Scranton: Planning By Water

SCRANTON

Planning by Water

Brett Davis + Nate Klass + Meiqing Li Jiajing Mei + Yipeng Peng + Sarah Scott

PennDesign Planning Workshop 2017

Figure 1. "The Lackawanna Valley," by George Inness, 1855.

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Scranton: Planning By Water Brett Davis + Nate Klass + Meiqing Li Jiajing Mei + Yipeng Peng + Sarah Scott This sustainability strategic plan is the product of work conducted in the workshop course CPLN 600 Planning Workshop in partial fulfillment of requirements for the Master of City and Regional Planning degree at the University of Pennsylvania School of Design. It is an academic exercise prepared by students that has not been commissioned or endorsed by the City of Scranton.

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Figure 2. Columbus statue in Courthouse Square.

Executive Summary The City of Scranton, Pennsylvania, is at a moment of transition.

After nearly eight decades of decline, the city’s population has stabilized, giving Scranton the opportunity to build on this momentum. However, the city has no existing major industries with the capacity to fuel population growth and must find new ways to encourage economic development. Scranton’s resurgence is also impeded by two significant legacy issues: an ongoing fiscal crisis and a history of environmental degradation. In 2012, the United States Environmental Protection Agency issued a mandate under the Clean Water Act that Scranton improve its water quality over 25 years, an intervention that is expected to cost $140 million.

Meanwhile, Scranton has been designated a financially distressed city under Pennsylvania’s Act 47 since 1992 and is burdened by pension obligations. To monetize its public assets and improve its fiscal situation, the city sold the Scranton Sewer Authority to the Pennsylvania American Water Company in December 2016. The city is expecting an $83 million windfall from this sale but has not decided how this money will be spent.

This sustainability strategic plan for Scranton addresses these issues and charts a realistic yet visionary future for the city. After an extensive study of existing conditions conducted through data analysis, site visits, literature review, and discussions with local leaders, we learned that the city is defined by its connection to water. Historically, the city thrived due to its location on the Lackawanna River. Today, flooding and water quality issues have forced the city to separate itself from its rivers. Planning by Water recommends a series of strategic interventions to transform Scranton’s water resources from a liability into an asset that drives the revitalization of the city’s environmental, economic, and social systems. With strong political leadership and an eye for the future, Scranton is well-positioned to face the challenges of the 21st century.

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Figure 3. Scranton's location in the county and state.

Figure 4. Regional connectivity map.

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Contents 1. Introduction to Scranton

3. SDOC Analysis

4. Goals and Strategies

1.1 A History of Scranton 1.2 Why Water?

2. Existing Conditions

2.1 Environment 2.1.1 Lackawanna

River

2.1.2 Stormwater and Sewer System

2.1.3 Open Space and Recreation

2.1.4 Floodplain and Water Infrastructure 2.1.5 Water Quality

2.2 Land Use and Topography 2.2.1 Land Use

2.2.2 Topography

2.3 People, Housing, and Jobs

2.3.1

Demographics 2.3.2 Housing 2.3.3 Employment 2.3.4 Education 2.3.5 Neighborhoods 2.3.6 Institutions

2.4 Transportation 2.4.1 Network and

Infrastructure

2.4.2 Railroads

2.4.3 Transit

2.4.4 Bicycle Infrastructure

2.4.5 Travel Patterns

4.1 Vision Statement 4.2 Goals Overview 4.3 Environmental Goals

4.3.1

Goal 1 4.3.2 Goal 2

4.4.2 Goal 4

4.5.2 Goal 6

4.4 Economic Goals 4.4.1 Goal 3

4.5 Social Goals 4.5.1 Goal 5

4.6 Strategic Action Table

5. South Side Neighborhood Plan

5.1 Why South Side?

5.2 Future South Side

6. Stormwater Management Plan

6.1 What's the Issue?

6.2 Program Details

7. End Notes

7.1 Conclusion 7.2 About the Authors 7.3 Acknowledgements

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Figure 5. Murals along the Lackawanna River reference the city's nickname.

1. Introduction

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A History of Scranton With a population of about 76,000 and an area of 25 square miles, Scranton is the seat of Lackawanna County, as well as the civic and cultural hub of northeastern Pennsylvania’s Wyoming Valley.

Although Scranton seems isolated, it is relatively well–connected to other major cities in the Northeast via an extensive network of highways. Philadelphia and New York City are two hours away by car and Boston and Washington, D.C., are approximately four hours away by car.

Figure 6. Steamtown railyards, circa 1900.

Figure 7. Scranton Coal Breaker, circa 1900.

The city’s location at the base of the Wyoming Valley between cuts in the area’s steep topography made Scranton an ideal location for industry. In the mid–19th century, the Scranton family founded the Lackawanna Iron and Steel Company to take advantage of the area’s abundance of iron ore. Their company soon expanded into the railroad business by laying down the Delaware, Lackawanna and Western Railroad (DL&W) to connect their output to New York and the Erie Canal. The company gained a reputation for high-quality steel rail and by 1894 was manufacturing one–sixth of the nation’s train tracks. To support this booming industry, the Scrantons planned and constructed a company town, Scrantonia, which was incorporated as the City of Scranton in 1866.

The Wyoming Valley was also a nationally significant source of anthracite coal and coal mining soon overshadowed steel production in the area. The DL&W positioned this industry for success, and Scranton became known as the “Anthracite Coal Capital of the World.” By the turn of the century, over 40,000 tons of coal were mined there every day.

Figure 8. Washington Ave., 1907.

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Scranton's location at a rail hub, as well as its surplus of female laborers who did not work in the mines, made the city ideal for manufacturing. By 1900, Scranton’s factories were producing millions of clothing buttons every day in addition to over one– third of the country’s silk and lace. Over time, they manufactured military parachutes and vinyl records, as well as other items.

CHAPTER 1: INTRODUCTION TO SCRANTON Following prolonged labor struggles at the local and national level, Scranton’s mining and manufacturing industries began to support a prosperous middle class made up largely of immigrants. The promise of work brought British, German, Irish, Italian, Polish, and Jewish people to Scranton throughout the 19th century to work in the mines or in related occupations. These immigrants typically settled in South Side, a neighborhood in the southeast part of Scranton, before building personal wealth and moving to other neighborhoods. These ethnic groups formed strong communities that are still visible today in the city’s religious institutions, cultural organizations, and culinary heritage. As the city grew in population and stature, it invested in architecture and infrastructure. In 1886, Scranton built both the country’s first electric street light system as well as its first streetcar system, earning its nickname, “The Electric City.”

As the 20th century progressed, oil and natural gas eclipsed coal as a major source of fuel in the United States. The Knox Mine Disaster in 1959, in which 12 mineworkers died as the result of a cave–in caused by illegal mining practices, marked the end of the demise of anthracite coal mining in northeastern Pennsylvania.1

1866 City of Scranton incorporated

1886 Trolley line and streetlights installed

1902 Anthracite Coal Strike

1959 Knox Mine Disaster

2008-Present Scranton struggles to stay solvent

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Figure 9. Population timeline for Scranton with major historical events highlighted.

Timeline of Scranton

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PennDesign Planning Workshop 2017 This decline in coal mining, along with globalization in the latter half of the 20th century, have presented persistent challenges to Scranton's economy. From its peak population of approximately 140,000 people in 1930, the city has shrunk to half that size.

This economic and demographic shrinkage has left the city government in fiscal crisis. The city has over $150 million in unfunded pension liabilities and the school district faces a $30 million deficit. In 2012, Scranton cut all municipal salaries to the federal minimum wage as it faced a $17 million budget deficit.

Earlier that year, capital markets had shut off the city’s access to debt financing after defaulting on a bond payment.

Figure 10. Sign in downtown Scranton.

Meanwhile, Scranton has been designated "financially distressed" under Act 47, the Pennsylvania Municipalities Financial Recovery Act, since 1992. The city’s recovery plan goals include restoring creditworthiness, moderating future deficits, and providing sustainable revenues. The Pennsylvania Economy League, Scranton’s sponsored Act 47 coordinator, has urged the city to monetize its public assets by selling them into private ownership.

The city has since sold the Scranton Parking Authority and the Scranton Sewer Authority, but does not have a plan to use this money to finance its fiscal recovery.

Today, Scranton’s population has stabilized after falling for decades, largely due to the arrival of a new wave of Hispanic immigrants. The city’s economic base has expanded to include a burgeoning health care industry, transportation and warehousing facilities, and higher education. The city's pride in its coal mining legacy and ethnic heritage remain strong.2

Figure 11. South Side building.

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CHAPTER 1: INTRODUCTION TO SCRANTON

Why Water?

Scranton’s industrial past has contributed to the severe degradation of its natural environment. The Lackawanna River runs through the city, but due to ongoing water pollution, it has become the largest point source of pollution in the Chesapeake Bay, a large and ecologically sensitive estuary. Acid mine drainage and combined sewer overflows have also contributed to water pollution, lessening the water quality of Scranton as well as communities downstream.

In 2012, Scranton reached a settlement with the United States Environmental Protection Agency (EPA) over violations to the Clean Water Act. The city was charged for discharging raw sewage, industrial waste, and stormwater into the Lackawanna River, as well as for insufficient operations and maintenance practices that resulted in combined sewer overflows. The cost of these necessary water quality improvements over 25 years is estimated to be approximately $140 million.

