Three neighboring communities completed the first regional comprehensive plan in Lancaster County in 1993: Manheim Borough, Penn Township and Rapho Township. Twenty-one action plan items were developed as a result of planning process and described activity to be undertaken over the five years following plan adoption. A commitment was made by the three municipalities to reunite at the end of the five-year period to examine the progress, which was made and to explore new challenges. The State of the Region Report highlights the region’s changes and accomplishments and lists new challenges to be considered as a part of the next generation of strategic planning.

Manheim Central School District joins the three original planning partners in the strategic planning process. A steering committee, comprised of representatives from each partner, is leading the planning effort, facilitated by the staff of the Lancaster County Planning Commission. Source material for this report represents information and ideas collected during steering committee meetings, key person interviews, municipal reviews and a series of four public focus group sessions. The appendix supports the findings of the report.

Early in the exploratory phase of the planning process, the steering committee committed itself to the discovery of five key issue areas impacting the region: land use, transportation, infrastructure, government administration and the economy. The State of the Region Report is written in the context of these issue areas; however, due to the overlapping nature of these issues in the previous plan, the list has been compressed to three areas of concern: land use / the economy, transportation, and infrastructure / government administration. The report provides a common format for these discussions beginning with the 1993 plan, a listing of changes and accomplishments; including input from the steering committee and public focus groups; and ending with strategic challenges for the next five-years. The following assumptions help to define the focus for each area of concern.

Land use includes items related to the 1993 designation of future land use and changes which have occurred over the last five years. Economy relates to activities that would improve the region’s economic base or well being of the region’s residential and business communities.

Transportation relates to features of the transportation network, including all modes of transportation.

Infrastructure includes items relating to public utilities as well as community services and facilities, referred to as civic infrastructure. Government administration refers to processes led by government, grants administration and the development of rules and regulations (the rules and regulations pertinent to land use are discussed in the land use / economy section).

(Refer to Chapter V, Existing Land Use and Chapter X, Future Land Use Plan)

The 1993 Plan made a major impact on the future use of land in the Region. Numerous ideas were developed during the planning process relative to the location and use of land.

Growth Boundary Delineation: The most dramatic of these concepts was the delineation of the urban growth boundary (UGB) which is centered on Manheim Borough and Rapho Township’s Development Triangle. A village growth boundary (VGB) was delineated centered on the Village of Penryn. The Lancaster County Planning Commission tracks the progress of the region’s municipalities to direct growth and development to the UGB and the VGB. The 1998 Tracking Report revealed the following changes and accomplishments, which have occurred from 1994 through 1997.

Changes: The three municipalities developed 442 acres including 19.1 acres in Manheim Borough, 130.1 acres in Penn Township, and 232.0 acres in Rapho Township (19.6 acres of this development was accounted for in Lancaster County’s tracking report for the Donegal Area UGB). Land development activities in the UGB (48.19 total acres) included 30.9 acres of residential use, 8.89 acres devoted to commercial and 5.8 acres in industrial use. All other uses represented 2.6 acres. Ninety-seven homes were built inside the UGB, housing 324 persons compared to 127 dwellings located outside the UGB, accommodating approximately 410 persons.

Accomplishments: The philosophy behind the UGB and the VGB concept is to concentrate the highest density development within the growth areas. The average net density for residential development occurring within the UGB is 2.8 dwelling units per acre for development occurring between 1994 and 1996. This density increased for the year 1997 to 3.9 dwelling units per acre compared to the net density occurring outside the UGB, .5 dwelling units per acre for the years 1994 to 1996 and .9 units per acre for the year 1997. The higher density inside the UGB is a move in the right direction; however, falls short of the level of density generally accepted as desirable within a UGB (between 4 and 6 units per acre).

Challenges: The area outside of the UGB and the VGB continues to develop faster than the designated growth areas. In addition, the development within the UGB is consuming land faster than expected due to the occurrence of new development at lower densities than anticipated. The challenge for the region is to direct more concentrated growth within the designated growth areas.

Future Land Use Plan / Zoning Ordinance Update: Attached to UGB / VGB concept the 1993 Plan developed a future land use scenario designating the location of various land use classifications and making specific recommendations regarding the development within these classifications. The Region’s municipalities chose to concurrently change their respective zoning ordinances consistent with the recommendations of the planning document. The following lists describe the changes and accomplishments, which have occurred over the past five years.

Changes: The assessment is based on the various land use classification: agriculture, residential, commercial, industrial, quarry and conservation.

Agriculture, residential, quarry and conservation: No substantial changes since the adoption of the updated ordinances.

Commercial: Changes have occurred in two areas since 1993: expansion of the Manheim Auto Auction (Penn Township) and land development activities in the area of the Turnpike Interchange area.

