Part 2 - Hunterdon County, New Jersey

Chapter One 45 Policies, Strategies and Actions Local Protection

Strategy #1: Work with Municipalities on Updating Natural Resources Protection Ordinances Several organizations are already working with interested communities to conduct a review of local master plans and ordinances and offer suggestions on ways to strengthen them in order to achieve local and regional goals. These organizations include the Stony Brook Millstone Watershed Association, South Branch Watershed Association, the New Jersey Water Supply Authority, Hunterdon County Planning Board and the Delaware River Greenway Partnership . In a similar way, municipalities can look to their own consultants or other outside organizations to assist in reviewing municipal plans and regulations to ensure that environmental concerns will be adequately addressed in light of new state requirements. Action #1: County offers to review and make recommendations concerning environmental plans

and ordinances at the local level. Action #2: County develops model natural resources protection ordinances.

Strategy: Enhance local environmental standards for new development or redevelopment sites in Smart Growth Areas. References: 1. Municipal Ordinance Review Project,

Lower Delaware Corridor http://www.drgp.org

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Policies, Strategies and Actions Local Protection

Strategy 2: Regional Environmental Planning Regional and multi-municipal planning efforts provide a number of benefits including more effective protection of watershed resources, which transcend political boundaries and increased eligibility for grant funding, which usually gives a higher priority to multi-jurisdictional projects. Two such endeavors in the region are good examples of regional cooperation on environmental planning issues. The Bridgeton-Noxamixon-Tinicum Groundwater Management Committee was formed by three northern Bucks County Townships to address groundwater issues for several Delaware River tributaries. The committee has initiated a range of scientific studies, regulatory reviews, and educational programs including environmental ordinances, watershed and wetlands studies, headwater mapping and groundwater monitoring projects, and educational activities. The Lower Delaware Regional Watershed Coordinating Council for Hunterdon County was developed with the assistance of the Municipal Land Use Center at the College of New Jersey, the Delaware River Greenway Partnership and the Delaware River Basin Commission (DRBC). All of the six participating municipalities have supported the Lower Delaware National Wild and Scenic River designation and the proposed Special Protection Waters designation by the DRBC. The project aims to strengthen the link between municipal planning and regional resource management. By the end of the project, the municipalities will have established an ongoing regional watershed coordinating council. Action #1: County looks for opportunities to develop regional or watershed-based environmental planning projects with local municipalities. Action #2: County actively promotes grant opportunities for projects with a regional focus.

Strategy: Encourage regional collaboration for environmental projects. References: 1. Municipal Ordinance Review

Project, Lower Delaware River Corridor http://www.drgp.org

Development Trends in Recent Decades Hunterdon County’s historic settlements began as small boroughs and towns. Since the beginning of the Postwar Era highway improvements and sewer capacity have contributed to the spread of growth beyond these communities, particularly in Raritan Township and along the Interstate 78 (I-78) and US Route 22 corridors. Between 1955 and the early 1970s, several municipal and regional sewage treatment plants were constructed, facilitating more intensive development. I-78 opened in 1968, providing convenient access for commuters working along the Interstate 287 corridor. Completion of a missing I-78 link in Union County in 1986 likely contributed to additional growth. Since the opening of I-78, the County’s population has grown by more than 75 percent. While accommodating greater residential growth, infrastructure improvements have also provided opportunities for more intensive nonresidential development. An influx of new residents has spurred the development of support services, such as restaurants, drug stores and supermarkets, as well as the development of office space along major highway corridors. In turn, nonresidential development both in Hunterdon County and neighboring counties has likely drawn employees to relocate to the area. In 1972, only 4.48% of the County was developed. By 1995, nearly 22% was developed (Map 1), resulting in great losses of farmland, woodlands and other natural resources (Figure 1).

Once a community of forests, farms, small villages and towns, H u n t e r d o n C o u n t y h a s u n d e r g o n e a d r a m a t i c transformation. In recent decades, development has occurred with great rapidity, spreading throughout the County. Improved highway systems, sewers, increased access to employment centers in nearby counties, and a desirable quality of life have all contributed to the volume and pattern of growth that has occurred in recent decades. Even so, the County is still considered one of the most rural parts of New Jersey. In fact, the 2000 Census reports that Hunterdon County has more population in rural areas than any other county in the State.

Map 1. Change in Developed Land: 1972-1995 Primary data source: Rutgers University CRSSA

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Hunterdon County Profile Land Use

In recent years, land preservation efforts have become more aggressive as significant state funding opportunities have arisen. As of 2006, the County has preserved 31,629 acres of County parkland, open space, and preserved farms. By the early and mid-20th century, sewage systems became more prevalent, although their capacity and service areas remain limited to this day. By and large, the vast majority of the County still relies on individual septic systems. As a result, growth has not been dependent upon the expansion of sewer service areas, a factor that has contributed to the decentralized growth patterns seen throughout the County.

Residential Development During the 1970s and 1980s, a number of higher-density residential developments were built in communities throughout the County, including Raritan Township, Union Township, Glen Gardner, Lambertville, Clinton Township, Clinton Town and Readington Township. Some of these developments contained several hundred units with single-family homes on small lots as well as townhouses, apartments and/or condominiums. Some developments also integrated limited commercial uses. Several high-density developments constructed in the 1980s and 1990s are inclusionary, meaning a small percentage of the housing units were built as low- or moderate-income units (for more on this topic, see People and Housing Profile). Today, large single-family homes on expansive lots-typically 3 to 15 acres-dominate new residential construction. While this type of development generates fewer homes than the residential developments described above, it removes a comparable amount of land from agricultural use and/or passive environmental use as these expansive lots become lawns. Some communities have attempted to retain open space and/or farmland by encouraging open space subdivisions (also called natural resource protection and cluster developments), which are subdivisions with reduced

Change in Land Cover, Hunterdon County

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Figure 1. Change in Land Cover, Hunterdon County, NJ Land Cover data is derived from Rutgers University Center for Remote Sensing and Spatial Analysis (CRSSA). Two additional categories, Bare Land and Unconsolidated Shore are not shown because the acreage is too small to appear on the chart.

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minimum lot sizes in exchange for large contiguous areas of preserved land. Most municipal cluster subdivision ordinances in Hunterdon County still require relatively large lot sizes (1-1.5 acres) in order to accommodate individual septic systems. Far fewer allow community wastewater treatment systems, which would permit a further reduction in lot sizes. In one such development of 39 units built in Union Township, homes are sited on 7,000 square-foot lots, allowing the preservation of over 80% of the property. Aside from housing built within or near historic villages and towns, residential developments tend to be isolated from each other and from shopping, government services, schools and businesses. Additionally, new developments are often built along roadways that end in cul-de-sacs, prohibiting connections to existing or future neighboring developments. Many residents prefer cul-de-sacs because of the privacy, security and recreational space they can afford. For all of these reasons, the automobile is the transportation mode of choice in Hunterdon County, and more often, of necessity. New homes commonly include attached three-car garages in order to accommodate the automobiles of parents and teenagers. A typical new home constructed in Hunterdon County is over 3,100 square feet in size, two stories tall and colonial in style. Homes are set back from the road behind large front lawns. Variations in decorative treatments, such as shutters, dormers, porches and other design elements introduce limited architectural diversity; however, the fundamental appearance, building materials, size and siting of new houses differ very little.