In addition to these regulatory burdens, the city suffers from a disconnected relationship with its water resources. Scranton has historically been defined by water, but more recently has built walls and gates to separate itself from the Lackawanna River and its tributary streams. As a result, residents are disconnected from their environment and are not able to benefit from access to it. We believe a sustainable approach that tackles all of these issues concurrently is necessary and possible. By focusing on water resources, this plan demonstrates that Scranton can create a future that is mutually beneficial for its residents and its environment.

Figure 12. Scranton watersheds.

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Figure 13 . Base map of Scranton.

2. existing conditions

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Figure 14. Regional map of Scranton, the Lackawanna Valley, and Susquehanna River.

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CHAPTER 2: EXISTING CONDITIONS

Environment Lackawanna River Scranton sits along the Lackawanna River, a tributary of the North Branch of the Susquehanna River. The Lackawanna River begins northeast of Scranton and flows south through the valley for 62 miles until it meets the Susquehanna River near Pittston, approximately 8 miles south of the city.1 The Lackawanna River watershed covers a 350-square mile area and includes several tributary streams, including Leggetts Creek, Meadow Brook, Roaring Brook, Stafford Meadow Brook, and Keyser Creek in Scranton. Scranton is located entirely within the Lackawanna River watershed and numerous catchment areas throughout the city drain into the river. The Lackawanna River eventually drains into the Chesapeake Bay, a large and ecologically sensitive estuary.

Figure 15. The Lackawanna River, near downtown Scranton.

Stormwater and Sewer System Like many old cities, Scranton has a combined sewer system (CSS).

In this system, the same pipes that carry sanitary sewage also carry stormwater. Normally, both the sanitary sewage and the stormwater are treated before being discharged into water bodies. However, during storm events when the volume of stormwater is much higher than usual and exceeds the capacity of the wastewater treatment plant, both the sanitary sewage and the stormwater bypass the treatment plant and discharge directly into water bodies at combined sewer outfall locations.

As of 2012, the sewer system in Scranton consisted of over 275 miles of sewer mains covering the majority of the developed areas of the city as well as neighboring areas in the municipalities of Dunmore, Taylor, Dickson City, and Moosic. Approximately 63% of the Scranton Sewer Authority's sewers are combined sewers; the rest are part of a Municipal Separate Storm Sewer System (MS4), which separates the stormwater and sanitary sewer systems.2 In 2012, the Environmental Protection Agency reached a settlement with the Scranton Sewer Authority to resolve alleged Clean Water Act violations, including frequent discharges of raw sewage, industrial waste, nutrients (such as nitrogen and phosphorous), and stormwater into the Lackawanna River — and ultimately the Chesapeake Bay watershed — as well as operation and maintenance failures that have resulted in combined sewer

Figure 16. The Lackawanna River, near Meadow Lake Run.

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Figure 17. Impervious surface coverage in Scranton.

CHAPTER 2: EXISTING CONDITIONS overflows. The result is that the Scranton Sewer Authority was required to pay a $340,000 fine in addition to upgrading their single wastewater treatment plant, improving maintenance, and paying an additional $100,000 fine if it did not lower its nutrient limitations by a set date.3 In October 2012, the Scranton Sewer Authority adopted the Combined Sewer Overflow Long Term Control Plan, which is required by the Pennsylvania Department of Environmental Protection (DEP). The plan provides strategies for bringing Scranton's CSOs into compliance with the Clean Water Act by increasing the water quality of receiving streams and the Lackawanna River.

Some strategies include upgrading and expanding the wastewater treatment plant, installing concrete culvert storage facilities to control CSOs during peak wet weather flows, controlling the amount of stormwater that enters the sewer system, and improved operation and maintenance practices.4

Figure 18. A CSO outfall in the Lackawanna River.

In October 2013, the city and the Scranton Sewer Authority conducted a phase one assessment and recommendation report upon reviewing the city's stormwater management systems, including CSOs and MS4s. The report focused on fiscal responsibility and infrastructure management and also identified opportunities to implement green infrastructure as a method for reducing runoff and improving water quality. Additionally, it recognized the negative impact of the city's industrial past on the water quality of the Lackawanna River.5 On December 29, 2016, the city sold the Scranton Sewer Authority to Pennsylvania American Water for $195 million. After splitting the profits with the neighboring borough of Dunmore, Scranton anticipates a windfall of $83 million. Mayor William Courtright and the City Council have identified three possible areas for spending the money: funding municipal pensions, paying down the city’s debt, and funding capital projects. They are most in favor of spending "a significant portion" of the money for debt reduction, with some money contributing to pensions and putting only $2-3 million into capital projects.6 It is unclear how the sale of the Sewer Authority will impact the city’s ongoing efforts to meet the EPA consent decree, as the city is still responsible for stormwater management.

Figure 19. Warning sign for a CSO outfall.

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Figure 20. Parks, forest, and trails in Scranton.

CHAPTER 2: EXISTING CONDITIONS

Open Space and Recreation There are over 30 parks in Scranton that are scattered throughout the city, ranging from larger parks like Nay Aug Park and McDade Park that host museums and other recreational facilities to smaller neighborhood parks with playgrounds, recreation centers, and pools. Scranton is also home to the Steamtown National Historic Site, which interprets the history of steam railroad transportation at the site of the former Delaware, Lackawanna, and Western (DL&W) Railroad roundhouse.

Nay Aug Park, located in southeast Scranton along I–81, is a major attraction because of its waterfall and river trail. The park also provides recreation opportunities like biking, picnicking, hiking, a swimming pool, and a concert pavilion. With 126 acres, McDade Park is the largest park in the county and one of the most popular.

It provides both visitors and residents with recreation opportunities like walking, hiking, and bicycling. Located in West Scranton, the park was formerly a surface mine and was converted to a recreation area in the mid–1970s. Currently, the park is home to the Pennsylvania Anthracite Museum and offers mining tours.7 The Lackawanna River Conservation Association (LRCA), in partnership with the Lackawanna Heritage Valley Authority and the Northeast Pennsylvania Rail Trail Council, is working to create a 40-mile Lackawanna River Heritage Trail along the Lackawanna River that will eventually join the Delaware and Lehigh Trail. This pedestrian and bicycle trail is proposed from the confluence of the Lackawanna and Susquehanna Rivers at Pittston northward through Scranton, Carbondale, and Forest City in the vicinity of Stillwater Dam. Approximately 1.5 miles of trail along the Lackawanna River near Steamtown and downtown Scranton have been successfully acquired and developed. Interpretive signs along the trail tell the story of the Lackawanna Valley.

Figure 21. The Iron Furnaces, a tourist attraction in downtown Scranton.

Figure 22. Lackawanna River Trail.

Figure 23. Nay Aug Park.

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Figure 24. Existing green and gray infrastructure in Scranton.

CHAPTER 2: EXISTING CONDITIONS

Floodplain and Water Infrastructure The U.S. Federal Emergency Management Agency (FEMA) identifies flood hazard areas to set flood insurance rates for the National Flood Insurance Program. These areas represent the 1% annual chance of flooding and are often referred to as the 100–year floodplain. The floodplain in Scranton is largely confined to the beds of the Lackawanna River and several large streams; however, the floodplain widens along both sides of the river north of downtown.

To control flooding issues, the city has installed levees, flood walls, and flood control gates along the Lackawanna River, used concrete to channelize streams, and buried creeks using culverts.

It is arguable whether these interventions successfully mitigate the risk of flooding, which can be exacerbated by stormwater runoff caused by increased development and impervious surface coverage. This reliance on expensive gray infrastructure also cuts the city off from its natural resources and creates an adversarial relationship with its ecological systems.

Figure 25. Floodwalls are a common type of flood infrastructure in Scranton.

Water Quality In addition to the combined sewer overflow problem, two other primary issues contribute to Scranton’s low water quality: acid mine drainage and the local landfill. Scranton sits on top of one of the largest acid mine drainage pools in the country. Approximately 130 billion gallons of contaminated water runs through the abandoned mine tunnel systems, which become flooded with groundwater as well as river and stream water that infiltrate from the surface.

Iron oxide drains out of the mine pools, leaving a distinct orange plume of water that is visible from aerial images. The Old Forge Borehole and Duryea Breach discharge points, located just south of Scranton along the Lackawanna River near the Susquehanna River, are the two worst offenders of acid mine drainage pollution.

Combined, they contribute approximately 25% of the iron loading that enters the Susquehanna River and are largely responsible for the Lackawanna River’s pollution to the Chesapeake Bay.8 The Keystone Sanitary Landfill occupies 750 acres in Dunmore and Throop, just north of Scranton, and receives more than 7,200 tons of garbage daily. While the Keystone Sanitary Landfill claims that it uses strong leachate barriers in the landfill, a recent report by the Pennsylvania Department of Environmental Protection shows that the landfill has been fined for the second time due to leachate leaking into Eddy's Creek, a tributary of the Lackawanna River.

Though the leak only lasted a few hours, more than 7,000 gallons of leachate were leaked.

Figure 26. Warning sign near Lackawanna River levee.

Figure 27. Keystone Sanitary Landfill sign.

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Figure 28. Land use in Scranton.