The Penn Township 1993 Zoning Ordinance placed the Manheim Auction area within the Highway Commercial Zone in an attempt to provide uses that serve local residents as well as motorists associated with the Manheim Auto Auction. Subsequent expansion of the Auction has led to the creation of a new Limited Commercial Zone adjacent to the Highway Commercial Zone. The new zoning designation regulations recognizes many uses as conditional, which requires the applicant to meet special conditions and present the plan before the Supervisors and the public prior to obtaining a zoning permit. In addition, the ordinance addresses impervious surface and controls the reuse of currently utilized areas.

The Turnpike Interchange area is experiencing growth and development with the introduction of a new hotel (Willow Valley Development), fast food and full-service restaurants, and a convenience store. Public sewer is being expanded to the Renaissance Faire and new traffic controls are slated for the Willow Valley Development and the Turnpike.

Industrial: The development of industrial land in both Manheim Borough and Penn Township has been impacted by changes which have occurred over the past five-years.

Significant change has occurred in the Borough’s industrial zone. These changes include: the reuse of the vacant Agway site by Reifen Rubber, the construction of the Fenner Drive Plant to the rear of Bond Caster and Wheel, the planned expansion of Harrington Hoists and Cranes, relocation of Jack’s Games from the Raymark site, the expansion of Fenner Drive in a vacated building. In addition to these construction activities, the Borough has lost a significant employer: Raymark / Universal Friction Composites. Legal issues and presence of hazardous materials jeopardizes the immediate reuse of the Raymark site.

The 1993 Plan highlighted the need for public utilities and a bypass for the construction of a large-scale heavy industrial area in Penn Township. The lack of a bypass for the area continues to be the major obstacle to development. The two major impediments to the growth of the area, the 96 inch restriction on truck trailers, which limits the development of truck-related industry and the diversion of traffic to Routes 283 and 501, would be removed with the bypass construction.

Other changes: Rapho Township’s Development Triangle incorporates a wide variety of land uses. Over the last five years interest in the development of the triangle has increased. A large portion of the Triangle area was rezoned for industrial uses. A conglomerate, comprised of several developers, was established for the discussion of an overall plan, which encompasses approximately one-third of the triangle area. The conglomerate is proposing an industrial park for the eastern portion of the Development Triangle. Plans for residential development for the western portion have been approved. Rapho Township has negotiated with Mount Joy Borough for the acquisition of public sewer and water for the area.

Accomplishments: A review of the zoning map reveals that the future land use plan and the municipal zoning map designations are consistent, with the exception that the Rapho Triangle Development land use configuration is somewhat different than planned; however, it contains the same mix of uses originally planned for the area. Specific recommendations regarding land use types have been addressed in the region’s zoning ordinances.

Agriculture (Penn and Rapho townships): Adopted effective agriculture zoning which provides for limited residential development based on specific criteria, farm-related businesses with limitations, and intensive agriculture activities either as a special exception or conditional use.

Residential: Adopted updated zoning ordinances which provide for the following: a balanced opportunity for housing of all types and costs around existing neighborhoods with similar density and regulations for the location and conduct of accessory businesses (Borough).

Commercial: The updated ordinances have created a wide variety of commercial districts for the region as recommended in the 1993 Plan, including recommendations for commercial districts oriented to neighborhoods, the community-at-large, interchanges, highways, the central business district and recommendations for the conversion of buildings to offices and apartments.

Industrial: The major accomplishment is an economic development initiative, the creation of a regional economic development corporation (EDC). The EDC recently submitted an application for a Keystone Opportunity Zone designation for the Raymark tract. The Borough is in the process of completing a Planned Industrial Concept. Further work on the concept may be a result of the Region’s Strategic Plan Update.

Challenges: Other recommendations are still on the table for consideration.

Agriculture (Penn and Rapho townships): The concept of transfer of development rights (TDR) and other incentive bonuses for preserving agriculture lands has not been embraced by either community since these transfers have not been shown to be a primary means for agricultural preservation in Lancaster County. A challenge remains for the region to direct growth away from agricultural areas and into the Urban Growth Boundary.

Residential: The concept of clustering appears in the three ordinances. The most complicated clustering concept is written in Rapho’s ordinance with the requirement of a variety of residential and non-residential types for the development of a village cluster. The least complicated clustering concept appears in Penn Township’s residential cluster regulations. The concepts either have been unused or used with little success. The challenge for the region is to allow open space type subdivisions to occur where appropriate due to environmental considerations such as wetlands, steep slopes and greenways.

