Mercer County's Comprehensive Plan

Mercer County's Comprehensive Plan
Land Use Plan

The Land Use Plan is a focal element of the Mercer County Comprehensive Plan. It brings planning to a spatial level, relating the vision and policy objectives to the desired pattern of on-the-ground development. It addresses key questions such as what type of development should occur, where should it occur, and how much?

The main element of the Land Use Plan is:

Future Land Use Map – A map which identifies preferred types of development and their location in the county along with text which provides more in-depth thought into map designations.

Process

The Land Use Plan was developed with much public meeting input using a "hands-on planning" process. Community leaders and citizens created land use plan maps for first their region then the county. At meetings in each of 5 regions, participants used blank regional maps and markers to sketch targets for growth, revitalization, and preservation in their own neighborhoods and towns. The result was both enjoyably creative and a close, personal expression of public desires for the future. At a countywide visioning committee meeting, participants pieced together the five regional maps into a single county land use map. They affixed icon stickers representing future development (industrial, commercial, residential) to blank county maps. Stickers were allocated in limited numbers representing consensus-agreed acreages of future growth. Again the result was enjoyably creative. It also compelled consensus-building in tough locational choices for new growth targets.

Before each of the hands-on planning meetings, participants were informed of brief "rules" of locational theory:

Locational theory for various land uses

Residential uses

Urban areas can support higher densities of households per acre.

Should be encouraged near schools, parks, and other residential developments.

Can locate on any street or road. Often best succeed in low traffic areas.

Infrastructure requirements linked to density.

Public support programs are available for specialized forms of housing.

Commercial uses

Market theory encourages similar facilities to locate together in corridors or nodes.

Usually succeed in high traffic or high visibility areas.

Normally require public water and sewer.

Large, high impact facilities often conflict with residential uses.

Public support programs (except infrastructure and downtown reuse) are not normally available.

Industrial uses

Many such businesses desire access to interstate or arterial highway.

Must normally be located on relatively flat land.

Public water and sewer are necessary.

High incidence of conflict with neighboring residential uses.

Many public support programs exist to assist in placement of industries.

MCRPC and its consultant, Graney, Grossman, Ray & Associates, created a draft land use plan map based on the public meeting input. The draft map was then presented at a second round of regional meetings and a visioning committee meeting. The resulting map became the final Future Land Use Map.

Land use categories

The Land Use Plan identifies five future land use categories:

Revitalization target areas - Typically, these represent older downtown, and older residential areas across Mercer County. Citizens believed these areas needed some form of action to restore them to vitality. In some cases, this was recognition of economic problems. In other cases, the designation was a reaction to physical deterioration (or a combination of physical and economic problems). It is also interesting to note that these represent areas of significant historical public investment in infrastructure, streets, and services. Citizens supported and advocated revitalization, based often upon the need to maintain this previous investment.

Growth target areas - Citizens defined growth target areas as places where they would like to see new or expanded housing, commercial, or industrial development. In some cases, these are adjacent to areas of significant growth or areas which represent a logical expansion of existing communities. In other cases, new growth is targeted for areas in which citizens hoped to encourage growth. Thus, growth areas have a wide variance in terms of marketability. Some are highly desirable; others may require significant public investment or private-sector encouragement. What is crucial is that the participants strongly supported a concept of planned, targeted growth as a continuation of the policy plan.

Wise use land banks - The concept of wise use land banks was created as a solution to citizen conflicts during the visioning process. In various meetings, these areas were cited for alteration (meaning anticipated development patterns were disliked) or received numerous cautionary votes. Numerous times it was also stated that some development might be acceptable if it were of exceptionally high quality, rather than mere quantity. The three areas represent unique corridors currently utilized for low density uses (single-family residences, agriculture, light commercial), but where market forces could lead to intense development and a loss of some property rights via conflict. The final consensus were that these areas should be kept like a future use bank account, pending further study. It was also agreed that each was important enough to warrant a separate planning process which would involve residents, landowners, neighboring business owners, local officials, and other interested parties.

Urban/rural preservation of uses and features - There are also both rural and urban areas which the meeting participants wished to remain as they presently are. This should not be construed to mean that the door is shut to any future development. "Preserve existing uses and features" is simply defined that any new development should be of a highly compatible use, density, and type of existing development. Thus, rural areas should remain agricultural, low density residential, and available for traditional rural uses. Urban suburban preservation areas are generally residential neighborhoods which should be protected from land use conflicts. These two land use categories were the citizens' means of strongly stating, "If it isn't broke, don't fix it."