Street level perspectives of multi-unit residential developments constructed in the 1980s.

Aerial and street level perspectives showing 5-acre residential lots.

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Many new developments in Hunterdon County result in major site clearance and grading, particularly on properties with difficult terrain, such as steep slopes and woodlands. Increasingly, municipalities are requiring developments to be designed around existing natural features. One means of accomplishing this is through natural resource protection standards and related landscape requirements, the most notable example being the statewide stormwater management regulations enacted in 2003. Some communities also permit lot size averaging-a tool similar to cluster zoning—as a way to encourage a more flexible siting of homes around existing natural features (for more on this topic, see the Planning and Designing Hunterdon Communities section in Chapter 3). Nonresidential Development In the 1980s, Hunterdon County experienced a considerable amount of nonresidential growth. Exxon-Mobil opened its 800,000 square-foot research and engineering headquarters on Route 22 in Clinton Township in 1983. In 1986, Foster-Wheeler began construction on a 300,000 square-foot office building, which has since been expanded to over one million square feet, and in 1989 Merck & Co., Inc. broke ground on a 900,000 square-foot building in Whitehouse Station. Several other major corporations are recently constructed, under construction or recently proposed (Table 1). Corporate office buildings, hotels, “big box” retail, as well as smaller retail and office buildings characterize much of Hunterdon County’s new nonresidential development. Corporate office buildings tend to be located along highways, often on large, open campuses. This offers convenient automobile access and a strong visible presence in the area. Other factors that influence business location decisions include quality of life considerations, most notably the County’s rural context, ample recreational opportunities, strong public school systems, proximity to affordable housing in Pennsylvania, and convenient location in western New Jersey, which allows shorter reverse commutes for employees living in other areas of New Jersey. Corporate office buildings typically range in size from 50,000 to nearly one million square

Some developments result in major site clearance. Street perspectives of recent office and commercial development.

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feet in size, and are commonly designed as contemporary structures of glass and brick or concrete, creating a distinct corporate identity. The Flemington/Raritan Area hosts a high concentration of retail shopping centers, which are typically single-story structures, whether stand-alone “big box” buildings such as BJ’s and Home Depot or commercial strips, such as the Flemington Mall. Shopping centers offer highway access with ample parking in front of the buildings. One of Flemington’s older shopping facilities, Liberty Village, is somewhat unique in its design. Located within walking distance of downtown Flemington, it consists of multiple smaller buildings, with architectural details, landscaping and pedestrian paths that create a walkable town center environment. Our smaller communities have also seen some nonresidential development, albeit limited in comparison to that occurring along major highway corridors. For example, three historic buildings in Lambertville were renovated to house a mix of uses, including offices, a hotel, health club and micro-brewery. High Bridge has seen the revitalization of the Taylor Wharton property-a long-vacant industrial complex-into office and industrial space. Commercial infill and adaptive reuse projects in Hunterdon County’s historic downtowns support the economic revitalization of our region, while averting the development of open space, and facilitating convenient access by foot or bike. Public Buildings Throughout the County, civic spaces have been expanded and relocated in recent years, both at local and county levels. West Amwell Township relocated its municipal offices from the Village of Mt. Airy to a rural area adjacent to South Hunterdon Regional High School, which facilitated the expansion of space and property. Both Lambertville and Clinton Town addressed their facility needs in downtown locations. Clinton Town’s municipal offices occupy a historic building that was carefully expanded in order to preserve the architectural character of the original structure. Lambertville is renovating its existing building, also of historic value. In addition, Lambertville acquired a former commercial facility at the edge of town for police services and a former grocery store

• Merck & Co.-1.12 million square ft • 78 Corporate Center, Lebanon Boro-180,828

square ft of existing office space; 429,200 square ft additional space proposed

• Hampton Inn, Franklin Twp–86,098 square ft • Walmart, Franklin Twp-116,754 square ft of pre-existing retail space • Hampton Inn, Flemington–70,179 square ft • Walmart, Readington Twp-redevelopment of

119,095 square ft of existing retail space + 12,000 additional square ft

• Ingersoll Rand, Clinton Twp–106,500 square ft • Super Stop and Shop Shopping Center, Raritan

Twp–62,354 square ft • Belle Mead properties at the I-78/C.R. 523

interchange, Readington/Tewksbury Twps–1.9 million square ft of office space proposed (426,540 square ft recently occupied by Chubb)

• BJ’s Wholesale Club, Raritan Twp–69,200 square ft

• Health Quest (health club), Raritan Twp- 104,108 square ft

• Home Depot, Raritan Twp–121,344 square ft • A.M. Best Expansion, Tewksbury Twp–135,000

square ft addition • Town Center (retail), Raritan Twp–97,392 square

ft • Route 202 Shopping Center, Raritan Twp-88,000

square ft (proposed)

Table 1. Snapshot of major nonresidential development in Hunterdon County

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located downtown for additional civic space. Other municipal projects include Raritan Township’s municipal offices, which are now located adjacent to the municipal court and police station. Hunterdon County renovated its space in downtown Flemington in order to maintain a presence in town, while many offices have been moved near Flemington along Route 12, adjacent to the County Library. What Accounts for Current Development Patterns? There are several factors that have been attributed to the pattern of development occurring in Hunterdon County today. The Wealth Belt Phenomenon The Central Jersey region has been dubbed the “Wealth Belt of New Jersey” because it is the state’s leading economic engine, containing a critical mass of wealth and purchasing power. Hunterdon is one of six counties in the Wealth Belt, housing residents who command among the highest per capita incomes in the country. Hunterdon residents comprise a skilled labor force that is willing to commute, in many instances over considerable distances, in order to enjoy the large home with ample acreage that is typical of new residential development in the area. Large Lot Zoning Predicated on a desire to preserve rural character, agricultural land uses and natural resources, large lot zoning has become the mainstay of most municipal zoning documents in Hunterdon County. Water supply limitations and water quality issues have formed the basis for low-density zoning throughout the County. Nonetheless, much of the support for down-zoning has been in response to studies that have repeatedly shown that without a significant presence of high-cost homes and senior housing, residential development generates more in community costs than it provides in tax revenues.

Clinton Town’s municipal building addition, Raritan Township’s municipal complex, Hunterdon County’s renovated administrative building in downtown Flemington, Hunterdon County Complex on Route 12.

