed average median housing values (presented here in 2016 inflation adjusted numbers) ranging from $120,800 for Hawley Borough to $171,100 for Paupack Township. The comparable figures for 2010 were $168,200 to $220,700. Values then declined in 2016 to a range of $123,700 for Hawley and a high of $199,400 for Paupack Township.
Housing values have declined from 9% to 27% since 2010 as a consequence of the real estate recession. The chart below illustrates this pattern cuts across all municipalities, with housing values having declined in all three communities.
Median Housing Values (InflaFon Adjusted) $250,000
$200,000
$150,000
$100,000
$50,000
$0 2000 2010 2016 Hawley $120,800 $168,200 $123,700 Palmyra $156,500 $215,300 $195,700 Paupack $171,100 $220,700 $199,400 !
Therefore, the current prices are largely a return to earlier values with some modest increases in real dollars. Palmyra Township has, generally, done the best. Housing needs, therefore, are very limited, although some caution is warranted. Census values represent what owners perceive as value. Such owners may well have underestimated their home values in 2000 or have been unduly influenced by the real estate recession.
4.2.4 Housing Type and Ownership
Single-family detached dwellings in 2010 accounted for an estimated 4,716 units and comprised 91% of the housing stock in the Lake Region. Mobile homes constituted 189 units or 4% of the housing stock. Multi- family housing was very limited, although some townhouse projects had begun to appear in a few areas of
Lake Region Comprehensive Plan Plans Page 4-9! Lake Region Comprehensive Plan the region. The 2016 numbers are very similar with a total of 4,920 single-family detached dwellings that still account for 90% of the supply. Mobile homes (manufactured housing) now represent 198 units, which remains at 4% of the housing stock. The 2016 breakdown by number of housing units follows:
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These numbers reflect the total housing supply, which includes large numbers of seasonally occupied but otherwise vacant units. It is likely the number of multi-family and single-family attached (townhouse) units can be expected to grow but the single-family character of the Lake Region is overwhelming.
4.2.5 Contract Rents
Median gross rents within the Lake Region are tabulated for the three communities constituting the Lake Region in the following table:
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After adjustments for inflation, median gross rents in both Hawley Borough and Palmyra Township decreased between 2010 and 2016. They increased an estimated 21.6% in Paupack Township, reflecting
Lake Region Comprehensive Plan Plans Page 4-!10 Lake Region Comprehensive Plan the higher second home percentages in that municipality; a factor typically associated with higher property values in a tourist area such as Lake Wallenpaupack.
Several higher-end such communities exist within Paupack Township and it is, for that reason, more difficult to secure affordable rental housing in it, although adjacent Hawley Borough and Palmyra Township provide that opportunity.
4.2.6 Recommendations
Lake Region municipalities need to ensure its land use regulations do not unnecessarily raise the cost of moderate income housing by requiring excessive lot sizes or adding too many regulatory oversight costs.
This can be accomplished to some extent by offering density or other incentives for the use of the cost- effective Conservation Subdivision design recommended in the Land Use Plan. The keys, though, are avoiding the imposition of exclusionary minimum lot sizes and ensuring there are areas in each municipality where higher-density, less expensive housing can be developed.
Municipalities should, therefore, maintain minimum lot sizes at reasonable levels to both reduce land costs and avoid unnecessarily increasing infrastructure expense. Avoiding excessive requirements with respect to curbing, sidewalks (trails are preferable as pedestrian connections), water supplies and large setbacks, are all important.
Flexibility in the administration of land use regulations to accommodate the creation of affordable housing is also warranted. Municipalities may, for example, want to develop language allowing more "mother- daughter" units, to make affordable housing available for older and younger residents on a temporary basis without violating the law.
Finally, although mobile housing is not growing significantly in relative importance as a housing option, the municipalities need to continue to provide for this option.
Notwithstanding this need, it is also important to establish standards for such housing to ensure adequate recreation area and open space is provided and all health and safety issues are addressed. Provisions need to be made for both individual manufactured homes and manufactured home parks.
Likewise, all three communities need to provide for and set standards for multi-family housing.
These recommendations are consistent with those found in the Wayne County Housing Plan (an element of the Wayne County Comprehensive Plan).
4.3 Transportation
4.3.1 Community Survey
The community survey conducted during assembly of this Comprehensive Plan Update queried residents regarding their opinions on road issues. The results included the following relevant findings:
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a) Some 17% of survey respondents indicated Lake Region road maintenance was excellent and another 50% rated it as good. These are relatively high ratings (and higher than at the time of the original Comprehensive Plan, suggesting the three municipalities are providing increasingly efficient and effective road maintenance services.