Commercial: A major challenge in the area concerns large-scale commercial expansions. The region must find a way to deal with these expansions while considering both their costs and benefits. Assessments should be conducted that address impacts on roadway infrastructure (traffic and safety), impacts on the environment (groundwater recharge area and water quality), impacts on other land uses and industry (support commercial, residential and farming activities), and impacts on the economic base (taxes, employment, and flow of cash to the area).

Industrial: The industrial challenge remains the same as in the 1993 Plan. Traffic congestion in the area is one impediment to continued industrial development in the region. The region should continue to move the concept of the Manheim Bypass forward the next stage of the development process.

The 1993 Plan recognized the need to centralize a "recon" center in a controlled setting thus resolving the development of these centers in many sectors of the community. This challenge still remains an unresolved issue as recon shops continued to be approved for various locations.

Rapho Development Triangle: A process has been established for Rapho Township to play a leading role with the developers of the Triangle. The challenge is for the Township to keep pace with the development of adequate infrastructures and services to meet the needs of new development.

Central Business District Improvements: The 1993 Plan recommended the revitalization of Main Street including the promotion of pedestrian movements, the creation of an Historic Architectural Review Board (HARB) and development of main street guidelines.

Changes: The changes that have occurred since 1993 are reflected in organizational and ordinance accomplishments, although no main street guidelines have been developed.

Accomplishments: Actions have been taken regarding the preservation and appearance of buildings, elimination of density pressures, and restriction on conversion of structures into apartments based on building area and location criteria.

Significant progress has been made regarding the creation of a Historic District in the Borough. In October 1993, the Manheim Borough Historic Advisory Committee was established. A draft Historic Preservation Overlay Zone Ordinance and draft historic guidelines are expected to be adopted in 1999. An eligible National Register District was determined and mapped.

Another accomplishment with the potential to impact the main street area is the development of the economic development corporation. The central business district (main street area) has the potential to be a significant generator of local service and small start-up (niche) businesses. The local EDC’s involvement may assist in developing strategies for the marketing and promotion of this core business area.

Challenges: The Borough has made significant progress in meeting the actions proposed in 1993. The challenge is to determine if other guidelines are needed that would further enhance the Main Street area.

Other Strategic Land Use Challenges: The regional steering committee worked with the public to uncover assets (items needing to be preserved or enhanced), issues (concerns needing to be minimized, mitigated or eliminated) and expectations for the planning process. The focus group process led to the identification of current challenges facing the regional community.

Use of Land for the Auto Auction: Adding to the conclusions from the previous discussion, the challenge focuses on the rate of expansion, the amount of land being used for auto storage and the discovery of alternatives to the outward expansion on new properties, such as the potential to go up instead of out. The Steering Committee adds the challenge: Establish a process that would determine the ultimate land area for the Auction.

Use of Land for Community Services: The challenge is focused on recreation and education services. Concerns listed for educational facilities included travel time to facilities for those individuals living in more remote locations of the region (Rapho Township Development Triangle and beyond) and class-size in elementary schools. The major challenge for the region is the location of services. Similarly, the recreation challenge was the need to locate additional recreation facilities including a community/recreation center.

Use of Land for Business and Industry: The public challenge regarding business and industry was to increase the number and diversity of employment opportunities through the revitalization of existing industrial areas and vacant buildings and the development of a diverse small business park. The challenge is for the region to continue efforts at providing incentives for the revitalization of existing area while encouraging development of new industry. The steering committee challenged the region to continue to promote Manheim as the business center of the region and to include agriculture as an important sector of the business economy.

Prevent Sprawl: Even though the growth management plan has been in effect for the last five years, comments from the public demonstrate the understanding that more needs to be done to curb sprawl. Comments such as "development creeping in from other regions," "too much acreage (large plots) for housing" and "spot development" support the challenge that the region must guide development to the UGB/VGB and away from the agricultural areas. The Steering Committee also challenged the region to recognize that agricultural land outside of the UGB is fully developed land and not land open for new development. The region should also consider means to link to national efforts regarding livable communities and "growing greener" initiatives.

Preserve Community Character and Maintain Historic / Cultural Features: One of the most valued assets of the community as expressed in the focus group exercise was the character of the community. The public described the character in a variety of similar phrases, such as: "a gentle mix of rural and urban areas," "rural-suburban – town," "home-town feeling, feel close to neighbors, and "camaraderie of community, good community support all around." The preservation of community character takes more than actions from a land use perspective. Size, scale and land use mix plays an important role in maintaining the feel and sense of place. The other land use element that helps to preserve a community’s character is to maintain historic and cultural features. The challenge to be considered is to use the region’s plan to preserve and maintain the region’s sense of place and uniqueness.