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The Ratables Chase New Jersey’s property tax structure encourages municipalities to seek revenue-generating land uses to offset the ever-growing cost of public services and infrastructure. Clean ratables, such as high technology firms and corporate offices, are often sought as an alternative to higher-intensity nonresidential land uses. Most commonly, nonresidential uses are zoned along major highway corridors in order to minimize the amount of traffic, noise and visual obstructions in residential areas. Although nonresidential uses can have positive fiscal impacts, offsetting the residential tax burden and providing a healthy mix of uses in a community, nonresidential uses may generate more housing demands for relocating employees. In turn, increased housing demand often fosters support for residential down zoning in hopes of tempering spikes in demand for public services and infrastructure. Nonetheless, both residential and nonresidential growth increases a community’s affordable housing obligation, which can create another cycle of residential growth. Advances in Telecommunications Advances in telecommunications, from computer technology to cell phones, provide increased opportunities for people to work from home, which in turn provides an incentive to develop land in more remote areas. In addition, cell phones can make commuting to work more productive and longer trips more tolerable. High tech “Intelligent Transportation Systems” may create even more incentives to live further from work, since they can direct drivers to the most time-efficient routes. The Council on Affordable Housing (COAH) Many local officials voice concern about the impact that affordable housing needs and obligations have on their communities. The Council on Affordable Housing, the State agency that oversees affordable housing in New Jersey, permits a variety of mechanisms for communities to address their affordable housing obligation. One such tool is inclusionary zoning developments. Inclusionary developments tend to be very large, dense developments, designed to accommodate affordable housing units while still providing a reasonable return to the developer. These developments can have a significant impact on community character and generate broadreaching fiscal impacts, such as increased school costs. A more dramatic way that affordable housing obligations can impact a community is through the application of

Aerial and street level perspectives of Village Square, a clustered development in Union Township.

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a “builders’ remedy.” If a municipality fails to meet their affordable housing obligation, the builders’ remedy is a tool that developers can use to force the construction of affordable housing, which would occur alongside a much larger number of market rate units. Municipalities can take control of planning for housing in their communities and prevent the builder’s remedy scenario from occurring by developing a COAH-certified housing plan. A Resistance To Open Space Zoning Open space zoning (also called natural resource protection zoning and cluster zoning) requires the preservation of large areas of open space in exchange for a reduced minimum lot size. The Municipal Land Use Law recognizes open space zoning as an important planning tool, as well as more ambitious planning tools, such as noncontiguous open space zoning and Transfer of Development Rights (TDR). The latter tools allow development to be transferred between non-adjacent parcels as a creative means of preserving land. Few municipalities in Hunterdon County have taken full advantage of open space zoning, despite the opportunities it presents for preserving land, creating more compact development patterns and offering more diverse housing options (most notably by creating opportunities for affordable housing construction). One reason for this reluctance is that community wastewater treatment systems are needed for lots under one acre in size, and these systems are perceived as generators of additional unwanted growth. Furthermore, there are few examples in Hunterdon County of well-designed open space developments. Too often, these projects appear as large, dense developments that dominate roadway views. When open space zoning is used in the absence of a larger land preservation plan, it creates the potential for scattered pockets of development with inaccessible, unusable open space. Many critics have suggested that the open space preserved through this zoning technique is usually unbuildable, environmentally constrained lands, so little is gained in the end. In addition, there is a common

New Town Center in Washington Township, Mercer County Existing Villages of Little York and Sergeantsville epitomize the concept of Center-based planning

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perception that land preserved by deed restriction through open space zoning can succumb to future development through successful legal challenges to deed restrictions, although there is little evidence to support this view. Other concerns include water supply impacts of densely situated homes drawing down aquifers, as well as water quality issues when wells and septic systems are concentrated on a small portion of a site. Nonetheless, if all these issues are fully considered when adopting and enforcing an open space zoning ordinance, these developments could greatly contribute to the protection of natural, cultural and historic resources. A Resistance To Centers Few municipalities have chosen to focus growth into existing or planned centers. Part of the concern is that additional development in and around existing centers will overburden municipalities with traffic problems and threaten their historic integrity. Density bonuses-often a necessary incentive to jumpstart building in new centers-are met with public resistance since communities are generally reluctant to accept additional growth. As with open space zoning, the introduction or extension of public water and sewer is generally met with public resistance as well. The New Jersey State Plan and Its Application in Hunterdon County The New Jersey State Development and Redevelopment Plan (or State Plan), was first adopted in 1992 by the New Jersey State Planning Commission. The State Plan creates a framework for directing the location and intensity of future growth. According to the plan, growth should occur primarily in the state’s urban and suburban areas and designated centers, where infrastructure exists or is planned to accommodate more intensive growth. The plan acknowledges that rural and environmentally sensitive areas will invariably grow; however, in these areas, it recommends that development occur principally in the form of centers. Centers are existing or planned communities with distinct characteristics that differentiate them from conventional subdivisions. Centers define compact, mixed-use communities that incorporate a variety of transportation modes (most notably pedestrian and bicycle travel) and house a variety of land uses and architectural styles. Although new developments can qualify as centers, they must contain the infrastructure, densities, diversity of uses, pedestrian orientation and physical features that reflect the characteristics of our historic towns and villages. Centers range in size and composition from large urban centers to towns, villages and hamlets. Hunterdon County contains numerous places that qualify as centers; however, only those centers that have received official state recognition by the Office of Smart Growth through a formal application process (now known as Plan Endorsement) receive benefits. Benefits may take the form of prioritization for certain grant programs, technical assistance for projects involving state agencies, or expedited permits for select infrastructure needs. There are five designated centers in Hunterdon County however, the new Plan Endorsement process allows for all types of municipalities to have their

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master plans endorsed by the State Planning Commission, provided that local governments identify areas for center-based development in their municipalities. Centers can be located in any of the State Plan’s seven planning areas. Planning areas are large geographic areas (at least one square mile) distinguished by different development patterns and physical features. According to the 2001 State Plan, Hunterdon County falls into five planning areas in New Jersey (Map 2 and Table 2). The State Plan policies call for the bulk of new growth to occur in the Metropolitan and Suburban Planning Areas. While most growth in Hunterdon County has occurred in the Suburban and Fringe Planning Areas, a significant amount of development has occurred in the Rural and Environmentally Sensitive Planning Areas in recent years (Map 3). Nonetheless, the absence of nfrastructure in remote areas precludes the intensity and densities that are typical of Suburban Planning Areas and sewered portions of Fringe Planning Areas. The State Plan advocates the protection of remote undeveloped areas or “environs,”focusing growth instead to existing or newly planned centers. Environs may include parkland, farmland, environmentally sensitive areas and limited low-density development. Several Hunterdon municipalities have utilized creative planning tools to help protect areas that are designated rural or environmentally sensitive. Some municipalities establish zoning densities based on natural resource limitations, while others focus on agricultural viability. Many municipalities participate in the acquisition of farmland and open space either through fee simple or easement purchases. Several have utilized planning techniques such as open space zoning and lot size averaging to preserve contiguous areas of open space and armland. While these tools may not be employed to their full potential, Hunterdon communities have taken advantage of them to varying degrees. In addition to planning areas and centers, the State Plan encourages municipalities to identify and protect Critical Environmental Sites (CES) and Historic and Cultural Sites (HCS). CES’s share similar characteristics with Planning Areas 4B and 5 (Rural/Environmentally Sensitive and Environmentally Sensitive respectively); however, unlike planning areas, CES’s are less than one square mile in size. CES’s and HCS’s are showcased on the State Plan Policy Map in order to highlight the resources that communities wish to protect.