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b) Road maintenance has historically been a key local government service - one of the most basic expectations of public officials by the voters. Survey respondents confirmed that it is a major issue for them as well, some 59% stating they strongly support spending their tax money adding, expanding or improving road maintenance. This was a higher rating than accorded any other community facility or service, except for volunteer fire protection.
4.3.2 Municipal Roads
Altogether, Lake Region municipalities maintain approximately 34.1 miles of local roads and streets according to Pennsylvania Department of Transportation (PennDOT) records, the bulk of which are paved.
Paupack Township maintains the largest amount with 15.23 miles, Palmyra Township owns 12.28 miles and Hawley Borough has 7.0 miles of streets on the PennDOT Liquid Fuels Program.
Palmyra Township took over 0.88 mile of road previously owned by PennDOT and receives $3,520 per year from the Commonwealth to support maintenance. Paupack Township has also periodically assisted with winter maintenance of some state roads but PennDOT cost reimbursement is not keeping up with inflation.
Paupack Township are participants in the PennDOT Agility Program but have not been involved in any particular projects.
During the preparation of the 2006 Lake Region Comprehensive Plan each municipality was requested to rank the importance of road maintenance activities or improvements to their respective municipalities as critical, important or not very important.
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The results indicated the following priorities:
• Routine maintenance of roads and streets • Paving of additional roads and streets • Widening of roads and streets • Adding or improving shoulders • Improving drainage
To the extent these involve major projects, each of the municipalities should be considering capital improvements budgeting to anticipate and raise funds to complete them. A capital improvements program (CIP) is not legally binding, but establishes a time frame for the long-term capital expenditures planned by a municipality. Typically, a capital expenditure is relatively large when compared to normal operating expenditures included in the budget.
Prioritizing capital improvements is an essential part of capital improvements programming and it is suggested potential projects be classified as: (1) essential, (2) desirable, (3) deferrable. In prioritizing Municipalities should also identify the sources of revenue to fund the improvements and reevaluate regularly. See the Appendices for more information on capital improvements programming.
None of the three municipalities reported owning or maintaining any bridge located within their municipality. All bridges are owned by either the County of Wayne or the Commonwealth of Pennsylvania.
4.3.3 State Highway System
Traffic volume data is routinely collected on State highways and provides insights into the function and capacity of the highway system. The map found on the following page provides an overview.
Routes 6, 590 and the Owego Turnpike all play critical roles in moving people and goods through the Lake Region. Most local streets have under 1,000 ADT (vehicles per day of average daily traffic) and serve in minor street, or minor collector street capacities. Roads carrying more than 1,000 ADT include:
a) Route 590 – This is a major arterial connecting the Scranton area with the Wallenpaupack area. Traffic has grown over the years, but declined more recently. It is highest at the eastern end near Hawley, where it reaches 5,500 ADT. It then drops to about 2,900 ADT in Uswick and jumps back up to 3,700 ADT at Lakeville and 3,100 ADT beyond. The portion on the east side of Hawley toward Lackawaxen carries 1,300 ADT and is poorly aligned in this section.
b) Route 3028 (Owego Turnpike) – This is a minor arterial connecting Route 191 and Hawley. It carries about 2,200 ADT on the Lake Region portion (up recently), and much of the traffic consists of slow moving trucks from quarries at the southern end and higher-speed traffic using the route as a bypass of Honesdale, Indian Orchard and Hawley. This has created traffic conflicts complicated by the winding nature of the road in parts and its narrow shoulders.
c) Route 6 – This major arterial connects Honesdale, Hawley and Milford, carrying 5,800 ADT at White Mills and 9,000 ADT in Hawley. It provides access to I-84 and is the most heavily traveled road in the Lake Region, although traffic has declined in recent years.
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Lake Region, Wayne County, Pennsylvania Transportation Map Hawley Borough, Palmyra Township, and Paupack Township 0120.5 Miles
PALMYRA TOWNSHIP
HAWLEY BOROUGH
PAUPACK TOWNSHIP
Wayne County Department of Planning/GIS, May, 2018. Data Sources: Wayne County, 2018. PennDOT, 2017.