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Land Use | Topography Land Use Scranton contains the highest mix of land uses and density in the region. The largest percentage of land use in Scranton is residential, although even predominantly residential areas host commercial, institutional, and even industrial uses. The majority of residential land uses are detached, single–family, medium–to–low density neighborhoods, though Scranton has a diverse mix of housing types, including single–family detached, single–family attached, two– family, and multi–family units.

Scranton is the region’s commercial center and boasts a variety of hotels, offices, retail centers, and mixed-use buildings. Commercial land uses include neighborhood commercial as well as strip malls and big box stores along prominent road corridors. Downtown Scranton is roughly bordered by Lackawanna Avenue to the south, Vine Street to the north, Jefferson Avenue to the east, and the Lackawanna River to the west. This is where the majority of government and business offices are located as well as the Marketplace at Steamtown Mall. Commercial and institutional uses, including schools and hospitals, continue roughly 10 blocks northeast of the core downtown. The University of Scranton is located just east of the downtown.

Figure 29. Retail corridor in downtown Scranton.

Figure 30. Typical residential street in the more affluent Hill Section.

In addition to the civic center downtown, there are several mixed– use, non–residential corridors throughout Scranton. Industrial land use can be found in pockets throughout the city, though it tends to cluster around transportation corridors. These major corridors include U.S. Route 11 and Cedar Avenue in South Side, North Main Avenue and Keyser Avenue in West Scranton, and both sides of the Lackawanna River north of downtown. There are also a few business parks, especially along major roadways such as U.S. Route 11.

Scranton differs significantly from the rest of Lackawanna County in its low percentage of agricultural land. Open space is largely relegated to the four corners of the city and includes McDade Park to the west, Nay Aug Park to the east, and land surrounding the Montage Mountain ski resort to the south.

Figure 31. Active rail line in south of downtown Scranton.

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Figure 32. Digital Elevation Model of the Wyoming Valley.

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CHAPTER 2: EXISTING CONDITIONS

Topography Scranton is located in the middle of the Wyoming Valley, which is a crescent–shaped depression surrounded by ridges running northeast to southwest. There are several breaks in the ridges surrounding Scranton formed by creeks and rivers that act as entry points to the valley. The presence of these geographic features encouraged early settlement and played an important role in the development of industry and transportation routes in the city.

Figure 34. View of Scranton from McDade Park.

Figure 33. Topographic section of the Wyoming Valley.

Figure 35. View from the top of the Hill Section neighborhood.

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People | Housing | Jobs Demographics As of the 2010 Decennial Census, Scranton’s population was 76,100 people, making it the sixth largest city in Pennsylvania. This represents half of the city’s population at its peak in the 1930s. The city’s population declined dramatically in the mid–20th century due to a major loss of industry but has remained relatively stable since 2000 when the population decreased by only 400 people. Scranton is the largest municipality in Lackawanna County, accounting for 35% of the county’s population, and is about six times denser than Lackawanna County. Since 1930, Scranton’s population has decreased as a percentage of Lackawanna’s population from 46% to 35%.9

Figure 36. Population density in Scranton.

Figure 37. Population Pyramid, 2010.

Scranton has a large young adult population comprised of residents from 15–24 years old. As of the 2010 Census, the median age in Scranton is 38 years old; the male median age is 36 and the female median age is 40. Scranton is significantly younger than Lackawanna County since the median age in Lackawanna County is 42 years old, with the median male aged 40 and median female aged 44. This younger population is likely due to the large number of educational institutions in the city.10

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CHAPTER 2: EXISTING CONDITIONS While the city is majority white, it is becoming increasingly diverse, largely due to an increase in Hispanic residents and a decrease in white residents. As of the 2010 Census, the city is 84% white, compared to 94% in 2000. Today, 10% of Scranton is Hispanic, which represents a significant increase from 3% in 2000. As population was basically constant over this 10–year period, the 7% increase in Hispanic population represents about 5,000 new Hispanic residents with a similar number of white residents leaving the city. The largest countries of ancestry for Scranton residents are Ireland, Italy, Germany, and Poland. 8% of Scrantonians are foreign–born, and of that population, 33% are U.S. citizens. Most foreign–born immigrants come from Asia and Latin America (42.3% and 42.5%, respectively).11

Figure 39. Median household income

by Census tract, 2010.

Figure 38. Change in non-white population in Scranton, 2000-2010.

The median household income in Scranton in 2010 was $37,100 in 2012 inflation–adjusted dollars. By comparison, the median income in Lackawanna County in 2010 was $45,500. Areas closer to the center of the city and in southern Scranton are less wealthy; outlying areas of the city are significantly wealthier. 21% of all residents in Scranton were below the poverty line compared to 14% of people in Lackawanna County. 17% of households had used SNAP benefits in the prior 12 months when questioned by the Census Bureau and 15% of families were below the poverty line.12

Housing There are currently 30,100 housing units in Scranton, 51% of which are owner–occupied. As of 2010, the homeowner vacancy rate was 2.6% and the rental vacancy rate was 8.3%. Lackawanna County’s homeowner vacancy rate was also 2.6% and its rental vacancy rate was 4.7%. In total, these numbers indicate that approximately 1 in 10 houses in Scranton are empty.13

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PennDesign Planning Workshop 2017 Approximately 60% of housing units in Scranton were built before 1939 and most of these were built as detached, single–family houses. The largest share of housing in Scranton has three bedrooms, signaling a strong market for housing for larger families or potential for student housing for the many universities in the area. There are few multi–unit residential buildings in Scranton.14

Figure 41. Number of owner–occupied housing units by Cenus Tract, 2010.

The median owner–occupied unit value costs $108,300, which is lower than the Lackawanna County median of $145,000. A significant percentage of both homeowners and renters are cost burdened. This level of cost burden for both renters and owners indicates a lack of affordable housing stock. 57% of owned homes have a mortgage, and in that group, 28% of owners are cost–burdened. Of those without a mortgage, 19% are cost– burdened. The median rent in Scranton is $660 per month and 40% of residents in renter–occupied housing are cost–burdened. This indicates a level of economic hardship and low income–to–rent ratio for many of Scranton’s residents, especially low–income and minority communities who are more likely to be renters and are disproportionately affected by this cost burden.15

Employment As the 2010 Decennial Census and American Community Survey were measured during the Great Recession, employment levels recorded in those surveys may have been lower than in other

Finance and insurance

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Transportation and warehousing

Educationial services

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Figure 42. Employment by sector, 2010.

CHAPTER 2: EXISTING CONDITIONS periods. The 2010 unemployment rate was 8.6%, with a significant number of residents over the age of 16 not in the labor force (41%).

The largest industries in Scranton are education and health care (19%), retail trade (14%), manufacturing (11%), and food services (11%).16 The industries in Scranton that could be considered basic, relative to the state of Pennsylvania, are educational services (1.8), finance and insurance (1.3), transportation (1.2), health care and social assistance (1.1), and information (1.1). These industries are the main drivers of employment in the area. Since 2000, there was a shift in largest industry sectors in Scranton. While retail trade and manufacturing were still the second and third largest industries, the largest industry in 2000 was educational, health care and social services.17

Figure 43. Moses Taylor Hospital, north of downtown Scranton.

Education On average, Scranton residents have low levels of educational attainment. Of the population in Scranton over 25 years old, 40% have at most a high school diploma, 13% have at most a bachelor’s degree, and 5% have at most a master’s degree. 16% of Scrantonians do not have a high school diploma. Scranton’s educational attainment closely matches Lackawanna County’s attainment. This shows that college graduates do not stay in the area after graduation.18

Figure 45. Educational attainment of Scranton residents, 2010.

Figure 44. University of Scranton campus.

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Educational institutions in Scranton include three universities, two community colleges, and one medical school. Total higher education enrollment (across all divisions) is almost 12,000 students.

The University of Scranton is best known for its business programs, especially in entrepreneurship. Marywood University boasts a strong arts and architecture program. Both community colleges are strong in their vocational and technical programs.19

Neighborhoods

Figure 46. Map of population density and neighborhood boundaries in Scranton.

Scranton is made up of seven distinct neighborhoods that reflect different land use patterns, building typologies, and periods of growth in the city: North Scranton, West Side, Downtown, Hill Section, South Side, Minooka, and East Mountain. Each neighborhood has different block scales and block patterns. For example, downtown Scranton has larger blocks and building footprints as it is the civic and commercial hub of the city. In contrast, the residential South Side neighborhood is characterized by regular rectangular parcels and an extensive network of alleys. Scranton developed from downtown outward, which is reflected in the pattern of the age of housing stock.

Institutions Scranton has a strong civic culture that is reflected in the city’s variety of institutions, which include medical, educational, cultural, and religious centers in addition to a host of non-profit organizations.

The Catholic Church has a major influence in the city from neighborhood churches to Marywood University and the University of Scranton to senior housing projects. Scranton is also a regional health center as it is home to multiple hospitals. These institutions anchor neighborhoods, provide jobs, and unite communities. A host of non-profit organizations focus on environmental research and advocacy, including the Lackawanna River Corridor Association, the Eastern Pennsylvania Coalition for Abandoned Mine Reclamation, and the Susquehanna River Basin Commission.

Figure 47. Institutions in Scranton.

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CHAPTER 2: EXISTING CONDITIONS

Figure 48. Median year of construction of homes in Scranton neighborhoods.