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Map 2. 2001 State Plan.

Map 3. Subdivision and site plan activity in 2005 By Planning Area

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Table 2. Planning Areas in Hunterdon County: Definitions and Associated Planning Policies Suburban Planning Area (PA 2) - located adjacent to densely developed urban areas of the state, however characterized by a more dispersed and fragmented pattern of predominantly low-density, automobile-oriented development. Infrastructure, including water, sewer, transportation systems, etc. are in place or planned for in PA 2. Municipalities should guide the bulk of future growth into PA 2 and minimize development in Planning Areas 3, 4, 4B and 5. Development should occur in more com-pact forms as centers and/or as infill, rather than continuing to spread out as low-density, land-consuming sprawl. Fringe Planning Area (PA 3) - adjacent to PA 2, but a predominantly rural landscape, though scattered development is also evident. Generally, lacks the major infrastructure systems characterizing PA 2. Water and sewer may be available, however, it is primarily in centers. Municipalities should accommodate future growth in centers and protect rural and environmentally sensitive areas around them. Fringe Planning Area serves as a buffer between PA 2 and the Rural or Environmentally Sensitive Planning Areas. Rural Planning Area (PA 4) - large areas of undeveloped land including farmland, woodlands and other vacant property, along with scattered development served by rural roads, wells and septic systems. Future growth patterns should protect the rural features of the Rural Planning Area and locate predominantly in centers. Rural/Environmentally Sensitive Planning Area (PA 4B) - shares traits and planning policies appropriate to the Rural Planning Area and the Environmentally Sensitive Planning Area. New growth that is accommodated in PA 4B should ensure that natural resources are protected. Environmentally Sensitive Planning Area (PA 5) - contains large contiguous areas of valuable ecosystems, geological features and wildlife habitats. Future growth that is accommodated in PA 5 should be confined primarily to centers and natural resources should be protected.

The Highlands Special Resource Area Finally, the State Plan acknowledges regions called Special Resource Areas (SRA), which are large contiguous lands that contain unique characteristics or resources of statewide importance. One SRA, the New Jersey Highlands, includes approximately one-third of Hunterdon County. The 1,250 square-mile Highlands region provides drinking water for more than 3.5 million people. Fifteen municipalities in Hunterdon County fall within the Highlands region, although a total of eighteen county municipalities rely on this area for part, if not most, of their drinking water. The Highlands SRA hosts over 30 of the state’s threatened and endangered species, contains cultural and historic amenities and habitats of national importance. The importance of this region as host to an extensive system of natural, recreational and agricultural resources has gained national attention in recent years, including federal studies and funding. Consequently, State Plan policies call for planning among local, county, state and federal entities to protect Highlands resources. The Highlands received even greater attention in 2004 when legislation was adopted in New Jersey to oversee the planning and protection of New Jersey’s Highlands. The legislation requires municipalities and counties to create master plans and regulations that conform to a regional plan that will be adopted by the Highlands Council. The legislation creates two policy areas in the Highlands. In the Preservation Area, new development must conform to very stringent environmental standards and zoning restrictions. This area contains zones that permit very limited development. It is likely that there will be opportunities for properties to be purchased outright or preserved with Transfer of Development Rights (TDR). The Preservation Area consists of approximately 100 square miles or 25% of Hunterdon County’s total land area (Map 4).

Map 4. Highlands Preservation and Planning Areas in Hunterdon County

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Outside the Preservation Area is the Planning Area, which encompasses the remaining area of any municipality where a portion of their lands falls within the Highlands region. Portions of the Planning Area could become receiving zones for development rights transferred from the Preservation Area. Four percent of the Planning Area (16,000 acres) will be identified as possible receiving zones, where zoning must be changed to accommodate a minimum density of five homes per acre. A regional master plan must be adopted by the Highlands Council, which will articulate provisions for the Preservation and Planning Areas. The Highlands Regional Master Plan must be submitted to the State Planning Commission for Regional Plan Endorsement. Municipal and County plans must conform to the Highlands Regional Master Plan’s vision and regulations for the Preservation Area in lieu of the State Plan, Municipal and County compliance with Planning Area provisions will be optional, although there are many strong incentives to comply. Incentives include funding priorities for farmland and open space preservation, as well as the imposition of impact fees to offset costs of new development. More importantly, new state affordable housing rules require municipal master plans to obtain Plan Endorsement from the State Planning Commission in order to receive the legal protections that are currently afforded to state-approved housing plans. In the end, Plan Endorsement will ensure that the State Plan, municipal master plans and the Highlands Regional Master Plan are consistent.

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Explanation of Planning Education Policy Planning education is essential both for local officials and the general public. Local officials, including planning boards, boards of adjustment and governing bodies, are the decision makers regarding land use at the local level. The most important decisions about the look, function and intensity of growth that will occur locally are made and/or enforced by these entities. While planning boards rely on professionals-engineers, planners, attorneys and landscape architects-for technical assistance, local policy is ultimately dictated by municipal officials. Ongoing educational programs keep municipal officials informed about state regulations and programs that affect municipal planning. They inform municipal officials about various aspects of local planning, such as transportation issues, environmental concerns, community design options and affordable housing. They provide municipal officials with information about possible planning grants and other resources. And they provide local officials with an opportunity to come together and share issues, concerns and success stories. Planning education has become mandatory for local Planning Boards and Boards of Adjustments bodies. Ongoing programs at the county level will serve to supplement other educational programs. Those residents that do not serve in official capacities will benefit from educational opportunities as well. Results from the County’s recent 2003 public opinion survey indicate the importance of education. For example, only 20 percent of those surveyed felt that water resources are an important issue in Hunterdon County, despite the fact that 80 percent of county residents rely on groundwater and that the county houses two of the State’s three largest potable water supply reservoirs. Planning education covers topics that transcend municipal boundaries. Therefore, it only seems appropriate that the County take the lead in hosting various programs, potentially partnering with other area organizations where additional expertise and interest may lie.