PALMYRA TOWNSHIP
00.10.2 Mile
Municipal Boundaries Municipal Roads
Private Roads HAWLEY BOROUGH State Roads (2016 AADT) Average Annual Daily Traffic 1000 or less 1001 - 2500 2501 - 5000 L 5001 or more Hawley Area Inset
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d) Route 2003 (Long Ridge Road) is a major collector route connecting Indian Orchard with Route 590 near Hawley. It carries 1,600 ADT and collects traffic from several local roads and residential developments along the way. It also indirectly provides access from the Honesdale direction to Woodloch Springs and several major recreational attractions in that vicinity.
4.3.4 Transportation Needs
The above analysis suggests a number of specific transportation needs. Many of these goals demand the leadership of Wayne County, but the Lake Region partnership involved with this Comprehensive Plan is the appropriate entity for securing that assistance. The recommended transportation actions are as follows:
a) Route 3028, the Owego Turnpike should be continually evaluated in terms of the increase in traffic on the road, which has increased by 38% in the last decade. Hawley Borough, Palmyra Township and Paupack Township should consider the development of a workgroup to work closely with the County of Wayne and PennDot to develop possible options to enhance traffic flow patterns on the Owego Turnpike. Route 590 on the east side of Hawley also needs upgrading, as does Route 2003 which demands similar initiatives to address alignment and shoulder issues.
b) All-terrain vehicles (ATV’s) remain a problem. Municipalities should consider enacting some local regulations that would legally prohibit ATV’s on local streets. Work with State Police to do some targeted enforcement of key problem areas from time to time to discourage abuse may also be appropriate. Some private communities may want to consider encouraging some private ATV parks where these activities could take place without creating unsafe conditions or disturbances for neighbors.
c) Side street sidewalk improvements are needed in some parts of Hawley. Funding for these purposes should be sought through the Community Development Block Grant program and other sources.
d) Public transportation in the Lake Region is available through Coach USA and senior vans operated by Wayne County. The former provides service to New York City while the latter is a demand-responsive system. These services appear to meet current and foreseeable needs.
e) Rail service is available in Hawley and White Mills through the Stourbridge Railroad. No particular improvements are required, but the availability of that service could help attract economic development to the region, particularly to the railroad’s 18.6 acre business park in White Mills. It is also possible some of the stone traffic to New Jersey, New York and New England could be transferred to rail and ease the burden on the local highway system.
f) Air transportation services are available in nearby Cherry Ridge and Scranton and should also be used to promote economic development.
g) Members of the Lake Region partnership have already cooperated on public works projects serving multiple municipalities, sharing equipment and manpower to lower costs. This is an excellent initiative and should be emulated wherever possible, including on road improvement
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projects. It will not only pay economic benefits through the efficiencies gained, but also lower capital costs for new equipment, ensure road improvements are coordinated between adjoining communities and increase the opportunities for leveraging outside funding.
h) Cooperative road projects also offer opportunities to do capital improvements programming on a joint basis, as discussed above. Moreover, if this were to be accomplished in the context of imposing highway impact fees under the authority of the Municipalities Planning Code (a practical impossibility for most communities individually) there would be a foundation for funding the capital improvements program. This, however, assumes significant growth not currently taking place.
i) Access management is critically important (see earlier discussion) particularly in the area between Hawley Borough and the Pike County line along Route 6 where a sewer extension has already stimulated new commercial development and traffic is quite heavy.
4.4 Community Facilities and Water Supply
4.4.1 Municipal Buildings
Each of the three Lake Region municipalities has a municipal building at which local officials conduct municipal services including day to day operations such as code enforcement, permit issuance and information and referral. All municipalities have meeting rooms and offices within their municipal buildings.
Hawley Borough’s municipal building has several issues, including roof and furnace problems, low energy efficiency and generally poor building conditions.
All municipalities also have maintenance buildings that provide locations to store and maintain municipal equipment used in the provision of community services. Palmyra and Paupack Townships also have road material storage facilities.
Paupack Township secured a one-room schoolhouse from the Wallenpaupack School District to be used for community purposes. The Township worked to develop a local association, known as the Hemlock Hollow Association to provide over-site and management of the schoolhouse.
The Association has a membership of approximately 30 individuals who raise funds to support the operations of the schoolhouse. Paupack Township also provides personnel and materials to support on- going maintenance efforts at the schoolhouse.
4.4.2 Water Supply and Sewage Systems
Hawley Borough and portions of Palmyra Township (those areas contiguous to the Borough) are served by both central water and central sewage (the Aqua America water company and the Hawley Sewer Authority, respectively). A sewer line extension running along Route 6 from the Hawley Borough line through Palmyra Township to the Pike County line has already stimulated some new commercial development.
