volume iii existing conditions

8/3/2019 Volume III Existing Conditions

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Venango County

2004 Comprehensive Development Plan

Existing Conditions (Vol. III)

Venango

Countyin the

21st Century

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Plum

Pleasantville

IrwinBarkeyville EmlentonClintonClintonville Scrubgrass Richland

CherrytreeOil Creek

Allegheny

Jackson

Cooperstown

Canal

Oakland Cornplanter

SugarcreekPresident

Rouseville

Oil CityUtica

RocklandVictory

Mineral

Frenchcreek

PolkSandycreek

Cranberry

Franklin

Pinegrove


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Venango County Regional Planning Commission

191 Howard St.

Franklin, PA 16323

Phone: 814-432-4555

Fax: 814-432-5885

This Plan was partially funded with a grant from the

Pennsylvania Department of Community and Economic Development.

EXISTING CONDITIONS

Venango County is at a crossroads. The loss of its most important resource,

young people entering the work force for the first time, is a trend that must be reversed if

the Countys economic well being is to be preserved. In order to accomplish that goal,

County must create an environment that is friendly to business and industry, and one

that can in fact support new development. The County should focus on its most

abundant and renewable resources, Forestry and value added activities, outdoor

recreation, and tourism are areas where potential exists to improve the economic climate

in Venango County.

A review of a study produced by the Penn State School of Forest Resources in

1997 (no more recent update is available), indicates that between 1921 and 1997,

Venango County increased its forestry resources by thirty percent (30%). In 1997, fully

seventy-two percent (72%) of all land in the County was classified as forests, while in

1921, about forty-two percent (42%) of the land was forested. That translates into

311,600 acres of the 432,000 acre total. The vast majority of the forests are privately

owned (87%).

Based on the Economic Census and Agricultural Census, there were 11,300

private woodland owners in Venango County, with twenty-six (26) wood product

establishments employing about 266 employees. The value of the standing timber was

estimated at close to $270 million dollars (266.4). With an annual timber harvest worth

an estimated $9.52 million dollars and economic contributions of the forestry sector at

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$7.8 million dollars and wood and paper products yet another $8.3 million dollars, the

potential to increase value locally is significant. Forestry was second only to agriculture

in total economic contributions in Venango County.

Action Plan

In preparation of the Venango County Comprehensive Plan, it is recommended

that action agendas be prepared for presentation to the municipalities in each planning

unit, with those goals and objectives listed which are considered realistic in light of

survey responses and subsequent input from property owners and the comprehensive

plan steering committee. These planning forums can be tailored for a discussion of

specific planning unit goals and the opportunities presented for the actual achievement

of these goals. At the outset, municipal officials should be polled for their acceptance of

the goal statements and their willingness to commit resources to accomplish the

objectives leading to the goal.

With Venango County as the facilitator, each community can be assured that

their single or multijurisdictional plan is consistent with the Countys Comprehensive

Plan while being more specific in terms of short and long range goals. The planning

process should involve the school district as well as local developers, farmers,

businessmen and adjacent public authority representatives. While the County Plan does

identify a designated growth area in the Central Planning Unit for a number of reasons,

one being the presence of public utilities, it recognizes the potential for growth on the

western side of the County along the Route 8 corridor, in interchange areas along the I-

80 corridor and elsewhere.

Planning Philosophies

There are two (2) planning philosophies being championed by the

Commonwealth in the new millennium. Both have their roots in 1950s landscape

architecture curriculums and both have premises that can be applied at the site design

level. What is valuable in these approaches to site-specific development standards, is

that when used as templates, these approaches can result in well planned, well

designed communities with pedestrian scaled amenities. The concept of compact

building forms, clustered housing, open space and a mix of uses in the same area were

all elements of early villages and towns. The Commonwealth has realized the benefits

of this development pattern, not only through the application of these two (2)

philosophies, but the inclusion of a new article in the Pennsylvania Municipalities

Planning Code, Act 247, as amended, titled Traditional Neighborhood Development.