(Refer to Chapter IX, Transportation)

The 1993 Action Plan included two transportation-related activities. In addition, the Regional Comprehensive Plan recommended other actions, which were not included in the Action Plan. Subsequent to Plan adoption the "PA Route 501/PA Route 72 Transportation and Land Use Corridor Study" was completed in December 1996. This study provided a more thorough analysis of the need for transportation improvements on selected State Routes.

Adoption of an Official Map: The major transportation action in the 1993 Plan was the recommendation to prepare and adopt an official map that protects the Manheim East Bypass and other road alignments. The action was based on recommendations taken from the "North-South Truck Routes Alternatives Study (June 1990)" and a transportation study conducted by HRG for Rapho Township.

Changes: No official map has been adopted for the Manheim East bypass (Manheim Relief Route); however, the 1996 Corridor Study did provide additional information regarding the clarification of the bypass and other transportation improvement concepts (see discussion of accomplishments in this section). With no official map in place, some of the original alignment concepts have been lost with the construction of the Mallard Pond development and school district recreation facilities.

The greatest need for the Manheim Borough area continues to be the need for traffic volume relief. At issue is not only the volume of traffic that goes through the Downtown but the type of traffic, in particular, the auto-carrier traffic. The volume and type is not conducive to a mercantile or professional-office setting for Downtown Manheim.

Accomplishments: With the impetus of an increasing interest in the Manheim Relief Route, evidenced by the State’s and County’s commitment to fund the Corridor Study, the official map was put on hold until engineering and environmental studies would identify more clearly the proposed corridor. The 1996 Study was a major accomplishment in helping to crystallize recommendations to improve the functioning of the PA Route 501/PA Route 72 Corridor. These recommendations included development of:

A five-mile, two-lane controlled access arterial as a designated new Route 72, the Manheim Relief Route.

Left-turn lane and shoulder improvements on Route 72.

Left-turn lane and shoulder improvements on Doe Run Road.

Left-turn lane and shoulder improvements on Route 772.

Curb radii improvements on Route 72.

The next step in the project development process would be to complete more detailed engineering studies. For the Manheim Relief Route, these studies include preliminary engineering and an environmental impact statement on proposed alternative alignments with the selection of an alignment for final engineering and development.

Rapho Township has taken action on the recommendations stated in the 1993 Plan and outlined by the previous HRG study by completing an Official Map for the Development Triangle. Although the map is not tied to an ordinance, the Township Planning Commission and Supervisors are utilizing this tool to plan and negotiate future intersection improvements with developers. The 1993 Plan, also suggested Rapho Township may consider the use of impact fees as set forth in the Pennsylvania Municipalities Planning Code (Act 247). Although many of the necessary studies for the development of this concept in the Development Triangle have been completed, the Township has not moved in the direction of instituting this concept.

Challenges: The Manheim Relief Route concept has obtained the State support required to take the project to the next step in the transportation planning process. The State has funded the study for the first three steps in the ten-step process (typically expressed as the needs analysis); however, the highway development process does not ensure that the roadway eventually will be built. The Region must maintain an active role and vigilance in order to continue the process to productive conclusion.

Compelling arguments towards the continuing advancement of the process will be to show the willingness of the Region (identified as municipalities affected including the Manheim Central Region, East Petersburg and Lititz boroughs and East Hempfield, Warwick and Manheim townships) to contribute to the process (a partnership project), the impact of the bypass on the Governor’s Growing Greener Initiative and the preservation of the integrity of the Region’s Urban Growth Boundaries. Perhaps a more imposing challenge deals with developing a strategy to protect the land for the future bypass from being lost to development before the studies are complete. (The steering committee emphasized the need to understand the impact that the roadway would have upon agricultural lands.)

The challenge for Rapho Township in the use of their Official Map will be the development of a reasonable negotiation process with the development community. This negotiation process may take a more formalized approach with the development of the impact fee system proposed in the 1993 Plan.

Rerouting Red Rose Transit Authority Buses: The 1993 Plan recommends the rerouting of the Manheim bus route to travel through the heart of Penn Township’s growth area. Likewise, rerouting of the Mount Joy–Elizabethtown route was suggested to extend to the Rapho Township Development Triangle.

Changes: Since the development of the plan no changes have occurred with the exception of the loss of the route from the area to Park City.

Accomplishments: With no changes came no accomplishments; however, the plan noted that these changes should occur in concert with growth and development in the two areas. Recent development has occurred in these areas but not of the magnitude to warrant the rerouting of services.