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Paupack Township has numerous community water and sewage systems serving private communities, most of which are heavily built out as second home developments. Community water systems are found in the following communities:
• Aspen Ridge • Port Florence • Briar Hill North • Rockledge • Briar Hill Summit • Sandy Shore • Capri Estates • Sunny Point • Lakeville Acres • Wallenpaupack Lake Estates • Paradise Point • Woodlyn Hills • Paupack Point • Woodlyn Shores • Paupackan Lake
Community sewer systems are found at:
• Aspen Ridge Development • Cove Haven Resort • Wallenpaupack Lake Estates
A general concern with second home communities is the slow conversion of second homes to permanent occupancy, which can increase water supply demand and wastewater treatment loads. Moreover, some water systems should be upgraded to add fire hydrants.
It’s not clear any facilities are currently facing serious limitations in this regard, but individual on-lot systems are often over-loaded and sewage ordinance requirements need to be updated to address this need. Requirements for regular pumping every three years are appropriate with provisions for waivers for financial hardship and/or other good cause.
The Cove Haven sewage treatment plant may, nonetheless, require an upgrade. It is privately owned, but could qualify for USDA Rural Development financial assistance, which Paupack Township would be well- served to endorse.
4.4.3 Solid Waste
All municipalities within the Lake Region have solid waste services provided through private haulers. The destination of solid waste generated is either the Beach Lake Transfer Station located within Beach Lake, Wayne County or the Keystone Landfill located in Dunmore, Lackawanna County. No municipalities franchise solid waste haulers.
4.4.4 Cellular Telephone Service
All municipalities report the availability of cellular service within their municipality, with some areas within each municipality having coverage and other areas having only limited service. There is a need to improve coverage in underserved areas of the Lake Region.
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Regulation of wireless communication services also needs to be continually updated to reflect changing technology and different types of systems.
4.4.5 Fire and Ambulance Services
The Lake Region is well served by volunteer fire and ambulance companies, including Forest Lake, Hawley, Lakeville and White Mills services.
The primary need of these service providers has been and continues to be support for volunteer recruitment efforts. Municipalities need to encourage such efforts and consider incentives that might serve to stimulate participation, through recognition, fee waiving, etc. The effort is potentially aided by the existence of a Wallenpaupack High School “emergency responders club” that should help cultivate interest among younger people.
Other possibilities for ensuring the availability of these services include contracting with private for-profit operators, paying staff that has previously been all volunteer in nature and regionalization to save on costs and share staff. Pennsylvania also permits municipalities to impose special taxes and to fund pensions for certain emergency service staff as methods of supporting such services. All of these measures need to be evaluated and actively considered going forward.
4.4.6 Police Protection
Hawley Borough is the only municipality within the Lake Region Planning area that has municipal police protection. The Borough has a local Police Department that serves the Borough and Palmyra Township. Other municipalities receive police protection from the Pennsylvania State Police. There are no current unmet needs in this regard.
4.4.7 Flood Control and Stormwater
Hawley Borough has a system of levees protecting lower-lying developed areas. It is working with the Federal Emergency Management Administration (FEMA) to remap floodplains and the Army Corps of Engineers to replace certain pipes and accredit levees, which could help to lower flood insurance rates. Major expenditures beyond the financial capacity of the Borough will be needed to complete the work.
4.5 Recreation, Parks and Open Space
Hawley Borough and Lake, Palmyra and Paupack Townships expanded their multi-municipal comprehensive planning process in 2007 to include a collaborative effort at addressing the recreational needs of residents and visitors to the area. They jointly secured a Department of Conservation and Natural Resources (DCNR) grant to develop a Multi-Municipal Comprehensive Recreation, Park and Open Space component of the original Lake Region Comprehensive Plan. That section is incorporated herein as an appendix.
The following specific updates apply:
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• Hawley Borough groups are upgrading Bingham Park facilities and adding new features such as the modern playground recently developed at the site. Surrounding communities make heavy use of the park and it warrants support from all Lake Region municipalities.
• Palmyra Township does not have a municipal park of its own but has worked closely with Hawley on improvements to both Bingham Park and Riverside Park, a linear park along the Borough’s dike system. The Wayne County Historical Society, though, has been effectively creating a passive park at the Lock 31 site on the former Delaware and Hudson Canal. A canal themed pavilion is planned along with other ongoing improvements to the site and the project deserves local support.