(Article VII-A)

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Venango County has the opportunity to guide future development using the best

from both approaches. Procedural and review and approval processes in each area of

the County at the Planning Unit level can be tailored to suit the participating

municipalities planning philosophies. With the number of communities relying on the

administration of land use proposals by the Venango County Planning Commission,

these guidelines can be implemented at the County level fairly soon.

In Growing Greener (published by the National Lands Trust), the key to success

is the conservation of open space. Simply stated, Conservation Design rearranges the

development on each parcel as it is being planned so that half (or more) of the buildable

land is set aside as open space... This density-neutral approach provides a fair and

equitable way to balance conservation and development objectives. This narrative from

Growing Greener assumes that half or more of the buildable area is fair and equitable

to property owners considering development. While the concept has merit, the standard

proposed is not widely accepted in the rural municipalities in Western Pennsylvania. It is

at the discretion of each community to set open space standards, and the Grower

Greener approach can be considered a starting point.

The Four Keys to Conservation according to the Natural Lands Trust, are as follows:

1. Envision the Future: Performing Community Audits : The audit projects

past and current development trends into the future so that officials and

residents may easily see the long-term results of continuing with current

ordinance provisions.

2. Protect Open Space Network Through Conservation Planning :

Communities establish reasonable goals for conservation and development

goals that reflect their special resources, existing land use patterns and

anticipated growth.

3. Conservation Zoning: A Means of Choices : Communities provide for a

logical balance between community goals and private landowner interests,

through flexibility and incentives.

4. Conservation Subdivision Design : A Four-Step Process: Communities

recognize that both design standards and the design process play an important

part in conserving community resources through the use of a simple

methodology.

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The preparation of a Natural Heritage Inventory is recognized as an important first

step toward the identification and preservation of environmentally sensitive areas. The

eventual findings of that study and recommendations, regarding the mapping of

Dedicated Areas of publicly and privately owned land, should be implemented through

the Venango County Planning Commission and staff using the current geographic

information system digital map files.

The most recent approach to planning for development, currently being promoted by

the Commonwealth, is the subject of Planning Advisory Service Report No. 479 (2002).

In the Principles of Smart Development there are six (6) elements to the successful

implementation of a smart growth program. This approach is better suited to older

established communities, and communities adjacent to those older settled towns,

Boroughs and cities. In Venango County, the Central Planning Unit and the Southern

Planning Unit are candidates for this infill approach. These areas became the early

suburbs for the Cities of Franklin, Oil City, and Emlenton Borough and have investedsignificantly over the years in infrastructure development.

The Principals of Smart Development are as follows:

1. Efficient Use of Land Resources

* Supports the preservation of land and natural resources.

* Compact building forms. Compact development shortens trips, lessensdependence on auto, which reduces impact on environment, supports cost-

effective infrastructure.* Infill development.

* Moderation in street and parking ratios and design standards.

2. Full Use of Urban Services

* Establish average densities.

* Streets sized for their use, allow some street parking.

* Low, medium and high density mix.

* Encourage neighborhoods to have character as well as privacy.

3. Mix of Uses

* Stores, offices, homes, schools and recreation in compact neighborhoods.

* Promote independence of movement (young and elderly).

* Safety through presence of people around the clock.

* Shorter auto trips, convenient connection of areas with streets.

* Promote architectural compatibility.

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4. Transportation Options

* Safe, convenient and interesting.

* Route heavy traffic around neighborhoods.

* Walking, cycling, public transit within neighborhoods.

* Done in conjunction with average densities and variety of uses.

5. Detailed, Human-Scaled Design

* Compatibility between buildings to ensure privacy, safety, and visualcoherency.

* Massing of buildings, orientation to street.

* Pedestrian circulation.

* Balanced design for bicycles, vehicles, and pedestrian.

* Compatibility through windows, porches, landscaping and similararchitectural elements.

6. Implementation

* Streamline review and approval process.

* Incentives to apply principles.

* Performance standards and minor variances approved administratively.

* Flexibility and consistent application of standards.

Goalsand Objectives

Throughout the preparation process, as thematic data was acquired and

evaluated, the aim has been to structure recommendations into broad areas of concern

and then into incremental objectives relating to those concerns. This section lays outpreliminary, countywide goals and objectives, which utilize similar thematic formats.