Projected land use needs

In order to conform to the policy objective of planning for desired growth and preventing excessive growth, the Land Use Plan is based on a realistic projection of future land use needs. Projections were developed for housing, commercial and industrial land use needs over the next ten-year period.

Housing

Mercer County population is projected to increase from 121,003 in 1990 to 123,110 in 2000 (according to Mercer County Comprehensive Plan Policy Plan). By factoring out an estimated 5,500 group quarters population (5,378 in 1990) and factoring in an average of 2.47 persons per household (2.54 in 1990) and a 5% housing vacancy rate (5% in 1990), it is projected that 2,100 housing units will be needed to accommodate 1990-2000 population growth.

In addition, housing loss due to attrition (fire, abandonment, change of use) is estimated to amount to 5% of the housing supply. It is projected that 2,400 housing units will be needed to replace that loss.

In total, 4,500 housing units are needed for residents expected to reside in Mercer County in the next ten years. Based on 1990's average density of 1.6 units/acre, over 2,800 acres will be needed to accommodate new and replacement housing. If a positive growth environment occurs and population grows to 130,000, housing needs could reach 7,400 units or over 4,600 acres in the next ten years.

Commercial

Commercial land use grew from 1,465 acres in 1973 to 1,945 acres in 1993, an increase of 480 acres (according to Mercer County Comprehensive Plan Policy Plan). This occurred during a period when the number of retail establishments in the county actually declined and retail sales decreased by 4% adjusted for inflation. The growth in commercial land use is more due to movement of business from urban centers to new outlying commercial areas.

Whereas there was a past 20-year growth of 500 acres (250 acres each 10 years) under a scenario of sprawl development, it is projected that 250 acres will be needed for new commercial growth under a scenario of non-sprawl development.

Industrial

The Mercer County CERP plan measured average industrial land absorption in recent years at 25 acres/year. This is further supported by the Mercer County Comprehensive Plan Policy Plan which measured industrial land use growth at 380 acres from 1973-93. Given the desire to improve economic development and job creation results, it is estimated that more than double the recent land absorption will be needed to meet desired goals. Higher projections are proposed in consultation with Penn-Northwest Development Corporation for two reasons: 1) new industries in the I-80/I-79 corridors are likely to be warehouse and distribution which has greater land needs per employee, and 2) the interstate corridor locations will draw from a labor market involving several counties beyond Mercer County.

It is projected that 1,000 acres will be needed for new industrial growth in the next ten years.

Land use map

The following text gives a summary by region of the future land use map, more specifics about types of preferred land use (residential, commercial, industrial) and more insight into the stakeholder discussion and reasons behind the designated categories.

Southwest region

Revitalization target areas

The old business and industry heart of the Shenango Valley, also now the major part of the Shenango Valley Enterprise Zone – Larger economic development opportunities include reuse of idle portions of Caparo Steel in Farrell (in planning stages with Shenango Valley Industrial Development Corporation), reuse of the vacant Westinghouse plant in Sharon (pending Superfund environmental clean-up) and continued revitalization of downtown Sharon.

Urban residential neighborhoods adjacent to the business and industrial center – These neighborhoods include older, more dense housing and are characterized by low incomes, high minority population and high percentages of non-owner occupants.

Older business and residential areas at and around downtown West Middlesex.

Revitalization target areas

PA 18 from Morefield Road area to Lamor Road area in Hermitage – This corridor is favored for business growth and has substantial vacant parcels for development opportunities.

Broadway Road corridor and nearby areas in Hermitage and Wheatland – This area is currently targeted for industrial development and has some remaining parcels for further development.

East suburbs (Hermitage) and north suburbs (Hermitage & South Pymatuning) – These areas are within service reach of existing sanitary sewers and are logical growth choices for residential development.

Older business and residential areas at and around downtown West Middlesex.

West Middlesex outgrowth in Shenango Township – This area has sanitary sewer service which area proponents believe is under-exploited due to lack of development. It is a good opportunity for residential extension of the West Middlesex community. The PA 18 corridor should receive more attention for business/industrial development opportunities.

An area south of PA 318 between PA 60 and I-80 extending to Mitchell/Fennell/Minner Roads presents an opportunity for economic development. It should be carefully planned to minimize impacts on existing residential development and sprawl into nearby rural areas. Completion of the half-diamond interchange at PA 60/PA 318 is important for access.

Shenango Lake growth area – Recreation/tourism growth should be pursued here. Both the U.S. Army Corps of Engineers (Shenango Reservoir) and Shenango Valley Chamber of Commerce have discussed development opportunities despite the restrictions of federal ownership of the lake and surrounding lands.