Planning Education Policy: * Promote sound planning practices through ongoing educational programs

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Policies, Strategies and Actions Planning Education

Strategy #1: Educational Programs Ongoing planning education should be a fundamental role for the County Planning Board. Many statewide and regional organizations host very valuable programs. But there is far more need for education than programs currently available. The county has established a variety of venues for planning education. Hunterdon County Breakfast Talks provide an opportunity for local officials to discuss topics of mutual interest. Stormwater management, woodland conservation, historic bridge preservation, among other topics, have been featured through the Breakfast Talk series. Planning ABCs was held twice to introduce new municipal planning board and board of adjustment members to basic planning concepts and practices in New Jersey and issues unique to Hunterdon County. The County has also teamed up with other organizations, such as the South Branch Watershed Association, North Jersey RC&D, and Hunterdon County League of Women Voters on forums and field trips for local officials and the general public. Educational programs must be an ongoing priority to keep people informed about critical planning issues in Hunterdon County and their respective roles, responsibilities and opportunities to make a positive difference. Action #1: Hunterdon County Planning Board hosts quarterly Breakfast Talk series. Action #2: County co-sponsors a planning program covering an issue of timely concern with one or

more organizations at least once a year. Action #3: County posts educational/information reports on its website and establishes important

links to other department/organization websites.

Strategy: Host planning education programs for local officials and the general public. Reference: 1. Hunterdon County Planning Department http://www.co.hunterdon.nj.us/planning/

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Strategy #2: The Environmental Toolbox In the spring of 2003, an Environmental Toolbox Committee was formed at the initiative of a Hunterdon County Freeholder to provide direct planning assistance to municipalities. Specifically, a series of committees was formed, consisting of local officials, environmental representatives, technicians, attorneys, planners, engineers and other related professionals to develop model master plan and ordinance language to address a variety of environmental and agricultural planning needs. This project responded directly to a need identified by local officials for sound science-based planning tools that could be used to manage growth, protect critical natural resources and support agricultural viability. The challenge is to develop material that is fair, reasonable and effective. The Toolbox Committees have drafted language addressing woodland conservation, agricultural viability, stream corridor protection, ground water resources, cluster development, and soil erosion among other topics. This package of information has been distributed to municipalities across the county as a resource for their use and is available on the Planning Board’s website. Model master plan language and ordinances cannot possibly respond to the unique complexion of each municipality. But it can provide the framework from which language can be tailored to better address locally-unique needs and issues. The point is to provide a basis-the model language as well as accompanying explanations-for municipalities that may wish to alter or strengthen existing regulations to better protect environmental resources and promote agriculture. Action #1: County convenes Toolbox Committee as needed to refine and update master plan and ordinance package.

Strategy: Develop and promote Environmental Toolbox master plan and ordinance package. References: 1. Environmental Toolbox Website http://www.co.hunterdon.nj.us/planning/toolbox.htm

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Policies, Strategies and Actions Community Visioning

Explanation of Community Visioning Policy While most municipal and county master plans set forth a series of goal statements to articulate future priorities, these goal statements tend to be vague and overly generalized. Rarely does a master plan bring together goals and priorities into a holistic vision statement which includes text and plenty of photographs and images. The community visioning policy is an important document that portrays the community’s desired form and function in an easy-to-understand and highly visual format. Goals and specific strategies evolve from this vision statement, supported by data and analysis. To be effective, the vision has to evolve through a public consensus-building process. It is not enough to simply hire a professional to prepare a report. After all, it is the people living in the community that have most at stake and therefore a critical voice in the process. The opinions of residents, organizations, businesses and even local developers must be actively solicited. Will this public process achieve full consensus on a community vision? There may well be compromise and give and take that has to occur. But in the end, with support behind it, the master plan is far more likely to win broad support and lead to successful implementation.

Community Visioning Policy: * Engage the public in articulating a master plan community vision

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Policies, Strategies and Actions Community Visioning

Strategy #1: Community Design The purpose of the community design plan is to centralize the planning research, documentation and recommended policies that promote a desirable visual and functional environment. It serves an instructional purpose by illustrating building and site design concepts. The community design sub-element of the municipal master plan land use plan element is the official public document that establishes the preferred vision of the community and offers recommendations on achieving that vision. A comprehensive, well thought-out community design plan is critical to a legally defensible and articulate ordinance. Although the community design sub-element is critically important, it is an underutilized tool of local master plans. There are only a few municipal master plans in Hunterdon County that include a comprehensive community design sub-element. The community design sub-element should reflect broad public input. Public opinion surveys, photographic surveys, and field trips will likely draw participation. Design workshops that allow people to view and respond to certain development options or design ideas on paper can be successful as well. Aggressive advertising is also critical. Hunterdon County should take the lead in marketing community design sub-elements of municipal master plans. It should share ideas, offer tools and examples of well-crafted community design sub-elements and land use regulations. Amassing a large photographic collection of images both inside and outside of Hunterdon County will help to articulate a community’s vision. Community design sub-elements should reflect the unique conditions and values present in individual communities, but should also recognize the larger regional context within which the municipality resides. Concepts contained in Chapter 3 of this document should be considered, further defined, and incorporated into local plans. Action #1: County Planning Board arranges meetings with municipalities to explain value of community design sub-elements, sharing ideas from its Community Design Handbook

and this County Plan. Action #2: County updates its Community Design Handbook with another handbook detailing how

the alternative development models presented in its GMP can be achieved. Action #3: County reviews municipal master plan proposals, amendments and reexamination reports

and offers comments regarding community design considerations. Action #4: County assists municipalities in conducting local visioning processes. Action #5: Upon local request, County offers planning and design options for developments of regional impact, town and village planning and for redevelopment projects.

Strategy: Promote community design sub-elements to municipal master plans and promote implementation regulations. References: 1. Preserving Community Character in Hunterdon County-A Community Design Handbook, 1999. 2. City of Lambertville Land Use Plan Element, Community Design Plan, September, 1998. 3. City of Lambertville Ordinance No. 2000-01, Community Design Regulations for Commercial Districts 4. Chesterfield, Burlington County Transfer of Development Rights Ordinance http://www.smartgrowthgateway.org/ordinances.shtml

Explanation of Highlands Protection and Planning Policy Protection of the resources in the Highlands Special Resource Area demands an aggressive strategy that is consistent at all levels of government. At the same time, these strategies must be fair and equitable to landowners within the Highlands that have experienced lower property values resulting in the loss of use of their land. In addition, mechanisms will need to be developed to share costs with those that benefit from resources in the Highlands Region. As the Regional Master Plan is implemented, municipalities and counties will be faced with new and potentially complex requirements. However. new tools and resources will be available that will benefit both communities and private landowners alike. Hunterdon County Planning Board can assist municipalities with implementing the Highlands Regional Master Plan in their communities.