These broad goals and objectives reflect the input of property owners and local

government representatives who attended one or more of the focus group meetings held

in each Planning Unit at the outset of the project.

While local elected officials, interested residents, and the Countys Planning

Comprehensive Plan Steering Committee has assigned value to the input, the fact is that

many of the ideas, concerns, responses and reactions ring true from a variety of

individual perspectives. Prior to implementation of a particular method designed to

achieve a goal or objective in a particular Planning Unit, a random verification survey

may be warranted. In our considered opinion, the County must take the time to research

and then initiate measures to achieve its long range goals.

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The Countys role in the plan implementation process cannot be overstated. In

each, the three (3) Planning Units there is land available for development, but little with

the right attributes. In the Socio-Economic Profile part of this document, an evaluation of

the dynamics involved in the current economic climate presents a realistic perspective of

Venango Countys economic condition. Options to improve those conditions are

constantly being evaluated and prioritized by the VCEDC staff, as part of the continuity

of planning efforts which originated in the 1980s.

The Commonwealth requires that County Comprehensive Plans be reviewed

every ten (10) years. A look at the Countys goals and objectives and the opportunities

to produce mutually agreeable results with municipal partners, indicates that policy

changes and local legislative actions must precede implementation. These changes in

planning philosophies at the local level and evaluation of the stated goals and objectives

as they relate to the commitment of personal and financial assistance will evolve slowly

at first. The nature of governance in rural communities is reactive rather than proactive.

Citizen Input

Agricultural

Continue to support the creation of Agricultural Security Areas at the locallevel.

Establish a County Agricultural Assessment Board in order to acquirepermanent agricultural easements in prime farm areas.

Economic Development

Venango County should actively seek, through a marketing campaign, newdevelopment and employment opportunities in appropriate areas within theboundaries of each planning unit.

Venango County should develop a prime development sites database foruse as a marketing and economic development tool.

Utilize background research and socio-economic studies prepared for theVenango County Economic Development Corporation to rate potentialdevelopment sites in terms of infrastructure cost.

Development, which results in permanent full-time job creation, must be

encouraged through the preparation of an efficient review and approvalprocess.

Tax increment financing to support non-residential development and othersimilar incentives needs to be considered by local municipalities and schooldistricts to attract employment opportunities.

Continued emphasis on broad tax bases at the local and sub-regional level orPlanning Unit level should be incorporated into local land use regulations, as

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suggested by the Venango County Planning and Economic DevelopmentDepartment.

The County should encourage joint municipal comprehensive planning whiledirecting development to those municipalities with adequate infrastructurethrough local zoning ordinances.

Venango County needs to develop a fast track review and approval processfor job related development proposals in order to compete with neighboring

communities. Encourage the development of destination sites in downtown Franklin and Oil

City and initiate the redevelopment of the industrialized zones in eachcommunity.

Historic Preservation

An inventory of historic places and structures should be expanded andmonitored by the Venango County Historical Society.

Infrastructure

The County should conduct a comprehensive needs assessment todetermine which municipalities would benefit from the introduction of publicwater and sanitary sewerage facilities.

Identify appropriate sites for development using access and public utilityavailability as benchmarks.

Identify utility expansion and extension funding sources and identify potentialdevelopment locations within individual municipalities throughout the County

The County should assemble and fund a comprehensive marketing brochureto seek light industrial and high-tech facilities.

An inventory and database of vacant and under-utilized industrial andcommercial structures countywide needs to be expanded and updatedregularly.

Encourage development of large tract consolidations for a mix of commercial,light industrial and specialty retail uses where access to transportationfacilities and utility extensions are available.

The County needs to establish a series of public infrastructure areas wheredevelopment potential is significant.

Land Use

Establish cooperative land development policies consistent with adjoiningcountys policies.

Identify State Routes 8 and 62 as potential growth corridors.

Local municipal zoning regulations in rural communities should be reviewedand revised to provide a growing greener approach to growth management.

Apply a consistent policy of promoting development in target areas, beginningwith the Interstate 80 corridor, through amendments to local land useregulations.