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Figure 49. Transportation infrastructure in Scranton.

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Transportation Network and Infrastructure The commuter transportation network in Scranton is largely defined by highways and roads due to a lack of public transit options.

Three interstate highways—476, 81, and 84—run through the city in addition to U.S. Route 11. The volume of traffic matches the road network hierarchy and indicates the importance of I-81 and U.S. Route 11 as major arterials. The two major transportation infrastructure centers in the area are the Wilkes–Barre/Scranton International Airport and the Lackawanna Transit Center. The airport is in nearby Avoca and offers approximately 40 daily arrivals and departures to seven major hubs. The transit center is a new multimodal hub, opened in November 2015, that connects several bus lines with motorists and pedestrians.

Figure 50. Lackawanna Transit Center in downtown Scranton.

Railroads Mountain passes facilitated rail development, making Scranton a transportation hub. Rail was used to haul freight that was sourced or manufactured in the city, such as coal, steel, and textiles.

Although there is currently no passenger rail service, freight rail remains important to the economy of Scranton as several railway companies run freight trains between Scranton and Binghamton.

Figure 51. Wilkes-Barre Scranton International Airport.

Figure 52. Railroad crossing in south of downtown Scranton.

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Figure 53. Active and inactive rail lines in Scranton.

1-3,520 3,521-10,320 10,321-24,485 24,486-56,200

0

0.5

1

Miles 2

Figure 54. Average daily traffic, in cars per day.

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PennDesign Planning Workshop 2017

Transit

Figure 55. Lackawanna Transit System bus.

Publicly– and privately–operated transit vehicles provide a small mode-share of the trips in the city. The city’s public transportation provider is the County of Lackawanna Transit System (COLTS) under the Lackawanna County Transportation Authority (LCTA).

COLTS mostly provides service within the city, but also serves a wider range of communities in Lackawanna County. It serves as the only public transit service in the city, operating 35 fixed-route services with 66 vehicles and 112 personnel on a $10.5 million annual budget. According to 2007 data, COLTS served more than 16,000 unconnected passenger trips per weekday, or 6,000 to 8,000 individuals. In the most recent year, total ridership per revenue vehicle hour declined to a low of 13.20 In addition to the COLTS transit service, Martz Trailways and Greyhound Lines have coach service from downtown Scranton to New York City, Philadelphia, and other cities in the northeast.

Some other private operators, such as Posten Taxi and McCarthy Flowered Cabs, also serve the area. However, these services are only available through telephone central dispatch.

Bicycle Infrastructure

Figure 56. Biking on the Lackwanna RIver Trail.

The Lackawanna Heritage Valley Authority manages a free bike share program called BikeScranton. The program is still fairly small as it only has six dock locations; however, it shows that there is an opportunity for the city to develop a more extensive network of bicycle infrastructure.21 Currently, there are no dedicated bike lanes on any city streets, which means that the six miles of the Lackawanna River Heritage Trail offer the only protected transportation route for bicyclists.22

Travel Patterns Transit use is not popular in Scranton and the city has a low walk score. Most Scrantonians have a short commute of less than 30 minutes and prefer to commute by car, although 15% of households in Scranton have no car available.23 This is indicative of the limited public transit system as well as a personal preference for car travel.

The city’s relatively low–density environment makes it challenging for public transit to become popular. Its hilly topography also imposes constraints on walking and biking.

28

CHAPTER 2: EXISTING CONDITIONS

Average Walk Score: 58/100

Average Commute to Work: 18 Minutes

Commuting Mode Share of Scranton Residents

Average Commute Time of Scranton Residents

Figure 57. Commuter inflow-outflow.

29

Figure 58. The Roaring Brook is disconnected from the Iron Furnaces by a chain-link fence.

3. SDOC Analysis

PennDesign Planning Workshop 2017

Strengths Deficiencies Opportunities Constraints Building on this analysis of existing conditions, we then used an SDOC model to identify positive and negative trends as well as key issues and problems that need to be addressed. SDOC stands for Strengths, Deficiencies, Opportunities, and Constraints where Strengths and Deficiencies represent internal characteristics while Opportunities and Constraints represent external factors. It is a variation of the popular SWOT analysis used in business strategic planning. The purpose of an SDOC analysis is to move from a broad existing conditions analysis to a set of priorities that lead to identifiable actions. By building a matrix that allowed us to assess different aspects of Scranton’s environmental, economic, and social sustainability, we then crafted a vision statement that reflects our aspirations for Scranton’s future and guides a series of goals and strategies.

32

CHAPTER 3: SDOC ANALYSIS

Environmental

Topic

Strength

Deficiency

Opportunity

Constraint

Open space and recreation Topography Environmental Repercussions Water Quality Disinvestment in commercial corridors

Economic

Barriers to economic opportunity Restructuring of economic base Young Residents Mono– industry Economic Pivots Highway connectivity Arts Scene Vacant Space

Social

Affordability Regional Hub Public Transit Municipal disinvestment Civic Pride/ Cultural Heritage Educational institutions

33

Figure 59. View of the concrete channels around Roaring Brook.

4. Goals and Strategies

PennDesign Planning Workshop 2017

Vision Statement The City of Scranton will reaffirm its relationship with water to uphold and strengthen the balance of its economic, environmental, and social systems.

By enacting a comprehensive program to conserve and harness its water resources, the city will revitalize natural habitats, foster economic development, and support community needs for generations to come.

Figure 60. Water flow to the Chesapeake Bay from Scranton.

36

CHAPTER 4: GOALS AND STRATEGIES

Goals Overview ENVIRONMENTAL

Goal 1: Improve water quality in the Lackawanna River watershed by reducing multiple sources of pollution.

Goal 2: Restore the city’s relationship with nature by implementing stormwater and flood control measures that prioritize green infrastructure.

ECONOMIC

Goal 3: Encourage infill residential development and the revitalization of commercial and industrial sites along the Lackawanna River.

Goal 4: Leverage the city’s hydrological resources to diversify its economic base and increase fiscal viability.

SOCIAL

Goal 5: Increase local and regional accessibility using transit networks, parks, and green infrastructure.

Goal 6: Promote recreational, cultural, and educational initiatives to boost civic pride.

37

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Figure 61. Waterfall in Nay Aug Park.

38

CHAPTER 4: GOALS AND STRATEGIES

Environmental Goals Scranton will realize and maintain a clean, resilient, and ecologically-healthy natural environment by: Goal 1: Improving water quality in the Lackawanna River watershed by reducing multiple sources of pollution.

Goal 2: Restoring the city’s relationship with nature by implementing stormwater and flood control measures that prioritize green infrastructure.

6C

1A

6B

1B En 1C vir on

So ci al

tal en m

1D

6A 5C

2A 2B

5B

2C

5A

2D

4D

3A 3B

4C 4B

Ec o n o mic 3D 4A

3C

39

PennDesign Planning Workshop 2017

Goal 1 — Improve water quality in the Lackawanna River watershed by reducing multiple sources of pollution.

Figure 62. Acid mine drainage in the Lackawanna River is visible in aerial imagery.

40

CHAPTER 4: GOALS AND STRATEGIES

Multiple sources of pollution in the Lackawanna River watershed decrease the water quality of the Lackawanna River. This contamination, which flows downriver into the Susquehanna River, is the single greatest source of pollution in the Chesapeake Bay. Impurities include runoff and sewage from a poorly managed stormwater system, leachate from a nearby landfill, and acidic water from abandoned mines.

Minimize combined sewer–storm system 1A discharges by using gray infrastructure to capture and control flows.

Minimize sewage treatment plant (STP) outfalls by upgrading the capacity of the wastewater treatment plant.

Reduce erosion and sedimentation caused

1B

Old Forge Borehole and Duryea Breach discharge about pounds of iron oxide into the Lackawanna River every day.1

10,000

1C by stormwater runoff by increasing vegetative goundcover and planting trees.

Remediate acid mine drainage by installing an

1D active treatment plant for the Old Forge Borehole and Duryea Breach.

Success Model — Strategy 1B

Ebensburg, Pennsylvania’s Wastewater Treatment Plant lacked the capacity to treat all of its wastewater, resulting in excessive flow conditions. The borough expanded the plant using innovative technologies that nearly doubled its peak flow capacity, solving all excess flow issues.

In addition, plant operations are now cleaner, safer, cheaper, and longer-lasting than before and the borough contracts out its new sludge dewatering services to other treatment plants for added revenue. The total costs of the project came to $4.7 million, with over half of the financing coming from a state grant and the rest from low-interest loans.2 Figure 63. Ebensburg, PA, Wastewater Treatment Plant.

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Goal 2 — Restore the city’s relationship with nature by implementing stormwater and flood control measures that prioritize green infrastructure.

Figure 64. Concrete channel where Meadow Lake Run meets the Lackawanna River.

42

CHAPTER 4: GOALS AND STRATEGIES

Many of Scranton’s streams and rivers have been converted into concrete channels or buried underground. Levees, flood walls, and floodgates enclose large swaths of the Lackawanna River. These attempts at flood control often have unintended consequences on ecosystems and sever the relationship between Scranton’s residents and its water systems.

Restore stream corridors by rehabilitating riparian 2A buffers.

2B Create and conserve open space in the

25%

Scranton has impervious surface cover.3

floodplain.