Highlands Protection and Planning Policy: * Preserve and protect critical water and land resources within the Hunterdon County portion of the New Jersey Highlands region * Support State Development and Redevelopment Plan policies *Support Highlands Regional Master Plan Policies

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Policies, Strategies and Actions Highlands Protection and Planning

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Policies, Strategies and Actions Highlands Protection and Planning

Strategy #1: Update Local and Regional Master Plans Following the adoption of the Highlands Regional Master Plan (RMP), municipal and county plans and regulations within the designated Preservation Area will be required to conform to the plan. Municipalities in the Planning Area are encouraged to conform to the RMP through a series of incentives. Conformance brings with it, among other benefits, certain legal protections from land use litigation as well as similar financial and regulatory benefits to Plan Endorsement by the State Planning Commission. The Highlands Regional Master Plan could have a major effect on future growth potential. It is expected that tightened land development restrictions in the Preservation Area will curtail development there, creating the potential for additional growth in the Planning Area as well as in other parts of counties adjacent to the Highlands Region. Both municipal and county officials should stay actively involved in the development of a Highlands RMP. The model ordinances developed through the Hunterdon County Environmental Toolbox may be applicable, although they may need to reflect additional restrictions consistent with the environmental standards established for the Highlands. Municipal and county officials should also actively respond to policy recommendations and offer their own suggestions as the RMP is being formulated. Action #1: Hunterdon County organizes venues for gathering municipal input on the Highlands regional master plan through plan development and implementation and provides an

avenue for disseminating information to municipalities as the plan progresses. Action #2: Hunterdon County offers planning and technical assistance to its communities in their

review of the Highlands Regional Master Plan. Action #3: Hunterdon County reviews its own plans, capital projects and land development regulations to identify areas of consistency and inconsistency with the Highlands Regional Master Plan and makes changes where appropriate.

Strategy: Create municipal and county plans and regulations that are consistent with an agreed upon vision for the Highlands. References: 1. Highlands Regional Master Plan http://www.nj.gov/njhighlands/master/

Explanation of Regional and Comprehensive Planning Policy In recent years, we have seen a movement toward voluntary regional planning efforts in Hunterdon County. For instance, the DEP’s stormwater management program fosters intermunicipal planning based on watershed boundaries rather than political boundaries. Also, Raritan Township and Flemington Borough are working on a variety of land use and transportation planning activities as part of NJDOT’s Route 31 South Branch Parkway project and the Delaware River Basin Commission is coordinating a four-state flood mitigation planning effort that includes sixteen communities in Hunterdon County that fall within the Delaware River drainage basin. Regional planning has many benefits. Resources-both natural and built-often span municipal boundaries, so that resources and expertise can be shared between municipalities and other involved organizations. Consistent approaches toward similar planning goals are more likely to occur when interested groups work together and consider recommendations that cross municipal boundaries where appropriate. Many grant funding organizations look favorably upon projects of regional scope. Investigating opportunities for municipal collaboration such as consolidating public services (fire, police, utilities) and continuing to facilitate regional planning are initiatives that the county will continue to support and will continue to provide technical assistance to municipalities to implement. Comprehensive planning continues to be an important basis for municipal planning decisions. The county will continue to provide professional assistance to municipalities as they undertake and implement comprehensive planning efforts.

Regional Planning Policy: * Promote intermunicipal planning based on environmental and/or infrastructure service area boundaries * Support State Development and Redevelopment Plan policies State Plan Policies: * Special Resource Area Planning and Implementation * Multi-jurisdictional planning and public service delivery

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Policies, Strategies and Actions Regional and Comprehensive Planning

Strategy #1: Regional Planning Several regional planning projects are underway or recently completed in Hunterdon County. Communities in five different sub-watersheds are developing regional stormwater management plans. The Spruce Run Initiative, an intermunicipal project spearheaded by the New Jersey Water Supply Authority, developed an open space plan for the Spruce Run watershed spanning six Hunterdon County communities. The New Jersey Water Supply Authority also led an intermunicipal study that recommended ways to design environmentally appropriate commercial development along Hunterdon County’s highway corridors within the Spruce Run watershed. Currently, it is working with three counties, including Hunterdon, three municipalities and two watershed associations to develop wastewater management plans and improve water quality in a portion of the Raritan Basin. The New Jersey Department of Transportation is engaging Flemington, Raritan Township, Hunterdon County, nonprofit organizations, landowners and special interest groups in an effort to design a system of new interconnected roads (including the South Branch Parkway) that will help alleviate traffic on Route 31. The Hunterdon County Planning Board led the Cross-Acceptance process for reviewing the State Plan by organizing discussions among groups of contiguous municipalities (six regions) to address planning issues at a regional scale, a process that is likely to continue in at least one of the regions. Five municipalities, three counties and nonprofit environmental groups are working together to develop a land use plan for the Sourland Mountain region. All of the above examples involve more than just government entities. Affected landowners, businesses, and/or organizations have a say in the final outcome of these efforts. These types of efforts should continue to be aggressively pursued and the Hunterdon County Planning Department should make regional planning initiatives a principle element of its work program. Action #1: County continues to participate in and initiate as needed regional land use planning efforts

including regional watershed and transportation corridor studies. Action #2: County encourages the I-78 corridor communities to develop a regional vision to implement its recommendations put forth in the State Plan for State Plan Policy Map

changes.

Strategy: Lead and/or lend support to regional stormwater management planning, watershed-based planning, land use planning, and infrastructure planning. References: 1. South Branch Parkway Study http://www.state.nj.us/transportation/works/njfit/case/ 2. Sourlands Planning Council http://www.sourland.org/

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Strategy #2: Municipal Master Plan Review and Developments of Regional Impact All municipalities are required by law to notify county planning boards of hearings on master plan adoption, revision or amendments. Municipalities are required to submit stormwater management plans and implementation ordinances for approval by county planning boards. Aside from stormwater management plans, counties do not have the authority to approve or disapprove municipal master plans. However, they do have the ability to offer comments and suggestions. Counties have access to other master plans that may offer interesting goals and strategies for consideration by a particular community. They also have the opportunity to comment on the relative consistency between the municipal plan and county plan and possible ways to increase consistency if appropriate. Counties can play an equally valuable role bringing communities together to discuss development applications that generate regional impacts. Often, large scale development projects are sited near municipal borders. As a result, the impacts-whether environmental, traffic, or otherwise-affect neighboring communities. In some cases, they need not even be adjacent communities. Large scale residential developments, for instance, may create a heavy burden on a regional school system, thereby affecting other sending districts. Through a formal albeit voluntary process, municipalities may be willing to solicit input on development applications from other affected communities and to discuss possible solutions at the earliest stages of subdivision or site plan review. Action #1: County conducts outreach to municipalities regarding the technical assistance staff can

provide on updating master plans as well as other activities. Action #2: County reviews and provides written comments on municipal master plan updates and

amendments. Action #3: County will consider using a Memorandum of Understanding to engage municipalities in

joint reviews of development projects of regional impact.