Wise use land banks

PA 18 corridor between Longview Road and Morefield Road – This area generated the most debate among regional meeting and visioning committee participants:

On one side were proponents of business development. They said the widening of PA 18 to 5 lanes (to be completed end of 1996) along with its growing traffic and closeness to I-80 makes for an ideal environment for new business development and a devalued environment for existing residential development. Good business opportunities may be lost if PA 18 is not available.

On the other side were opponents of business development. They said new businesses would create traffic congestion the improved highway is supposed to relieve. They feared that Hermitage was at or nearing retail market saturation and that new businesses on PA 18 would more likely be transplants from another part of the city. City officials were concerned about preserving investment and quality of development in already built-up sections of the city.

The consensus reached was that this part of PA 18 should not be immediately targeted for widespread business development. The corridor should be carefully studied and targeted for business development only after development demand could not be met elsewhere in the city and it was evident that new development would not adversely impact existing development.

The city and county should also explore means of enhancing the corridor via landscaping and beautification. This would serve to restore value to the residential properties and create an attractive gateway leading to the Hermitage commercial center.

Urban/rural preservation

Stable urban neighborhoods in the center of the Shenango Valley, east end of West Middlesex and Clark – These are attractive and stable neighborhoods which should be preserved.

Rural areas in the outskirts of Hermitage, Shenango and South Pymatuning – These areas should remain dominated by more open spaces, farm uses and other low-density development.

Northwest region

Revitalization target areas

Older, urban centers in Greenville and Jamestown – The downtowns and older adjacent neighborhoods should be targets for revitalization efforts. Downtown Greenville should continue to be a focal point for regional attention. Downtown Jamestown, on the gateway to the popular Pymatuning recreation area, could be an interesting target for creative tourism and travel business opportunities.

Growth target areas

Extended communities around Greenville and Jamestown – These areas are good choices for extended residential growth and carefully planned business growth, coordinated so it does not adversely affect downtown revitalization efforts.

Reynolds industrial park growth areas – Two growth areas are being developed by Greenville-Reynolds Industrial Development Corporation. Reynolds East on the Kidd's Mill Road has the most long-term industrial growth possibilities in the region.

Urban/rural preservation

Greenville neighborhoods – Greenville and nearby parts of Hempfield and West Salem have stable, attractive neighborhoods to be preserved.

Reynolds development – This area, which grew out of a WWII army camp, has a sound business district along PA 18 and a sound residential area to be preserved.

The balance of the region is and should remain dominated by more open spaces, farm uses and other low-density development.

Northeast region

Revitalization target areas

Town centers – The older town centers of Stoneboro, Sandy Lake, New Lebanon and Sheakleyville, both business and residential areas, should receive continued attention for revitalization and reinvestment.

Growth target areas

Extended communities around Stoneboro and Sandy Lake – These areas are good choices for extended residential growth and carefully planned business growth, coordinated so it does not adversely affect downtown revitalization efforts.

I-79/PA 358 interchange – This area is targeted for business and industrial development (a small amount exists already). It is more of a long-term consideration, however, because of the lack of public sewer and water service and the large cost of extending such service from the Sandy Lake/Stoneboro area or building new facilities at the interchange.

Urban/rural preservation

The balance of the region is and should remain dominated by more open spaces, farm uses and other low-density development.

Recreation development

One element of development potential shared across this region which was emphasized at the regional meetings is recreation and tourism. The region possesses outstanding recreational/ tourism resources:

Two lakes – Lake Wilhelm with surrounding Goddard State Park and Sandy Lake with the historical Lakeside Park in Stoneboro.

Sandy Creek valley rail trail – This trail for bicycles and pedestrians is initially being developed from Stoneboro to east of Sandy Lake, but has potential to extend eastward to and connect with a growing Allegheny River valley trail system.

French Creek – It is one of the most unique and biologically significant waterways in Pennsylvania and indeed the northeastern United States.

Efforts should be made to take advantage of these resources for improved rural economic vitality. Care should be employed to ensure that development is appropriate for rural preservation goals and does not adversely affect the resource on which it is capitalizing.

The Sandy Creek valley rail trail presents an outstanding small town economic opportunity if it can be completed all the way to the Allegheny River and its system of trails. Significant recreational traffic could be generated if Sandy Lake/Stoneboro was the western terminus of this popular trail system.

Southeast region

Revitalization target areas

Downtown Grove City – The downtown area should be a regional priority for revitalization efforts to ensure its long-term viability.