2C

Charge a stormwater utility fee based on a property's impervious cover.

Launch an alley greening initiative that uses 2D permeable pavements, bioswales, and native planting to both capture and infiltrate stormwater.

Success Model — Strategy 2D

Chicago has one of the country’s largest alley networks, which covers almost 2,000 linear miles and 3,500 acres of impermeable surface. These alleys once lacked sewer infrastructure and flooded during heavy rainfall. The city launched the Green Alley Program as a cost-effective way to reduce flooding due to stormwater runoff, combat urban heat island effects, and absorb carbon emissions while maintaining accessibility for pedestrians, vehicles, and municipal services. The introduction of high–albedo, pervious pavement has been significantly less expensive and more environmentally sustainable than retrofitting alleys with sewer catch basins while solving the same problems and providing additional benefits to residents.

Initial funding for this program cost less than $1 million and has been spearheaded by the Chicago Department of Transportation.4 Figure 65. A green alley in Chicago.

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Figure 66. Historic commercial building in downtown Scranton.

44

CHAPTER 4: GOALS AND STRATEGIES

Economic Goals Scranton will achieve a flourishing economy and fiscal stability by: Goal 3: Encouraging infill residential development and the revitalization of commercial and industrial sites along the Lackawanna River.

Goal 4: Leveraging the city’s hydrological resources to diversify its economic base and increase fiscal viability.

6C

1A

6B

1B En 1C vir on

So ci al

tal en m

1D

6A 5C

2A 2B

5B

2C

5A

2D

4D

3A 3B

4C 4B

Ec o n o mic 3D 4A

3C

45

PennDesign Planning Workshop 2017

Goal 3 — Encourage infill residential development and the revitalization of commercial and industrial sites along the

46

Lackawanna River.

Figure 67. Outline of a potential sustainable development overlay district near the Lackawanna River.

0

0.5

1

2

Miles

CHAPTER 4: GOALS AND STRATEGIES

Land along the Lackawanna River is not currently used as an economic asset to the city. Factories that once relied on riverside rail lines now sit empty and low-density strip malls inefficiently consume potentially valuable property. Vacant land and the presence of obsolete infrastructure along the water give an impression of disinvestment and abandonment.

Create a new zoning category to differentiate land available for development from open space for preservation.

Sell publicly–owned land along the riverfront at a

Create a riverfront Transfer of Development Rights program to protect endangered parcels and densify elsewhere.

Create a Sustainable Development Overlay District that incentivizes green building development and includes a tax assessment to fund river cleanup projects.

3A

3B discounted price to encourage development.

3C

3D

12.6% of

Scranton is zoned vacant land, including potential environmentally– sensitive lands.5

Success Model — Strategy 3C

Calvert County, Maryland adopted the Forest Conservation Transferable Development Rights Program in 1978, the first such program in the state. Owners of forestland may transfer their development rights to an owner of any nonforestland parcel so that the latter may develop his or her property more densely. The two parties agree upon the price of the sale, while the County monitors the transactions and maintains a list of willing sellers. Once transferred, the forestland may never be developed, although timber harvesting is allowed with an approved Forest Management Plan. As of 2008, the program has conserved 13,260 acres of forest.6 Figure 68. Protected greenfield.

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PennDesign Planning Workshop 2017

Goal 4 — Leverage the city's hydrological resources to diversify its economic base and increase fiscal viability.

Figure 69. A business incubator space in St. Louis, Missouri.

48

CHAPTER 4: GOALS AND STRATEGIES

The combination of the cessation of anthracite coal mining and the increasing globalization of manufacturing in the 20th century negatively impacted Scranton’s economy. As mines and factories closed, the city’s population steadily declined. Today, two of the major industries in Scranton are health care and education.

Heritage tourism is also a significant economic driver of the region, though it is an underutilized asset.

Implement tourism initiatives that build on the city's natural and cultural heritage to connect tourist attractions to its water resources.

Construct boat launches and piers for kayaking, fishing, and other river-related recreational activities.

4A 4B

Lack of water is the number global societal risk.

1

4C Collect and sell minerals from mines.

4D

Establish a business incubator program to retain university students post-graduation and catalyze sustainable business growth.

Success Model — Strategy 4D

The BREW (Business, Research, Entrepreneurship in Wisconsin) Accelerator, founded in 2013, is an organization that funds water technology startups that have the potential to be commercialized. This partnership between the Water Council and the Wisconsin Economic Development Corporation brings together water companies and research organizations, develops career education programs, and builds partnerships to enable innovations that solve global water challenges. The result is a water-technology hub that provides capital and jobs to local businesses and laborers, while solving global issues. According to its website, the accelerator has provided more than 65 fulltime jobs, produced 38 internships, facilitated 115 contracts, led to 14 patents, and raised $2.6 million.7 Figure 70. BREW Accelerator.

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PennDesign Planning Workshop 2017

Figure 71. Lackwanna River Trail.

50

CHAPTER 4: GOALS AND STRATEGIES

Social Goals Scranton will enhance people’s connections to water resources by: Goal 5: Increasing local and regional accessibility using transit networks, parks, and green infrastructure.

Goal 6: Promoting recreational, cultural, and educational initiatives to boost civic pride.

6C

1A

6B

1B En 1C vir on

So ci al

tal en m

1D

6A 5C

2A 2B

5B

2C

5A

2D

4D

3A 3B

4C 4B

Ec o n o mic 3D 4A

3C

51

PennDesign Planning Workshop 2017

Goal 5 — Increase local and regional accessibility using transit networks, parks, and green infrastructure.

Figure 72. Lackawanna River Trail.

52

CHAPTER 4: GOALS AND STRATEGIES

The Lackawanna Valley Heritage Trail, which runs through Scranton along the western bank of the Lackawanna River is a key recreational asset in the city. However, the trail is not accessible from most residential neighborhoods and it does not connect to other municipal parkland, such as Nay Aug Park. A lack of transportation infrastructure, including public transit and bicycle and pedestrian systems, makes it difficult for residents to travel safely and efficiently around the city.

Remove concrete channels to reconnect water

Improve the planning and design of bicycle and pedestrian infrastructure to expand waterfront access for residents and visitors.

6

5A systems with their surrounding landscape.

5B

The Lackawanna Valley Heritage Trail spans miles in Scranton.8

Enhance regional connectivity and collaboration through an extended transportation network, a 5C complete river trail, and a valley-wide parkway system.

Success Model — Strategy 5A

The Schuylkill River Trail has catalyzed economic development, enhanced recreational opportunities, and boosted civic pride in Philadelphia. A popular destination for all city residents, the trail has generated $590 million in economic impact, funded several river restoration efforts, and educated visitors on the history of the river area. The route facilitates access to several destinations, including Bartram’s Garden, French Creek State Park, the Audubon Center at Mill Grove, and Valley Forge National Historical Park. Furthermore, it acts as a regional connector, linking many municipalities along its 128-mile stretch. A variety of organizations and municipalities have been active in its construction and management.9 Figure 73. Schuylkill River Trail.

53

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Goal 6 — Promote recreational, cultural, and educational initiatives to boost civic pride.

Figure 74. FInish line of an event in Tacoma, WA.

Figure 75. River cleanup event.

54

CHAPTER 4: GOALS AND STRATEGIES

Scrantonians have a strong sense of civic pride that stems from the city’s industrial and cultural heritage.

However, many residents have little to no affiliation with their natural heritage. Because existing infrastructure cuts people off from the city’s ecosystems, especially along the Lackawanna River and its tributary streams, they do not have an opportunity to interact with their environment.

Improve the amenities of public spaces to provide first-class venues for recreational, cultural, and civic events.

Sponsor a Lackawanna River Conservation Center that hosts environmental organizations, research labs, and educational events.

Encourage social, cultural, and civic events and

6A

6B

There are currently public amenities, such as public restrooms or kiosks along the Lackawanna River Trail.

0

6C programs along the waterfronts.

Success Model — Strategy 6B

The Eagle River Nature Center of Chugach State Park, near Anchorage, Alaska, has connected locals and tourists to nature through education and service since its opening in 1995. The center hosts a variety of public programs, including workshops, guided hikes, and targeted events for toddlers, teens, and senior citizens. Schools partner with the center to provide nature lessons tailored to individual classes. Additionally, backcountry cabins are available for rent at economical prices to encourage an equitable access to nature. The Eagle River Nature Center reinvigorated Chugach State Park and attracted worldwide visitors by emphasizing natural history education for all.10 Figure 76. Chugach State Park.

55

PennDesign Planning Workshop 2017 Actions

Goal 1

Goal 2

Goal 3

56

Minimize combined sewerstorm system discharges by using grey infrastructure to capture and control flows.

Minimize sewage treatment plant (STP) outfalls by upgrading the capacity of the wastewater treatment plant.

Reduce erosion and sedimentation caused by stormwater runoff by increasing vegetative groundcover and planting trees.

Remediate acid mine drainage by installing an active treatment plant for the Old Forge Borehole and Duryea Breach.

Restore stream corridors by removing concrete channels.

Create and conserve open space in the floodplain.

Charge a stormwater utility fee based on a property's impervious cover.

Launch an alley greening initiative that uses permeable pavements, bioswales, and native planting to both capture and infiltrate stormwater.

Create a new zoning category to differentiate land available for development from open space for preservation.