• Paupack Township secured a DCNR grant to acquire land for additional recreation area (including a pond) and has added a trail, repaved its tennis courts and made other improvements. The township’s pavilion is now over-subscribed with reservations for usage and further development activity will be needed to accommodate recreation demand.
• A Wayne-Pike Trail and Waterways Alliance has secured a DCNR grant to study the feasibility of public trail from the Jadwin Dam to Hawley, which would potentially link recreation facilities in Honesdale, Texas Township, Palmyra Township and Hawley Borough, including Lock 31. This project, if determined feasible, would serve to attract tourists as well as provide local recreation and, therefore, would be worthy of pursuit.
4.6 Economic Development
Brookfield Renewable Partners L.P. of Toronto, Canada is the current owner of Lake Wallenpaupack, the single greatest economic resource to the region. It is, therefore, critically important Lake Region municipalities maintain a working relationship with Brookfield Renewable Partners that will ensure long- term continued access to this resource for economic development and tourism purposes.
It is recommended representatives of the two townships and Hawley Borough participate on committees relating to lake management and assert their economic interests in the Lake through these activities as well as others in conjunction with groups such as Chamber of Commerce and the Lake Wallenpaupack Watershed Management District (LWWMD).
4.7 Interrelationships of Plan Components
The foregoing plans are each part of a comprehensive framework intended to address the various goals and objectives set out in Section 3.0.
The land use and zoning recommendations, for example, are intended to achieve a balance in regulation that simultaneously encourages open space preservation while ensures the availability of affordable housing. The combination of conservation subdivision provisions with relatively modest minimum lot sizes is integral to the balance demanded.
Likewise, the recommendations with respect to sewage treatment and disposal, which are largely focused on on-lot subsurface treatment, except in areas immediately adjacent to Hawley Borough, reinforces the
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This comprehensive plan is, accordingly, expected to reduce overall environmental impacts of future development. It is also expected, through capital improvements programming recommendations to have positive economic and fiscal impacts and the recommendations with respect to parks and recreation should also generate positive social consequences in terms of building community spirit and supporting physical health as well.
4.8 Short and Long-Range Implementation Strategies
Major short-term implementation strategies related to this Comprehensive Plan include the following actions:
• Updating the zoning ordinances of all three communities to address the sundry recommendations contained herein with respect to such matters as second-home conversions, short-term rentals and various other matters detailed earlier. It is estimated this will require approximately two years to complete in each instance at an average cost of $15,000 or $45,000 total of which the municipalities should be able to finance in similar fashion to this Comprehensive Plan update, with a combination of local funding, DECD funding and in-kind mapping assistance from the Wayne County Planning Department.
• Updating the subdivision and land development and related ordinances of all three communities to address traffic access management and other recommendations detailed herein. It is estimated this will require approximately one additional year to complete in each instance at an average cost of $5,000 or $15,000 total of which the municipalities should be able to finance in similar fashion to this Comprehensive Plan update, with a combination of local funding and DECD funding.
Major long-term implementation strategies related to this Comprehensive Plan include the following actions:
• Renovate or replace the Hawley Borough municipal building so as to address the current maintenance problems and improve the building’s operating efficiency. It is estimated this could cost $500,000 or more, which is far beyond the ability of the Borough to finance. Two strategies are appropriate.
The first is for the Borough to establish a capital improvements program designed to fund the project over the next 5-10 years, with a set-aside contribution to a capital improvements fund
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intended to raise perhaps 20% of the money needed locally from property and other Borough taxes.
The second strategy should be to immediately begin the process of identifying outside public funding through such sources as Pennsylvania DCED and USDA Rural Development. The latter is one of the most logical sources of funding and would potentially provide the other 80% of funding on a long-term low-interest loan basis.
• Hawley Borough also needs to continue working with FEMA to remap floodplains and the Army Corps of Engineers to replace certain pipes and accredit levees, as noted earlier. Once again, major expenditures far beyond the financial capacity of the Borough will be needed to complete the work. These costs, too, could go as high as $500,000 or more. Capital improvements budgeting is, again, appropriate, but will be difficult due to other obligations and the lack of valid cost estimates at this stage of the project.
The improvements would have the benefit of potentially lowering flood insurance rates. Therefore, a special district might potentially be created to finance the local share with a special tax assessment designed to be less than the anticipated savings.
The majority of the costs, though, will have to be covered from outside funding. USDA Rural Development could, again be a funding source, but grant funding is probably needed in this instance due to the currently unknown ultimate costs. This should be pursued, but a more appropriate source of grant funding, given the benefits to downstream communities, would be a legislative allocation, which should also be pursued.