Challenges: The 1993 Plan noted the advantages of moving commuters from their automobiles to the transit system; however, this move is an extremely hard sell in the auto-oriented society. Providing useful linkages from the home base to places of employment and commerce is difficult given current land use patterns. For transit to be a major player in the region, the travel patterns of the region’s users must be clearly understood and encouragement of transit-use must come from the area’s employers. The challenge here is to continue to be mindful of the linkage between development patterns and the economics of public transit.

Transportation Management Studies: The 1993 Plan suggested a series studies and actions which were not included on the Action Plan but are important in understanding the most recent transportation system changes, accomplishments and challenges. These recommendations focus on transportation management and include: reducing the number of driveway connections through zoning regulations, developing special transportation improvement overlay zones, preventing future development of lot-by-lot driveway connections, reserving future rights-of-way, improving roadways to design standards, and addressing high accident locations. The most effective mechanism for funding the necessary roadway improvements was suggested to be the development of a capital improvements plan.

Changes: Few changes were noted to existing conditions described in the 1993 Plan. Manheim Borough targeted high priority bridge concerns, which may have an economic impact on the development of the area. The bridges T380 at Fuller Drive/Power Road and T711 at East Stiegel Street (given low priority on the 1999 CDBG funding list) are indicated in deteriorating condition and need replacement. Key to the industrial development of the Raymark properties and access to United Plastics is the South Oak Street Bridge, which has been closed for ten years and warrants investigation for reopening. In addition, to the three bridge projects, vehicular traffic changes have occurred as a result of the increasing number of Amish-owned farms in the region, bringing higher volumes of horse-and-buggy traffic on rural roads.

Accomplishments: The municipalities new zoning ordinances were adopted with changes that addressed access management, adjusted front setbacks, and classified roadways to meet design guidelines. On-going improvements were made on roadways within the local jurisdictions’ control. Significant improvements were planned to the Borough’s major intersection at the Borough Square and Fasig House.

Challenges; The idea of the special transportation improvement overlay zone (see discussion of impact fee for Rapho’s Triangle Development), while interesting in concept is often unachievable in reality due to the rigorous process requirements established in the Municipalities Planning Code. The Rapho Triangle Development area is the only area that may be suitable for the overlay concept. It is important to note that should the Manheim Relief Route become a reality, the detailed study required to construct the route would in all probability provide sufficient information and incentive to consider the development of a transportation overlay and impact fees for this area.

Most of these transportation management recommendations are under the control of the local government; however, the recommendations play a role in the regional network. The challenge from a regional perspective is to consider developing funding mechanisms and processes that address local transportation deficiencies in a timely and efficient manner.

Other Strategic Challenges: The vast majority of the challenges identified in the series of community focus groups and by the Manheim Central Region Steering Committee were challenges that have been facing the Region for the last decade. These challenges, uncovered in the review of the 1993 Plan and key person interviews, are centered on the transportation network, its size and capacity; the traffic on PA Route 72; and the network impact of the Manheim Auto Auction. The interest indicates the public’s desire for the region to place high priority on the resolution of transportation issues.

(Refer to Chapter VII, Public Facilities and Services; Chapter VIII, Public Utilities; and Chapter XI, Implementation)

Four of the twenty action plan elements from the 1993 Plan dealt with the Region’s water and wastewater systems. Community services and facilities are included in this discussion and described as civic infrastructure.

Public Water Supply Feasibility Study: The third Action Plan recommendation was to commission a public water supply feasibility study for the growth areas. The recommendation responded to two future growth areas: the Rapho Development Triangle and an area in Penn Township. The recommendation for Rapho Township was to negotiate water service from Mount Joy Borough. The recommendation for Penn Township was to negotiate water service with Manheim Borough for the southern reaches of planning area 1, to target public water service extension around the Northwestern Lancaster County Authority Service Area and to determine the need for and location of a new well.

Changes: Several changes have occurred since the adoption of the Regional Plan. First, Penn Township has instituted a new policy regarding the extension of water service lines. The Township will not extend lines to promote development but will allow developers to extend the line. Under this policy the developer is responsible for funding the search for suitable public water sources. Secondly, Manheim Borough’s existing water plant needs to be upgraded due to the age of the facility. Finally, since completion of the Regional Plan, Lancaster County has completed a County Water Resources Plan, which identifies regional water needs and recommendations. The following table provides updated information for the water needed in the urban growth areas by the year 2010.

Municipality	System	Population	Gallons/Day
Penn Township	Manheim	613	96,629
	NWLCA*	1,840	253,706
Rapho Township	Manheim	677	117,337
	Mount Joy	2,029	222,307
Manheim Borough	Manheim	475	66,733

*Township projections and County projections are not consistent – Penn Township reported an expected service population for the NWLCA area of 1,100 by the year 2010 with level of service utilization at 40,000 gallons per day.