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Local subdivision regulations relating to collector roadway design andconstruction standards needs to be reviewed for capacity and safetyprovisions.

The principles of smart growth should guide substantive revisions to localland use regulations.

Introduce mixed-use districts to the local zoning ordinances in place, in orderto create transitional zones, which may facilitate new development.

Abbreviated approval procedures should be drafted for small-scale landdevelopments and adopted by the County, as well as municipalities withindividual subdivision and land development ordinances.

Prepare corridor design guidelines with standards for signage, buildingsetbacks, underground utilities, landscaping, and combined access points forapplication to development proposals on land in the SR 8 and 62 corridors.

Designated growth area need to be considered for the purpose of focusingresources in areas with development potential.

A countywide geographic information system with a strong marketingcomponent should continue to be funded and utilized in the preparation of

policy statements regarding new non-residential developments Venango County needs to assemble a database consisting of parcel level

identification of land with soils classified by the US Department of Agricultureas 1st, 2nd, or 3rd class.

Natural Resources Preservation

Conservation subdivisions should be considered in areas of the County withsignificant sensitive environmental characteristics or large tracts ofundisturbed land.

Recreation and Tourism

Continue to support tourism and visitor events at key locations.

Develop a countywide rural recreation plan for municipalities with little or noaccess to recreation lands and facilities.

Perform Tourism and Marketing Research to maximize usage of thesignificant historical, County and State Parks

Residential

Continue to support Federal and Commonwealth housing rehab programs forlow to moderate-income families.

Consider the pooling of Certified Housing Inspectors as an on call service tocommunities which opt out of the new building codes mandate.

Create a limited partnership for affordable housing between County housingagencies and private sector residential contractors.

Explore needs for all types of housing in the County.

Traffic and Circulation

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The capacity of Venango Countys current transportation and circulationsystem should be improved where development is projected in order toaccommodate future growth.

A roadway sufficiency analysis is needed where development is encouragedwithin certain transportation corridors.

Alternative funding sources for local roadway improvements need to beidentified as part of a multi-jurisdictional capital improvements program

designed to maximize collective local funding. Prepare corridor design guidelines with standards for signage, building

setbacks, underground utilities, landscaping, and combined access points forapplication to development proposals on land in the SR 422 corridor.

Water Supply

Aquifer recharge areas should be identified and mapped using the CountyGeographic Information System.

Municipal water wells and syphon points on local waterways should beidentified and mapped using the County Geographic Information System.

Water supply resources should be protected from the impacts of

developments or regional significance through the creation of non-buildbuffer zones.

Monitoring the Plan

After a County adopts a comprehensive plan and any implementing codes and

ordinances, there is a tendency to put the plan away and to consider the planning task

complete. This is not, and should not be, the case. A community the size of a County is

never a stagnant place, and change is always occurring. Change must be examined to

see what affects it may have upon the community. The comprehensive plan and its

implementing ordinances must be revised accordingly. This examination and updating

procedure should be done periodically, and is what is known as the continuing planning

process. It is a continuous activity designed to protect the public welfare.

If a plan is completed then shelved and forgotten, it quickly becomes obsolete.

Hence, it becomes useless and cannot be relied upon as an accurate resource to guide

growth and development. For example, major highway improvements are scheduled for

construction in this County. A new industry attracted by the transportation system may

move into this County, followed shortly by workers seeking employment and housing

close to their source of employment. The additional influx in population will require more

houses, apartments, schools, and municipal services. By keeping abreast of such

developments and amending the plan and its implementing ordinances accordingly, the

impacted communities will be better prepared to deal with the changes impending.

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County Residents, the Planning Commission and the Governing Body

To be effective, planning should have the understanding and the support of the

local residents. Without this support, no matter how grand a plan is, it risks the chance

of either not being adopted or constantly being challenged as a plot to deprive people

of their rights. Efforts must be taken to involve local residents to the greatest extent

possible, in the process of plan development.The County Commissioners appoint local citizens as members to the planning

commission to assume its obligations pertaining to planning. As such, the planning

commission is responsible for the preparation of the comprehensive plan and its

implementing ordinances. The responsibility for insuring citizen awareness, then, falls,

in large part, upon the planning commission. It is nonproductive to spend both time and

money to develop a comprehensive plan, to present it to the governing body for a public

hearing and to have the plan shouted down and subsequently not adopted by an

intimidated governing body, due only to the actions of uninformed or misinformed local

residents. Obviously the importance of citizen participation cannot be overstated. The

plan ultimately belongs to the people who live in the County.