Strategy: Collaborate with municipalities on local master plan consistency with County Plan and on review of development projects that generate regional impacts. References: 1. Hunterdon County Planning Department http://www.co.hunterdon.nj.us/planning/staffduties.htm

Strategy #3: Plan Endorsement Municipalities outside of the Highlands Preservation Area will benefit by voluntarily pursuing Plan Endorsement from the State Planning Commission (SPC). Plan Endorsement is the official determination that a municipal, county or regional plan is consistent with the State Plan. Once a plan is endorsed, the petitioner receives a variety of technical, planning and financial benefits from the State. Also, it gives the plan greater legal standing. Municipal land use decisions have been upheld in the past, in part based on consistency with the State Plan. Plan Endorsement is intended to be a cooperative planning process involving the full participation of the State, regional, county, and local governments as well as other public and private sector interests to develop and implement plans that achieve the goals, policies and strategies of the State Development and Redevelopment Plan (State Plan). A municipal, county or region receives Plan Endorsement when the State Planning Commission finds that its planning efforts and documents are consistent with the State Plan. In exchange, they have access to financial, planning and technical assistance from the State. Municipalities should note that Plan Endorsement is not applicable to communities in the Highlands Preservation area. New guidelines were approved by the State Planning Commission in October 2007 and the new rule should be in affect by March 2008. Action #1: County seeks Plan Endorsement for the County Growth Management Plan. County provides municipalities the option of submitting for Plan Endorsement jointly with the

submission of the County Plan. Action #2: Hunterdon County Planning Board provides technical assistance to interested municipalities including data support and build out analyses required as part of Plan Endorsement submissions and assistance with filing of Plan Endorsement application.

Strategy: Seek Plan Endorsement of county and municipal master plans. References: 1. Office of Smart Growth Plan Endorsement http://www.nj.gov/dca/osg/plan/endorsement.shtml

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Policies, Strategies and Actions Green Development

Explanation of Green Development Policies Green development (also called sustainable development) describes construction practices that reduce energy, water and land consumption and protect important natural resources. The developer of one green project in Hunterdon County estimates that ground water recharge will increase from pre-to-post-development through the following techniques: 1) improving the health of forest cover; 2) introducing water harvesting techniques to capture roof top runoff; and 3) creating rain gardens, small planted depressions that help remove pollutants and absorb runoff into the ground. The concept of green development is unique in today’s regulatory environment because of two underlying principles: 1) it brings environmental concerns to the beginning of the site design process, before much of the engineering has been done; and 2) it tackles environmental issues holistically, so that they are viewed as an integrated system rather than as isolated concerns. The concept of green design has gained significant momentum in recent years by the public and private sectors. In 2004, New Jersey adopted its new Stormwater Management Rules, which promote natural, rather than structural solutions to address stormwater runoff. In the mid-1990s the United State Green Building Council (USGBC), a national nonprofit organization, created a voluntary certification program called LEED (Leadership in Energy and Environmental Design), which recognizes construction projects that promote good environmental design. LEED establishes a series of criteria and assigns point systems to each. Projects that accumulate enough points are certified at various levels, depending upon the extent of environmental criteria that are satisfied, including building materials, site design, and location. LEED is marketed as a tool that provides recognition and thus incentive to participate. The USGBC has established LEED criteria for new construction, existing buildings, homes, and commercial interiors and is also in the process of finalizing standards for neighborhood development, which focuses on Smart Growth guidelines for planning projects. Green development is essential if we are to protect our natural environment and public health. County and local government officials can serve as leaders in Hunterdon County by promoting the voluntary LEED program, rigorously implementing New Jersey’s new stormwater management rules and adopting more green-friendly land use regulations and procedures.

Green Development Policies: * Pursue environmentally-based planning and site design that promotes green building practices * Support State Development and Redevelopment Plan policies State Plan Policies: *Sustainable Economic Development *Revitalization for Sustainability *Community Design *Reuse of existing building stock

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Strategy #1: Green Construction Practices In May of 2003, the Hunterdon County Planning Board launched a green development program through the formation of a green construction committee. This committee, consisting of nonprofit organizations, county representatives, state officials, professionals, members of the development community and environmental interests came together to organize an educational program on green development. Additional publicly and privately sponsored programs have taken place over the years. Because the need for continued education and outreach is key, the county has developed a Sustainability Policy Committee, consisting of representatives from county departments. The committee is looking at a variety of aspects of sustainability including green building certification, sustainable planning, energy generation and public education. Examples of successful in-the-ground projects are critical to the future of green development. Many green buildings constructed throughout the U.S. have been government buildings. Because fiscal savings can be realized by taking into account the long term or “life cycle” costs of buildings, government should take stock in green construction. Energy cost savings and improved employee health (and therefore productivity) are examples of potential life cycle financial benefits. County and local government, school districts and private developers should consider green construction practices. In addition to creating awareness regarding new green construction, opportunities also exist to educate the public about sustainable planning and construction programs for historic preservation, downtown revitalization, and affordable housing. Municipalities can also facilitate green construction and design practices in private sector projects through their master plans and land development regulations. Action #1: County Planning Board offers education programs for targeted audiences on green development including landowners, developers and municipal and county officials Action #2: County assembles team of professionals and local officials to develop performance standards for green development that can be used in the municipal land development review process. Action #3: County offers education programs for targeted audiences on using LEED-ND in the land

development process as USGBC finalizes the standards.

Strategy: Incorporate green construction practices in government and encourage and educate stakeholders regarding private land development projects. References: 1. US Green Building Council, www.usgbc.org 2. Green Development-Making Ecology, Public Health and Real Estate Dollars Work Together-DVD 3. New Jersey Green Homes Office, http://www.state.nj.us/dca/dh/gho/index.shtml 4. The Greening of Historic Properties National Summit, http://www.gbapgh.org/GreenHistoric.pdf

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Strategy #2: Stormwater Management Mandated by PHASE II of the EPA’s National Pollutant Discharge Elimination System, two sets of stormwater management rules were adopted into law by New Jersey in 2004. The first set of rules (NJAC 7:14A) governs the management of stormwater facilities owned or maintained by local government and other entities and aims to control nonpoint source pollution. The second set of rules (NJAC 7:8) impose stiff requirements on new development and aims to control flooding, minimize polluted runoff, and recharge groundwater. New Jersey’s Stormwater Management Rules dictate the use of nonstructural (a.k.a. green) techniques like reducing impervious cover, minimizing grading and soil compaction, and planting native vegetation. When structural measures such as concrete channels and detention basins must be employed, innovative measures such as constructed wetlands and bioretention basins can be used, creating a more naturalistic landscape. The state’s stormwater management rules require municipalities to adopt stormwater management plans and ordinances according to criteria set forth in the rules. Although county land development regulations are not required to conform to these regulations, county projects, such as road and bridge projects, must adhere to the criteria set forth in the state’s rules. In addition, counties must review and approve municipal plans and ordinances. Furthermore, the rules permit the development of regional stormwater management plans that address the issue on a watershed basis rather than by political boundaries. Both municipalities and counties, among other entities, are encouraged to participate. Action #1: County convenes workshops with watershed associations and municipalities to stay apprised of new rules, share information concerning Best Management Practices, and discuss possible new or additional approaches to improve stormwater management. Action #2: County revises its Land Development Standards to voluntarily conform to new State regulations. Action #3: County participates in regional stormwater management planning.