Growth target areas

Extended community around Grove City – This area is a good choice for extended residential growth and carefully planned business growth, coordinated so it does not adversely affect downtown revitalization efforts.

I-79/PA 208 interchange – This area underwent dramatic change beginning two years ago with development of a major retail outlet center and coattail businesses. Public sewer and water now serves much of the interchange and more growth is likely.

The area is a good target for further business and industrial growth, but growth should be contained within a limited, controlled area. There is potential here for unplanned growth to burst and sprawl along the PA 208 corridor creating a snarl of traffic signals, entering/exiting automobiles, acres of pavement and agglomerations of signs which do not match the vision of an otherwise rural community. Initially, the development area should extend no further than from PA 258 on the east to the vicinity of Grove City Airport on the west.

Leesburg village – It is ideal for additional development of village uses already there (homes, shops, historic sites, etc.) and enhancement of the rural, small-town pathway of tourism developed at a scale similar and sensitive to the existing village (human-scale buildings, short road setback, reuse of homes, school). It is not ideal for sprawling suburban commercial development set back behind expansive parking lots underneath bright all-night lighting.

Wise use land banks

PA 208 corridor – This highway corridor between the I-79 interchange and Grove City has potential similar to the PA 18 corridor in Hermitage, although its potential is not as immediate. There will be traffic in the corridor, both travelers coming to the outlet center from Grove City and points east and travellers going from the outlet center to Grove City tourist attractions. With public sanitary sewer service running through the corridor, the ingredients are there for development pressure.

However, there is reason for the corridor to remain undeveloped. Since out-of-town tourists come to this area to avoid the congestion and pace of urban life, the corridor should offer them a pastoral setting which leaves a lasting, positive impression.

Nonetheless, if development does occur it should be of a high quality which generates meaningful economic return, blends into the pastoral setting as much as possible and does not adversely impact revitalization efforts in nearby towns or villages. Like PA 18, this corridor should undergo careful study and planning for any development.

Urban/rural preservation

Grove City neighborhoods – Grove City and nearby parts of Pine have stable, attractive neighborhoods to be preserved. In fact, this community has hardly a blighted area to its name, a quality worth working hard to keep.

The balance of the region is and should remain dominated by more open spaces, farm uses and other low-density development. The Wolf Creek and Neshannock Creek corridors are two outstanding greenways which dissect the region.

Central region

Revitalization target areas

Downtown Mercer – The downtown area should be a regional priority for revitalization efforts to ensure its long-term viability.

Town centers – The older town centers of Fredonia and Jackson Center, both business and residential areas, should receive continued attention for revitalization and reinvestment.

Growth target areas

Extended community around Mercer and Fredonia – These areas are good choices for extended residential growth and carefully planned business growth, coordinated so it does not adversely affect downtown revitalization efforts.

I-79/US 62 interchange plus Jackson Center and Lake Latonka – This area attracted much interest at the regional meetings. There was even talk of a new, greater community by the linking of three areas:

Jackson Center has room to extend its existing community with more residential development.

Lake Latonka has room for significantly more infill residential development although the current lack of public sanitary sewer service is a serious constraint which must be overcome.

The I-79/US 62 interchange has land and potential for both industrial and business development oriented to serve a growing regional community. An industrial development project, Jackson Commerce Park being developed by Lakeview Industrial Development Corporation, is already underway on 100 acres in the SE interchange quadrant. Business development on available road frontage, carefully planned and contained without sprawl, would be an ideal complement to the region.

I-80/US 19 interchange – This interchange would be a very marketable location for economic development if public sewer and water service were provided. It should include primarily industrial development and effort should be made to secure as large as possible tracts of land for larger-scale development opportunities. Commercial development should be secondary and minimal so as not to sprawl the impact of development along US 19.

Charleston village – This village was suggested for extended residential growth with village-scale business possibilities.

Wise use land banks

US 19 corridor – This corridor is currently primarily agricultural. However, if public water and sewer service were extended from Mercer to the I-80/US 19 interchange, development potential of the corridor could change. Careful study and planning is recommended before development should be promoted in this corridor.

Urban/rural preservation

Mercer neighborhoods – Mercer and nearby parts of surrounding townships have stable, attractive neighborhoods to be preserved. In fact, this community has notoriety as a quaint, historic, Victorian community, a quality worth working hard to keep.

The balance of the region is and should remain dominated by more open spaces, farm uses and other low-density development.

Mercer County Regional Planning Commission
2491 Highland Road, Hermitage, PA 16148
mail@mcrpc.com www.mcrpc.com

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