The County Commissioners must realize that there is a real and pressing need

for planning, and that planning is for the general welfare of all residents of the County

both present and future. By its very nature, planning must be implemented by

ordinances and activities designed to preserve and to promote certain qualities and

standards. This is not always a popular process with all segments of a community, and

may occasionally run into opposition. However, the comprehensive plan examines many

facets of the community and is formulated after much thought and discussion. Certain

recommendations merit consideration at a public hearing, but a governing body should

not be intimidated into not voting for a comprehensive plan based solely on crowd

reaction. The plan must be considered on its merits and its applicability to the

community. The municipality has an educational role to fulfill, too. People tend to reject

what they do not understand.

Planning for the future growth and development of the County is the

responsibility of the County Commissioners. The comprehensive plan is the first step

taken to rationally carry out this responsibility. It is generally prepared by the planning

commission with input from the local residents and public and private organizations.

Following its adoption, the County Commissioners have support upon which to base the

plan implementation activities.

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What is the Relationship of Comprehensive Planning to Local Zoningand Subdivision Ordinances?

Comprehensive Plans

What is a Comprehensive Plan?

An official public document adopted by a local or County government as a policyguide for making decisions about the physical development of the community. Itindicates in a generalway how leaders of the governing body want thecommunity to develop in the next 20-30 years.

What does it contain? (See Article III, MPC)

How is it used?

Governing Body:

to determine policy

to make policy decisions

to convey advice

to communicate and educate

Planning Commission:

to convey advice to governing body - most important!

as a basis for land development ordinances

to communicate and educate

Zoning Ordinance

What is Zoning?

The means for ensuring that land uses are properly situated with relation to eachother and that adequate space is provided for each type of development.

What does it contain?

Provisions to permit, prohibit, regulate, restrict, and determine:

Uses of land

Size, height, bulk, location, erection, construction, repair,maintenance, alteration, razing, removal and use of structures

Areas and dimensions of land to be occupied by uses and structures,as well as open space areas

Population density and intensity of use

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Protection and preservation of natural resources and agricultural land

How is it used?

The Zoning Ordinance is a legal and administrative device by which

Comprehensive Plans at the local or County may be implemented. (See Article

VI, Zoning)

Zoning is more likely to be on a sound, legal basis when it is based on a carefullyconceived Comprehensive Plan.

When it is not based on a Plan, the ordinance may have some adverse effects.

Tendency for development to be frozen in existing patterns.

Unexpected results may be produced, frequently of an undesirablenature.

It may require amendments to such an extent, on behalf of individualproperty owners, that no comprehensive pattern of development canresult.

Subdivision Ordinance

What is a Subdivision Ordinance?

A Subdivision Ordinance is a locally adopted law governing the process of convertingraw land into building sites.

How is this done?

Plat approved procedures.

Based upon compliance with development standards.

How are the standards and administrative procedures developed?

Comprehensive Plans should serve as the basis for effective subdivisionregulation.

Legal Plan proves regulations are not arbitrary.

Technical Plan required to coordinate development

Practical

Assists developers in planning

Dedication of rights-of-way

Dedication of land for recreation

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Street layout

Sanitary and storm sewage facilities

Water supply

Other utilities

Conclusion

The comprehensive plan is a document prepared to assist in the determination of

future growth and development policies. It contains sections which study various

aspects of the community, community characteristics, community development goals

and objectives, and future plans for several basic areas of everyday living. It is officially

adopted by the governing body of the County, and is implemented to a large extent by

zoning and by subdivision and land development ordinances at the local level. The plan

must be periodically reviewed and updated (ten year intervals), and must have the

understanding, coordination and support of the residents, the planning commission and

the governing body.

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volume iii existing conditions

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