The Report described the systems’ projected deficiencies and excesses, threats and recommendations. The report indicates that the Northwestern Lancaster County Authority (NWLCA) system by the Year 2010 will be over 200,000 GPD (gallons per day) deficient. The water quality and quantity threats are from a variety of sources including industry, underground tanks, development, agriculture activities and geology. The Report recommends the system be sold to Manheim Borough. The Manheim Borough Authority system will have a projected excess of over 760,000 GPD but a treatment deficiency of nearly 80,000 GPD. The threats include the development impact of the wellhead recharge area, major transportation routes, on-lot systems, agriculture activities, geology and system leakage. The Report recommends: the reevaluation of the Urban Growth Boundary relative to the wellhead recharge area, adoption of future service area consistent with the UGB, the purchase of the NWLCA system, enlargement of the plant, adoption of wellhead protection program, expansion of leak detection program, update of contingency planning and the determination of fire flow capability.

Accomplishments: Since 1993, several activities have been undertaken by Penn Township, including: the addition of a 100,000 gallon water storage facility at the Township Building and the addition of a second well (100 gpm) in 1998. A comprehensive water system analysis was completed in December 1998. The Township is also planning an increase in the storage facility for the Year 2000 (providing five times greater capacity than present) and participation in the Department of Environmental Resources Well-head Protection Program. These actions by Penn Township have eliminated any deficits in the water supply that were noted in the water resources study. A limited dialogue has been occurring between the Township and the Borough for service to the southern area of the Township’s growth area and the provision of a tap onto the Borough’s lines for emergencies.

Rapho Township has obtained public water for the Development Triangle from the Mount Joy Borough Authority.

Challenges: The status of the recommendations made by the County Water Report is uncertain given recent changes to the system in Penn Township. The buy-out of the NWLCA may not be realistic in light of these new expenditures. The biggest infrastructure challenge facing the region’s municipalities is to ensure that public water and wastewater services will be in place to support higher densities of development in the urban growth areas. Without the presence of these services, the Region will never have an effective growth management program. The challenge is to develop cost-effective and efficient methods to provide public water services to the Region’s urban growth areas. The issue requires the careful consideration of regional options and the necessary dialogue that will be needed to fully explore these regional options. An efficient system requires the coordination of all system elements. If developers are to install and extend the system with new development, it is important that such installation is carried out in a coordinated manner that does not adversely affect the implementation of the regions growth management strategies.

Finally, the Lancaster County Report provides numerous recommendations for the Manheim Borough System. These recommendations should be explored during the planning process.

On-Lot Disposal System Management: Measures recommended in the 1993 Plan included the requirement for preliminary hydrogeologic studies, the regulated routine maintenance of on-lot disposal systems including mandatory pumping of septic tanks, and minimum lot size of 32,760 square feet with room for a replacement system. The recommendations apply only to areas of the region which utilize on-lot systems.

Changes: The Act 537 planning process routinely monitors the effectiveness of the on-lot disposal system management. Changes in water quality affected by functioning or malfunctioning on-lot systems are noted through tests of potable water. New technologies are gaining wider acceptance as standard practices, which effectively help to resolve site and lot constraints for on-lot management of wastewater. These systems include denitrification systems (home-based aeration system) but continue to require routine inspection, as is the case for any on-lot system.

Accomplishments: Prior to adoption of the 1993 Plan, changes were made to the Rapho and Penn Township Zoning Ordinances to address the issues of preliminary hydrogeologic studies and minimum lot sizes. Penn and Rapho passed on-lot management systems and continue to monitor the success of these efforts. Penn’s program includes inspection of older systems and mandatory denitrification systems with effluent testing based on Sewage Enforcement Officer’s recommendation for new or replacement systems. Rapho’s ordinance impacts the villages of Newtown and Mastersonville. Denitrification systems are utilized in area’s where nitrate levels are over ten.

Challenge: The challenge for Penn and Rapho Township is to continue to monitor the management systems and to update their respective Act 537 Plans every five years to check the impact of the program on the area’s water quality.

Official Sewage Plan Update: The 1993 Plan advocated specific recommendations for Penn Township to provide additional public wastewater capacity for system growth and to limit service growth to planning areas 1, the western half of areas 2 and 3 and other areas requiring remediation of on-lot problems. At the time of Plan preparation, the NWLCA policy was to provide service to existing land uses or those which had purchased reserve capacity in Sewer Planning Area No.1 only, even though the Township’s Act 537 (Official Sewage) Plan denoted growth within six sewer planning areas over the ten-year period. The recommendation of the Plan was to update the Official Sewage Plan for consistency with the Regional Plan recommendations.