Sell publicly-owned land along the riverfront at a discounted price to encourage development.

Create a riverfront Transfer of Development Rights program to protect endangered parcels and densify elsewhere.

Create a Sustainable Development Overlay District that incentivizes green building development and includes a tax assessment to fund river cleanup projects.

Lead Actor

Relative Cost

Time Frame

$$$

5 years

Pennsylvania American Water

$$$

5-10 years

Scranton Department of Public Works, Scranton OECD

$

1-2 years

EP-CAMR, Scranton City Council

$$$

10 years

Scranton Bureau of Engineering

$$$

5 years

$

1-2 years

$

2 years

Scranton OECD, Scranton Department of Public Works

$$

5 years

Scranton Department of Licensing, Inspections, & Permits, Scranton OECD

$

1 year

Scranton OECD, Lackawanna County Land Bank, Scranton Treasury Department

$

2-5 years

Scranton Department of Licensing, Inspections, & Permits, Scranton City Council

$

1-2 years

Scranton City Council, Scranton OECD, Scranton Department of Licensing, Inspections, & Permits

$

10-15 years

Pennsylvania American Water, Scranton Bureau of City Planning, Scranton OECD

Scranton OECD, Scranton Department of Parks & Recreation Scranton Treasury Department, Scranton Department of Licensing, Inspections, & Permits

CHAPTER 4: GOALS AND STRATEGIES Actions

Goal 4

Implement tourism initiatives that build on the city’s natural and cultural heritage to connect tourist attractions to its water resources.

Construct boat launches and piers for kayaking, fishing, and other riverrelated recreational activities.

Collect and sell minerals from mines.

Goal 5

Establish a business incubator program to retain university students postgraduation and catalyze sustainable business growth.

Remove concrete channels to reconnect water systems with their surrounding landscape.

Improve the planning and design of bicycle and pedestrian infrastructure to expand waterfront access for residents and visitors.

Enhance regional connectivity and collaboration through an extended transportation network, a complete river trail, and a valley-wide parkway system.

Goal 6

Improve the amenities of public spaces to provide first-class venues for recreational, cultural, and civic events.

Sponsor a Lackawanna River Conservation Center that hosts environmental organizations, research labs, and educational events.

Encourage social, cultural, and civic events and programs along the waterfronts.

Lead Actor

Relative Cost

Time Frame

$

2 years

$$

1 years

$$

2 years

Scranton OECD

$$

5-10 years

Scranton Bureau of Engineering

$$$

5 years

$$

5 years

$$$

5-10 years

Scranton Department of Parks & Recreation, Scranton OECD

$$

5 years

Scranton OECD, Lackawanna River Conservation Association

$$$

10 years

Scranton OECD, Lackawanna River Conservation Association

$

2-5 years

Lackawanna County Convention and Visitors Bureau, Lackawanna River Conservation Association Scranton OECD, Lackawanna River Conservation Association, Scranton Department of Parks & Recreation EP-CAMR, Scranton OECD, Scranton Treasury Department

Scranton OECD, Scranton Department of Parks & Recreation, Lackawanna Valley Heritage Authority, Scranton Department of Public Works Scranton OECD, Scranton Department of Public Works, County of Lackawanna Transit System, Scranton Department of Parks & Recreation, Lackawanna Valley Heritage Authority,

57

Figure 77. Typical commercial structure in South Side, Scranton.

5. South Side Neighborhood Plan

PennDesign Planning Workshop 2017

South Side

Roaring Brook 0

0.5

1

2

Miles

Scranton Expy

Pittston Ave

South Side Sports Complex

Cedar Ave

Fritzpatrick Field

Stafford Ave

Birch St

60

1” = 500’

Birney Ave

wanna Riv Lacka er

Palm St

Figure 78. Base map of South Scranton.

Connell Park

CHAPTER 5: NEIGHBORHOOD PLAN

Why South Side?

To show how these strategies will have a tangible impact on Scranton, this chapter illustrates the outcome of this plan as implemented in South Side. South Side is a large neighborhood in the southeast of Scranton. It is bordered by the Lackawanna River to the west, active rail lines and the Scranton Expressway to the north, I–81 to the east, and Davis Street to the south. South Side is 1.8 square miles large, covering about 7% of total land area in the city.

The northern part of the neighborhood is adjacent to the downtown business and commercial district as well as Steamtown National Historic Site, the University of Scranton, and Nay Aug Park. Like most of Scranton, South Side is predominantly residential with detached, single–family houses occupying most of the neighborhood’s land.

However, South Side’s urban form is unique due to an extensive alley system within most blocks that equals 20 miles in length, or approximately 6% of the total land area in the neighborhood.

Cedar Avenue (U.S. Route 11) consists of neighborhood commercial uses and is a major transportation corridor. Commercial uses are also clustered around S. Washington Avenue to the west and Meadow Avenue to the northeast, though these tend to be strip malls occupied by chain retailers, rather than small businesses.

More industrial and institutional land uses are located north of the confluence of the Lackawanna River and Roaring Brook, between the predominantly residential part of South Side and downtown.

These include the Scranton Army Ammunition Plant, the Scranton Police headquarters, and some warehouse and distribution facilities.

In terms of open space and recreation, the South Side Sports Complex, the Iron Furnaces, and Connell Park are all located in South Side. However, these public spaces are lacking in amenities for residents and visitors and are not actively programmed. A partially culverted creek, Mountain Lake Run, cuts through the center of the neighborhood. In addition, the neighborhood includes several elementary schools and religious institutions.

Figure 79. Cedar Avenue is the main commercial corridor in South Side.

Figure 80. Neighborhood businesses in South Side.

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Figure 81. Confluence of the Lackawanna River and Meadow Lake Run. 62

CHAPTER 5: NEIGHBORHOOD PLAN South Side is an ideal area of focus to illustrate the outcomes of this plan because it will benefit from a majority of the proposed strategies. Approximately 30% (23 out of 80) of the Combined Sewer Overflow locations are located in South Side. In addition, I–81 and the Scranton Expressway are significant contributors to stormwater runoff in Roaring Brook, but there are currently no controls on these point sources of pollution. A large section of the Roaring Brook, from Cedar Avenue to the confluence of the Lackawanna River, is channelized and a large section of the eastern bank of the Lackawanna River has a levee. While most of South Side is located outside of the 100–year floodplain, the neighborhood’s topography presents significant challenges in managing stormwater runoff.

Without significant employment centers or a diversity of economic activity, South Side is a predominantly residential area. The neighborhood has large vacant parcels in the southeast corner, which are not currently zoned for development. Commercial space near the Lackawanna River is primarily organized in strip mall–style developments with large surface parking lots. These developments contribute to water pollution through stormwater runoff. With significant low–density development through the neighborhood and larger vacant parcels, there is concern that future development may come in the form of sprawl–style growth. The neighborhood also has a small number of industrial buildings that could be repurposed for other uses.

Figure 82. Churches are a common feature of the landscape in South Side.

Figure 83. Typical home in South Side.

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Future South Side Because much of the neighborhood is disconnected from its water systems, there is an opportunity to remove the existing physical infrastructure to restore natural systems. The Lackawanna River Heritage Trail runs along the west side of the Lackawanna River throughout the length of South Side, however there are only two roads that connect South Side to the western side of the river, so there is an opportunity to improve pedestrian and bike access through strategically placed bridges and bike lanes. There is also an opportunity to add a spur of the trail along the Roaring Brook that would connect the existing trail along the Lackawanna River to Nay Aug Park on the east side of the city.

By designating an overlay zone in the area around the confluence of the Lackawanna River and the Roaring Brook, Scranton will focus infill development in an area in proximity to the downtown commercial center. This zone would anchor river–related activities and bridge the gap between the northern part of Scranton and South Side. This development zone would benefit from density bonuses that would be provided by the creation of the Transfer of Development Rights program. Taking the future development opportunities from the larger vacant lots in South Side and

New Amenities Stabilized River Bed

New Boat Launch

64

Figure 84. Strategic capital improvements, such as the installation of boat ramps, will allow people to use the Lackawanna River for recreation.

CHAPTER 5: NEIGHBORHOOD PLAN

1C

2A

2B

3B

3C

3D

5A

5B

5C

6A

6B

6C

4B

4D

4A

Sustainable Development Overlay Zone

5B

6A

Extending the Bike Trail

This Overlay District will be a large center of new economic development in South Side, using density bonuses from the Transfer of Development Rights program to build sustainable mixed-use buildings. We will incorporate the riverfront area into city life by extending the street grid.

By including an existing bus stop in the development zone, access to this new area will be fully multi-modal. The concrete channels that line the rivers near the confluence will be removed to naturalize the riverbanks, allowing for easier access for all.

This district will house the new Lackawanna River Conservation Center and water-focused business incubator. By siting the zone in this spot, life near the confluence of the two rivers will be revitalized. The Overlay District will be connected to a tax assessment in the area to help fund river-related cleanup and conservation.

4A

5B

5C

Rerouting Bus Route Adding New Bike Lanes By simplifying bus routes to bring residents and visitors to the river system and expanding bike lanes throughout South Side, Scranton residents will be more easily able to move through them.

By creating a new branch of the river trail for cyclists and pedestrians, residents of Scranton can access the waterfront along the Lackawanna River and Roaring Brook, all the way to Nay Aug Park.