4.9 Relationships to Other Planning and Development
The existing and proposed development of the Lake Region is compatible with the existing and proposed development and plans of contiguous portions of neighboring municipalities. These include the following:
• Berlin Township where the land on both sides of the municipal border is currently of rural, second home and recreational character and planned to remain in such uses. Berlin Township has no zoning so there is no conflict.
• Texas Township where the border area consists primarily of the existing village of White Mills, which is the location of commercial, industrial and residential development spanning the municipal jurisdictions with no conflicts in existing or planned uses.
• Cherry Ridge Township where the land on both sides of the municipal border is currently of rural, second home and recreational character and zoned to remain in such uses.
• Lake Township where the land on both sides of the municipal border is currently of rural, second home and recreational character and planned to remain in such uses. Lake Township has no zoning so there is no conflict.
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• Salem Township where the land on both sides of the municipal border is currently of rural, second home and recreational character and planned to remain in such uses. Salem Township has no zoning so there is no conflict.
• Lackawaxen Township, Pike County, where the land on both sides of the municipal border is currently of rural, second home and recreational character and planned to remain in such uses. Lackawaxen Township also includes what might be described as an extension of Hawley and, in fact, the Hawley sewage treatment plant is located in the Township. There are no issues of compatibility.
• Palmyra Township, Pike County, where the land on both sides of the municipal border is currently either Lake Wallenpaupack or of commercial or recreational character and planned to remain in such uses. Palmyra Township also includes what might be described as an extension of the new Hawley commercial center serving the Wallenpaupack region of both counties. There are no issues of compatibility as both Palmyra Townships (Wayne and Pike) zone this area for commercial development.
Existing and proposed development of the Lake Region is also generally consistent with the Wayne County Comprehensive Plan, the principal recommendations of which are as follows:
1) Pursuing multi-based economic development, including tourism as well as industrial and commercial development. This is precisely what is recommended in this plan; a balanced approach to development.
2) Using zoning as a tool for buffering various non-residential land uses and ensuring compatibility with residential development. All three Lake Region communities have zoning and have incorporated such provisions.
3) Applying performance standards combined with flexible location criteria as the proper method of directing land use. Existing Lake Region zoning and recommendations for upgrade both use this approach.
4) Keeping minimum lot sizes at, typically, one acre and using clustering in the form of conservation subdivisions to preserve open space and lower development costs. While Palmyra and Paupack Township have two-acre zoning in large part, they have incorporated clustering concepts and avoided overly-large minimum lot sizes found in many communities.
5) Adopting multi-family and mobile home park standards to ensure these forms of development are appropriately regulated. Lake Region communities already have such standards, although Hawley’s should be updated.
6) Maintaining an adequate supply of affordable housing for existing Wayne County residents by ensure a balancing of interests and the avoidance of exclusionary zoning measures. Lake Region communities have also recognized this need and acted upon it by keeping their regulations both reasonable and affordable.
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7) Creating more and better paying jobs - the objective being to raise the standard of living for all, while maintaining and improving property values. This Comprehensive Plan specifically addresses and promotes economic development as does the zoning of each community.
8) Conserving natural resources as a part of economic development. Lake Wallenpaupack has been identified as the primary economic resource with measures designed to both protect and promote it.
9) Promoting the use of innovative land use tools. This Comprehensive Plan endorses conservation subdivisions, among other measures to regulate land use in flexible, practical ways.
10) Assisting municipalities with the adoption, update and/or administration of land use regulations. This Comprehensive Plan has been prepared with the full participation of the Wayne County Planning Department.
11) Cooperate with private land preservation organizations that seek to purchase or accept limited-term or long-term conservation easements on agricultural land and other valuable natural resources. This Lake Region Comprehensive Plan doesn’t address this recommendation specifically but is fully compatible with it.
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Lake Region Comprehensive Plan
APPENDICES • Community Survey Results • Model Ordinance Provisions • 2007 Recreation, Parks and Open Space Plan
Lake Region Comprehensive Plan Appendices
Lake Region Comprehensive Plan
Community Survey Results
Lake Region Comprehensive Plan Appendices
Lake Region Comprehensive Plan
Model Ordinance Provisions
Lake Region Comprehensive Plan Appendices
Lake Region Comprehensive Plan
2007 Recreation, Parks and Open Space Plan
Lake Region Comprehensive Plan Appendices