Changes: Over the past several years, population growth in the Township has led to significant changes in the service area of the system. Design and build dates from the plan are obsolete and inaccurate. Changes included the deletion of several five-year sewer service areas.

Accomplishments: Several pump stations have been abandoned in favor of more efficient means of operation. The NWLCA policy position is future extensions shall be done during land development at developer’s expense, unless mandated by the Department of Environmental Protection.

Challenges: The challenges facing Penn Township are similar to the challenges previously discussed regarding the location and coordination of public water systems. For the urban growth boundary concept to work effectively, it must be coordinated with the provision of the public utility services. The second challenge is ensuring the system is a well-coordinated system given the developer’s potential to influence system design. A systematic planning approach is needed to coordinate the wastewater system with the Urban Growth Boundary.

Dry Fire Hydrant Locations: The Plan recommended the location of "dry" fire hydrants at the site of water sources outside of the public water service areas. The dry hydrants help to facilitate the convenient access to water sources.

Changes: No changes.

Accomplishments: Dry hydrants have been added to the Willow Valley Development in Rapho Township.

Challenges: While this particular issue is not at the top of the list of regional priorities, the protection of the health, safety and welfare of citizens is always the top priority of local government. To the extent that the dry fire hydrants would improve response time to emergencies, the recommendation should stay on the regional agenda.

Other public services and facilities represent the region’s civic infrastructure and include but are not limited to emergency, recreation, and education services. Nine of the recommendations in the action plan dealt with improving systems of communication and levels-of-community service.

Educational Services: Two of the recommendations dealt with educational services: (1) establish a proposed development referral process with the School District to facilitate better planning and (2) initiate a dialogue with the School District regarding the disposal of unused elementary school sites. The intent of the development referral process would be the discussion of common issues, such as: concentration of residential development, length of bus routes and bus related traffic, street design, pedestrian and bicycle access and taxes. The dialogue regarding the reuse of education buildings and facilities would focus on the conversion of school buildings to community recreation centers and the upgrade of outdoor play areas for neighborhood-type recreation use.

Changes: The majority of the common issues have continued to be important over the past five-year period. The Superintendent of Schools noted the residential development of road frontage contiguous to rural roadways (residential strip development) as a continued cause for school bus problems and safety issues. Regarding the reuse of educational facilities, the District currently has no unused elementary schools. During the past five-years, two elementary schools became available; however, they were sold to the intermediate unit. The School District recently completed a demographic study, which indicated no need for additional elementary schools.

Accomplishments: Achievements made on the proposed referral process and dialogue on common issues include a quarterly meeting with the three planning commissions to review development activity. No formal plan submission process has been developed. Recently, other organizations have been created that may have a significant impact on these discussions, the regional Economic Development Corporation and District Tax Reform Committee.

Challenges: The 1993 Plan recognized the need to include the School District in the regional dialogue. This need has translated to the inclusion of the School District as a member of the region’s five-year strategic planning effort. The challenge to the region is to continue the dialogue between the municipalities, the Manheim Central School District and other planning partners. Additionally, the region should continue to define the District’s role in helping to implement the strategies that will be adopted as part of the plan update process. Finding the answers to some of these challenges may come as a result of the coordination of District planning processes (facility master planning and long-range strategic planning) with the regional planning effort.

Emergency Services: Four recommendations were included in the region’s Action Plan addressing emergency services (i.e., police, fire and ambulance). Several other recommendations were part of the Region’s Plan that were not specifically addressed in the Action Plan. The four Action Plan recommendations included:

Prepare a premise address map as a tool for the region’s emergency service providers to more quickly locate emergency events.

Consider the hiring of a floating police detective to jointly serve Manheim Borough and Penn Township.

Construct a centrally located (targeted population center based on the future land use plan) police department in Penn Township.

Consider the establishment of a joint police department between Rapho Township and Mount Joy Borough to patrol the Development Triangle. The consideration would begin with a feasibility assessment.

The four other considerations not presented in the Action Plan included:

Monitor response times for fire/ambulance service to determine the need for augmented manpower.

Inform the public on the dependency of local fire companies for donations and cooperate in fund-raising activities and promotions.

Centralize ambulance services.

Expand Manheim Borough police squad and equipment room.

Changes: The following changes have occurred in emergency services. In 1994, Manheim Borough renovated its police station; however, the renovations did little to resolve space problems. In 1998, Penn Township constructed a new police station. The ambulance service is seeking a new facility site. The fire company submits an annual report for the review of the Borough Council. The services appear to continue to meet demand satisfactorily.