Conservation Center

Business Incubator

1A

2A

5A

1A

Removing Concrete Channel Wall At the southern end of the development overlay district, where Mountain Lake Run meets the Lackawanna River, we would

remove the concrete channel walls to naturalize the river banks.

5B

5C

1C

2C

2D

Green Alleys This initiative is aimed at

Parking Facility

the more than 20 miles of alleys in South Side.

By reducing this large amount of impervious surface area, we can better control the amount of stormwater entering the sewer system.

6A

River Trail Connection Adding a boat ramp at this southern point allows for easy removal of kayaks and other boats from the Lackawanna River. Connecting the boat ramp and parking area with the bike lanes and bike trail on the west side of the river allows for full connectivity for bike riders in the area and easier connection with the river system.

3C

TDR Sending Zone This vacant land will be rezoned as conservation land to be protected from development.

Transferring the future development rights from this area to the Sustainable Development Overlay District will allow for denser

development

where appropriate and greater green space on the edge of the neighborhood.

1� = 500’

Figure 85. Proposed nterventions in South Side.

65

PennDesign Planning Workshop 2017

Lackawanna River Conservation Center Lackawanna Transit Center

Industrial incubator space

Mixed-use building

Figure 86. Detail of new sustainable development overlay zone.

moving development rights to the new Sustainable Development Overlay Zone would conserve open space on the outskirts of the neighborhood.

wanna Riv Lacka er

The Sustainable Development Overlay Zone is also ideally located to improve the area south of the confluence to better take advantage of the riverfront area and mitigate pollutants entering the water.

Using the industrial space south of the confluence and the vacant space north of the confluence will make this important water area more easily accessible to South Side residents and center new water-related industries in waterfront parcels. As a result of these interventions, South Side will be reconnected to its water resources.

It will demonstrate to the rest of Scranton how these interconnected strategies can be used to increase ecosystem services, economic development, and quality of life.

66

CHAPTER 5: NEIGHBORHOOD PLAN Conservation Center Additional Open Space New Bridge Increased Building Area New Bridge

Removed Surface Parking Lot Figure 87. Sustainable development at the confluence of the Roaring Brook and the Lackawanna River will enhance the natural environment and allow public access.

New Bridge River Recreation

Sustainable Development Overlay Zone

Enhanced Bike Trail

Figure 88. The Lackawanna River will be a destination for recreation and sustainable development that serves residents, attracts employers, and draws tourists.

67

PennDesign Planning Workshop 2017 A A’

B

B’

A-A' 4B

5B

Roaring Brook Bike Trail Extension

5C

6A

2B

3B

B-B' 1C

2A

Confluence Connection 3C

3D

4A

4B

4D

5A

5B

5C

6A

Figure 89. Sections of proposed interventions in South Side.

68

6B

6C

CHAPTER 5: NEIGHBORHOOD PLAN

C

C-C' 1C

2A

1C

D

D’

Sustainable Development Overlay Zone 2B

2D

D-D' 1A

C’

2C

3B

3C

3D

4B

4D

5A

5B

5C

6A

6B

6C

Green Alleys 2D

69

Figure 90. Concrete channels and flood controls at Lindy Creek, in West Scranton.

6. Stormwater Management Program

PennDesign Planning Workshop 2017

Whats the Issue?

Figure 91. Scranton's combined sewer system (CSS) negatively impacts its water quality.

Figure 92. Untreated sanitary sewage and stormwater are discharged directly into water bodies.

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Like many old cities, Scranton has a combined sewer system (CSS), where one pipe collects both stormwater and sanitary sewage, and a municipal separate storm sewer system (MS4). Normally, both the sanitary sewage and the stormwater are treated before being discharged into water bodies. However, during storm events when the volume of stormwater is much higher than usual and exceeds the capacity of the wastewater treatment plant, both the sanitary sewage and the stormwater bypasses the treatment plant and is discharged directly into water bodies at combined sewer outfall locations.1 This issue led to a mandate in 2012 from the Environmental Protection Agency (EPA) to improve water quality.

The cost of these improvements over 25 years was estimated to be approximately $140 million.2 However, Scranton does not have a formal strategy to meet the EPA's standards under the Clean Water Act. In fact, in December 2016, the city sold the Scranton Sewer Authority (SSA) to Pennsylvania American Water for $195 million in order to use the proceeds to finance its fiscal recovery through Act 47, which pushed the burden onto a private utility. Previously, the Scranton Sewer Authority owned all of the sewer–system infrastructure, which included both the CSS and MS4 segments; although the city was responsible for assisting with the maintenance of the MS4 segments.3 However, with the sale of the Authority, the city is now wholly responsible for stormwater management in the MS4 areas. The city is anticipating a windfall of $83 million from the sale, but the Mayor and Council have not decided on how this money will be spent.4 In order to meet the EPA mandate, Scranton will have to spend money to improve its stormwater management program. The question is not about whether or not the City should intervene but how. Our stormwater management program will use some of the proceeds from the sale of the SSA to fund the creation of a public stormwater authority. The authority will be responsible for implementing a stormwater utility fee and a green infrastructure program. This single intervention will work towards solving multiple issues while increasing water quality and reconnecting people with their environment. Doing so will create multiple non–market benefits for Scranton’s residents and will create a culture of environmental stewardship.

CHAPTER 6: PROGRAM PLAN Residents will benefit from increased water security, decreased exposure to flooding, decreased peak heat temperatures, increased ecosystem services, and increased recreational access.

The City will benefit from meeting its obligations under the Clean Water Act, reducing the amount of money it spends on stormwater management, and increasing residents' quality of life.

The environment will benefit from restoring a natural balance of ecosystem services.

Disconnect Between Residents and Nature

Natural Resources Protection

Scranton has historically been defined by water, but more recently has built walls and gates to protect itself from flooding that occurs in the Lackawanna River and its tributary streams.

EPA Mandate

Stormwater Management Program

Scranton does not have a formal strategy to meet the EPA's standards under the Clean Water Act, including how to manage its stormwater system after the sale of the SSA.

Scranton Sewer Authority Sale Scranton is anticipating a windfall of $83 million from the sale of the SSA to Pennsylvania American Water, but the Mayor and Council have not yet decided on how this money will be spent.

Scranton's violations to the Clean Water Act will require the city to spend approximately $140 million over 25 years to improve water quality.

Act 47

Scranton is trying to recover from its designation as a "financially distressed" city by monetizing its public assets.

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Program Details The stormwater utility fee is a new fee that all Scranton property owners will pay for city–provided stormwater management services in the way that they pay for gas, electricity, water, and sewage.

Currently, property owners are not charged for their stormwater runoff, even though it costs the city money to provide this service.

The amount of stormwater runoff from a given property can be measured by its impervious surface area, which is essentially the amount of hard surfaces like roofs, driveways, streets, and sidewalks that don't allow water to absorb into the ground.

Figure 93. Scranton's topography contributes to its stormwater runoff issue.

Figure 94. 25% of land area in Scranton is impervious surface.

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The idea behind the fee is twofold: it attempts to incentivize property owners to reduce the impervious surface area on their properties while appropriately charging them for the runoff they generate.

With a stormwater utility fee, owners are charged for the amount of impervious surface area on their property; this means that properties with more impervious surface coverage will be charged more.

However, properties that utilize stormwater management features that reduce stormwater runoff and improve water quality in line with Best Management Practices will receive a credit towards their bill.

These features include rain barrels, rain gardens, porous/permeable pavement, and green roofs. Property owners can also apply for grant funding from the city that will help cover the expense of installing green infrastructure.

All non–government owned properties will be charged a fee based on the impervious surface area of the parcel. Remaining properties will be categorized as residential (generally owner–occupied, single–family residential) or non–residential. We will use a tiered billing structure that groups properties based on their impervious surface area. This will allow us to more accurately bill property owners for their actual impervious surface, while allowing for some calculation errors. Non–residential property owners will be charged a slightly higher fee than residential property owners, partly because they should lead by example and partly because they’re more likely to have surface parking lots and impervious surface to mitigate.

Low-income property owners will be given a general discount off their fee and will also be given priority in evaluating request for grant funding. The city will update parcel information every two years, but property owners may request an inspection between updates.

CHAPTER 6: PROGRAM PLAN

South Side Example

Before Gross Area: 5,530 sq.ft.

Impervious Area: 2,650 sq.ft.

17%

Impervious Surface Reduction

After Gross Area: 5,530 sq.ft.

Impervious Area: 2,200 sq.ft.

Grant Incentives: $25 Rain Barrel $150 Green Roof $200 Permeable Paving $250 Rain Garden

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PennDesign Planning Workshop 2017 Credits will be offered for both residential and non–residential property owners but will be capped at 75% of their calculated fee. The city will partner with non–profit organizations, such as the Scranton Area Community Foundation and the Lackawanna River Conservation Association, to offer free site assessment and best management practices design assistance as well as a grant program to fund green infrastructure implementation.

Revenue from the stormwater utility fee will fund the operation, maintenance, and rehabilitation of stormwater drainage systems in Scranton and will also provide funding to pay for data collection, research, and future capital improvement projects. Equally important, it will provide a vehicle for the city to educate residents about stormwater management and watershed planning. As a result, Scrantonians will be empowered to make decisions that are sensitive to the natural resources that support their environment.5

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1

The residents will benefit from increased water security, decreased exposure to flooding, decreased peak heat temperatures, increased ecosystem services, and increased recreational access.

2

The city will benefit from meeting its obligations under the Clean Water Act, reducing the amount of money it spends on stormwater management, and increasing residents' quality of life.

3

The environment will benefit from restoring a natural balance of ecosystem services.

CHAPTER 6: PROGRAM PLAN

Figure 95. Rendering of a home in Scranton with green infrastructure improvements.

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Figure 96.The City sign in downtown Figure 66. Electric Typical commercial structure inScranton.

South Side Scranton.

7. End Notes

PennDesign Planning Workshop 2017

Conclusion Planning by Water is a visionary set of strategies for Scranton to leverage its strengths, overcome its deficiencies, take advantage of its opportunities, and work within its constraints as it looks toward the future. This plan recognizes the significance of water to the city and proposes that Scranton utilize this resource to its advantage.

By effectively managing stormwater and conserving its natural resources, Scranton will improve its water quality for the benefit of ecosystems as well as residents. By fostering a water–oriented innovation district in a newly developed mixed–use waterfront zone, a diverse creative class will cluster and grow. By reconnecting citizens with their hydro–heritage, the city will ensure that present and future Scrantonians will benefit from a higher quality of life.

Despite great challenges, we believe that the city is well–positioned to achieve a balance between its environmental, economic, and social systems. We hope that this plan acts as a starting point to inspire residents and city officials to not only imagine a more sustainable Scranton, but to work towards creating it as well.

Connection to Existing Neighborhood

Restored Riparian Corridor

Enhanced Public Access

Removed Concrete Channel

Figure 97. By reducing flood risk using green infrastructure, Scranton can remove the concrete channels along its streams, improving stream health and public access.

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CHAPTER 7: CONCLUSION

About the Authors from left to right:

Nate Klass, MCP 2018 — Public/Private Development Yipeng Peng, MCP/MUSA 2019 — Public/Private Development Sarah Scott, MCP/MSHP 2019. Land Use and Environmental Planning Jiajing Mei, MCP 2018 — Urban Design Meiqing Li, MCP 2018 — Sustainable Transportation & Infrastructure Planning Brett Davis, MCP 2018 ­­— Community and Economic Development

Figure 98. Planning by Water authors with instructor Andy Dawson.

Acknowledgements

We have many people to thank for their assistance in making this workshop a success. First of all, we’d like to thank Bernie McGurl, Executive Director of the Lackawanna River Conservation Association; Natalie Gelb, former Executive Director of the Lackawanna Heritage Valley Authority; Don King, Scranton City Planner; Linda Aebli, Executive Director of the Scranton Office of Economic and Community Development; and Mary Ann Moran–Savakinus, Director of the Lackawanna Historical Society for speaking with us about Scranton and the incredible work they are doing in and around the city. We’d also like to thank several members of the Department of City and Regional Planning at PennDesign, particularly Professor and Chair John Landis and Assistant Professor Allison Lassiter; Administrative Assistant Roslynne Carter and Department Coordinator Kate Daniel; and the other Workshop instructors and classmates. Last, but certainly not least, we’d like to thank our fearless leader, Andy Dawson, whose valuable feedback, support, and calm demeanor guided us through this project. Thank you, Andy, for helping us find our way through this plan.

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Sources

Chapter 1 - Introduction

1. Miele, Carol. “The Knox Coal Mine Disaster: A Story of Corruption and Greed.” The Huffington Post,

2016.

2. Piccini, Sarah. The Story of Scranton, 2016.

Chapter 2 - Existing Conditions

1. Combined Sewer Overflow Long Term Control Plan. The Sewer Authority of the City of Scranton, 2012.

2. Combined Sewer Overflow Long Term Control Plan. The Sewer Authority of the City of Scranton, 2012.

3. Nanda, Sushila. “Scranton Sewer Authority — Scranton — Pennsylvania Settlement.” United States

Environmental Protection Agency, 2012.

4. Combined Sewer Overflow Long Term Control Plan. The Sewer Authority of the City of Scranton, 2012.

5. Stormwater Management (MS4 & CSO) System Review. The City of Scranton & Scranton Sewer

Authority, 2013.

6. Singleton, David. “More questions after Scranton Sewer Authority sale.” Scranton Times-Tribune, 2017.

7. Stormwater Management (MS4 & CSO) System Review. The City of Scranton & Scranton Sewer

Authority, 2013.

8. Keystone Pure Water Acid Mine Remediation Case Study.

9. Census 2010, United States Census Bureau.

10. Census 2010, United States Census Bureau.

11. Census 2010, United States Census Bureau.

12. Census 2010, United States Census Bureau.

13. American Community Survey 2010 (5-Year Estimates), United States Census Bureau.

14. American Community Survey 2010 (5-Year Estimates), United States Census Bureau.

15. American Community Survey 2010 (5-Year Estimates), United States Census Bureau.

16. U.S. Bureau of Labor Statistics County Business Patterns.

17. U.S. Bureau of Labor Statistics County Business Patterns.

18. American Community Survey 2010 (5-Year Estimates), United States Census Bureau.

19. The University of Scranton; GCSOM; Johnson College of Technology; Lackawanna College;

Maywood University; Fortis; Penn State Worthington Scranton.

20. Pennsylvania Transit Consolidation Report. Pennsylvania Department of Transportation, 2012.

21. Bike Scranton.

22. Greenways & Trails Lackawanna Heritage Valley.

23. American Community Survey 2010 (5-Year Estimates), United States Census Bureau.

Chapter 4 - Goals and Strategies

1. Keystone Pure Water Acid Mine Remediation Case Study.

2. L.R. Kimball Architecture, Engineering, Communications Technology.

3. Scranton Office of Economic and Community Development 4. The Trust for Public Land.

5. Scranton Office of Economic and Community Development.

6. New Jersey Future; Calvert County Forest Conservation Transferable Rights Program.

7. Lietz, Kelly. “Milwaukee-Based Incubator Brews Up Innovations with an Eye on Global Water

Challenges.” Flow Control Network, 2014.

8. Lackawanna Heritage Valley Association.

9. Schuylkill River Trail; Schuylkill River National and State Heritage Area.

10. Chugiak Eagle River, Points of Interest.

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CHAPTER 7: CONCLUSION

Chapter 6 - Stormwater Management Plan

1. Stormwater Management (MS4 & CSO) System Review. The City of Scranton & Scranton Sewer

Authority, 2013.

2. Combined Sewer Overflow Long Term Control Plan. The Sewer Authority of the City of Scranton, 2012.

3. Lockwood, Jim. “Scranton to Evaluate Stormwater Management Options.” Scranton Times-Tribune,

2017.

4. Singleton, David. “More questions after Scranton Sewer Authority sale.” Scranton Times-Tribune, 2017.

5. Note: A key source of information used to construct this plan was the “2014 Stormwater Utility Survey” published by Black & Veatch.

Figures List

All figures, except those noted below, were made by the authors:

Figure 1: The Lackawanna Valley: https://images.nga.gov/en/search/do_quick_search.

html?q=%221945.4.1%22.

Figure 6: https://www.pinterest.com/fop29/rail-yards/.

Figure 7: http://ahfdn.org/anthracite-coal-industry/.

Figure 8: https://www.pinterest.com/gatemom17/postcards/.

Figure 9: http://falmanac.c.blog-spot.com/2010/10/anthracite-coal-strike-of-1902.html.

Figure 12: The City of Scranton and Scranton Sewer Authority Stormwater Management System Review.

Figure 56: http://thetimes-tribune.com/news/lackawanna-heritage-valley-fulfills-mission-1.2126347.

Figure 63: http://www.lrkimball.com/uploads/file/6a6d87ed66864b4b8039048c3438f9d0/CE.E52.2010-03.

CS004.EBG%20WW%20Treatment%20Plant.pdf.

Figure 65: https://www.tpl.org/sites/default/files/files_upload/ca-green-alley-avalon-green-alleys-demo- project.pdf.

Figure 68: State of New Jersey State Agriculture Development Committee. http://www.nj.gov/

agriculture/sadc/tdr/.

Figure 69: http://eqstl.com/build-business-incubator-t-rex-shows-us-way/.

Figure 70: Reed Street Yards. https://thewatercouncil.com/about-us/facilities/.

FIgure 71: http://www.scranton.edu/about/community-relations/images/Lackawanna_HeritageTrailo .jpg.

Figure 73: The Philly Voice. http://media.phillyvoice.com/media/images/15895654137_ea321ce0ea_

o.2e16d0ba.fill-128x128.jpg.

Figure 74: http://www.pointruston.com/category/point-ruston-events/.

Figure 75: https://natureconservationlewisham.co.uk/2011/10/26/ladywell-fields-river-clean-up/.

Figure 76: Chugiak Eagle River Chamber of Commerce. http://cer.org/viewPage.php?ID=Points_of_ Interest.

Figure 98: Photo taken by Robert I Romo.

Map Data Sources PASDA - Pennsylvania Spatial Data Access.

TIGER/Line Shapefiles, US Census Bureau.

Googe Maps.

The City of Scranton Office of Economic and Community Development.

The American Community Survey, US Census Bureau.

The US Census Bureau.

Onthemap.com. walkscore.com.

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