Accomplishments: The following accomplishments have been achieved in the five-year period. Although no premise address map as been developed all three municipalities have completed work on the renaming of streets and roadways. The Borough has renamed some streets and alleys to address disjointed and segmented streets. This effort has led to the creation of a new street map for emergency service providers as a part of the Enhanced 911 System. Penn and Rapho Township also have worked with the emergency management agency on a consistent roadway name and numbering scheme. The next step in these processes would be to develop a regional premise address map (a County map book is available to assist in the location of emergency events).

In 1998, a regional police study was completed, entitled the West Lancaster County Regional Police Study. The Report was developed in cooperation with the Pennsylvania Department of Economic and Community Development, Center for Local Government Services and included five municipalities: Manheim Borough, Mount Joy Borough, Mount Joy Township, Penn Township and Rapho Township. The study recommended the five municipalities combine their manpower and resources to create a new regional police department. The benefits of the recommendations included 24 hour protection, effective and efficient use of staff, more thorough investigations, and more specialized services. The report included next step actions to be undertaken by the municipalities, including a series of public hearings. Separate municipal committees currently are reviewing the report. The review process includes an analysis of report statistics and options.

Rapho Township has begun to address the monitoring of fire and ambulance services through an emergency service providers meeting with the Board of Supervisors. The meeting helps to promote better communication and the sharing of ideas.

Challenges: The region has made significant progress in addressing the actions and recommendations outlined in the previous plan. Many of the challenges facing the region involve taking the next steps as a part of a continuing process.

Recreation Services: Four recommendations regarding recreation services set the direction for recreation planning for the next decade. These suggestions included:

Amend the Lancaster County Subdivision and Land Development Ordinance to require mandatory dedication or fee-in-lieu thereof of open space. The recommendation included using the analysis contained in the comprehensive plan to direct mandatory dedication monies collected from Rapho and Penn Township within a two-mile service radius of Manheim Borough Park for the improvement of the Borough facility.

Prepare a joint comprehensive recreation and open space plan. The study would encompass the entire region, use previous information, utilize the direction of a Certified Leisure Professional, seek grant funding, and consider all of the park recommendations in the comprehensive plan.

Apply to Pennsylvania Department of Community Affairs (program is now under the auspices of the Department of Conservation and Natural Resources) and Lancaster County for parkland acquisition / improvement projects as identified in the recreation plan.

Apply to the State and Lancaster County for parkland acquisition monies for the Development Triangle Community Park. The recommendation suggested all collected recreation fees, with the exception of the monies collected from areas within a two-mile service radius of Manheim Borough Park, be dedicated to the Development Triangle Park. The planning of park facilities would include public input, a capital improvements program, a master site plan and maintenance strategy.

Changes: The Manheim Central School District high school and middle school complex was expanded in 1997. This expansion included recreation amenities: indoor/outdoor track, baseball fields, tennis courts, and soccer fields. The District leases the football fields and stadium from the Borough.

Accomplishments: Three accomplishments have been achieved during the five-year period. The region has begun to take incremental steps towards the development of a regional recreation program. The first achievement in this effort has been to form a Regional Recreation Commission in 1998, receive monetary contributions from each municipality and hire an Executive Director (money provided through the Department of Conservation and Natural Resources’ Circuit Rider Grant). The activity represents the first inter-governmental agency to be established for the region. The Commission includes the three municipalities and the school district.

Secondly, Manheim Borough acquired ten properties for park conversion (2.5 acres) at South Hazel and East Stiegel Streets through money from FEMA Hazard Mitigation Program, PEMA and the County. Continued funding is anticipated for the project.

Finally, Lancaster County Planning Commission has strengthened the language dealing with recreation in the County’s subdivision and land development ordinance. These changes occurred in 1991 and 1997.

Additionally, Rapho Township has an informal agreement with Mt. Joy Borough for the use of the Borough’s recreation programs and facilities, including some developers’ contributions.

Challenges: It appears the region is moving in a positive direction regarding the institution of regional recreation. With the organizational structure in place, the next challenge will be working on the development of programming and facilities, including development of a regional parks and recreation plan.

Other Strategic Challenges: The majority of the challenges which came out of the focus group sessions and the Steering Committee review have been expressed in the previous analysis. The focus groups session revealed widespread support of the region’s emergency services as demonstrated by the feeling of safety in the area. The focus group discussion of issues revealed the continued need for enhancing communications at the regional level between service providers, the municipalities and the public. Emphasized was the need to improve communication between the region’s decision-makers, both municipal and school district, and their constituency. The Rapho review committee made the observation that "communication from the ‘center’ of the region (Manheim) to residents in parts of Rapho is often ineffective or non-existent." The challenge for the planners and decision makers will be to continue to develop methods for communicating with the public on municipal and regional issues.