Strategy: Implement storm water management techniques that reduce pollutant loadings of Total Suspended Solids and nutrients. References: 1. State Stormwater & Nonpoint Source Pollution website http://www.nj.gov/dep/stormwater/

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Strategy #3: Carrying Capacity According to the New Jersey State Plan, carrying capacity is defined as “the maximum demand a system can support without serious compromise or collapse.” If we fail to identify and respect the carrying capacity of our natural resources and built infrastructure, we will be faced with potential consequences such as a lack of water, or an inferior road system. There are no “perfect” tools that can predict with absolute certainty if and when our natural resources or our infrastructure will be stressed to the point of compromise or collapse. As increasingly sophisticated, science-based techniques become available for local planning purposes, they should be used to create local policy and regulations. Examples of these tools include: *zoning build out analysis, which quantifies and/or visualizes what a community will look like when fully built out based on current zoning or alternative schemes; *ground water-supply modeling that estimates how much water is available for various uses and impacts of projected growth; *water quality-based modeling to help quantify how much growth can be sustained without taxing ground or surface water supplies; *habitat evaluation to determine how much fragmentation or disruption may occur to the landscape before plant or animal habitats are compromised or destroyed; *infrastructure studies that look at the finite capacity of sewerage systems, public water supply systems, roads, etc. to sustain projected levels of growth. Action #1: County Planning Board works with interested communities to analyze impacts of zoning

decisions on future growth using its build out tool. Action #2: County explores feasibility of expanding build out tool capabilities to analyze nonpoint

source pollution from surface water runoff and works with municipalities in development of local stormwater management plans.

Action #3: County works with interested municipalities to analyze traffic impacts of projected growth using County build out modeling.

Action #4: County provides educational programs on carrying-capacity based planning approaches-their benefits and limitations.

Strategy: Use carrying capacity-based planning techniques in the development of local planning policy and regulations. References: 1. New Jersey State Plan http://www.nj.gov/dca/osg/plan/index.shtml

The Regional Context Hunterdon County is located midway between New York and Philadelphia, two of the nation’s largest metropolitan areas. Despite the County’s close proximity to rapidly expanding suburbs, the region remained relatively unchanged during the first half of the 20th century. Most residents were involved in agriculture, agriculture-related businesses or support services, such as restaurants, drug stores and markets. Those who commuted to jobs in New York, Newark and Philadelphia generally did so by train. As a result, the County’s roadway network remained as it had been for most of the preceding century. Old York Road was the primary route from Philadelphia to New York, as it had been since Colonial times. Route 22 was built in 1806 as the New Jersey Turnpike, connecting New Brunswick and Easton. The first state roadway was built in the County in the 1920’s when the roadway now known as Route 31 was constructed to link Trenton with the northwestern part of the state. The remainder of the highway network was comprised of mostly local roads linking small towns throughout the County, providing access from farms to nearby villages and hamlets.

All of this changed in the late 1960’s with the opening of Interstate 78 (I-78) in the northern part of the County. The Interstate Highway System was a Post-World War II initiative intended to facilitate the movement of homeland defense forces throughout the country. The unintended consequence of this nationwide highway system was the opening up of remote land to metropolitan area development. When I-78 first opened in Hunterdon County, it did not connect to eastern segments of the roadway because of a missing link in Union County’s Watchung Reservation. With the completion of the last section in 1987, employment centers located along the I-78 corridor in Hunterdon were now less than an hour from Newark International Airport and the New Jersey Turnpike. Despite an economic slowdown in the early 1990s, both residential and employment growth continued unabated throughout the County. The Automobile The automobile is by far the most prevalent form of transportation utilized in Hunterdon County. It is estimated that on average ten trips are generated by the typical Hunterdon County household, only four of which are for work purposes. We use cars to shop, run errands and transport our children to their

Our transportation network is one of the key forces shaping land use patterns and affecting the landscape in Hunterdon County. This is especially true of our road system,which is the p r i n c i p a l t r a n s p o r t a t i o n infrastructure in the County. As growth continues, so too will the volume of traffic and distances traveled, particularly if we continue to use the car as the predominant mode of travel. The critical issue is how we balance the need for a safe and efficient roadway system with growing c o n c e r n s a b o u t t r a f f i c congestion, environmental degradation and the loss of community character.

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Hunterdon County Profile Transportation

many activities. New single-family homes in the County typically have a three-car garage, an indicator of how reliant we have become on automobiles. Hunterdon County has more cars per household than New Jersey overall (Table 1). These statistics support the belief that the state as a whole, and Hunterdon County in particular, is extremely reliant on the automobile.

Automobile dependence can be linked to the land use patterns that characterize most of the County. The majority of Hunterdon’s residents live on large lots that are not within walking distance to jobs, community facilities or retail services. Current zoning strictly segregates residential and nonresidential uses, precluding the construction of compact, mixed-use communities similar to the County’s historic towns and villages. Furthermore, residential streets often end with cul-de-sacs, resulting in a lack of roadway and pedestrian connections between neighborhoods and commercial centers. Hunterdon roads are congested the most during morning and afternoon commuting hours. Conventional traffic engineering evaluates volumes of traffic during these “peak hours,” usually 7:00 to 8:00 AM and 5:00 to 6:00 PM. In Hunterdon County, the peak time periods used to evaluate congestion during commuting hours show that more than 60% of County residents leave for work between 6:30 and 8:30 AM.

Number of Vehicles

New Jersey Hunterdon County

No vehicles 4.9% 2.0%

1 28.7% 18.2%

2 46.5% 51.4%

3 14.6% 20.5%

4 4.1% 5.6%

5 1.3% 2.4%

Vehicles per Household

1.9 2.2

Commuting Patterns: Workers who live in these counties and who work within Hunterdon and other counties in the region.

↓ Hunterdon Morris Mercer Somerset Middlesex

Hunterdon 25,761 41.3%

3656 5.9%

3492 5.6%

12,983 20.8%

4133 6.6%

Warren 5326 9273 405 3653 1366

Bucks & Northamp-ton, PA

5986

1990

20,973 4680

4592

Table 1. Vehicles per Owner-Occupied Housing Unit, 2000 Primary Data Source: U.S. Census

Table 2. Commuting Patterns, 2000 Primary Data Source: US Census

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While increasing population is a major component of peak period traffic, commuters passing through the County from Pennsylvania and other regions of the state are a significant contributing factor. Traffic volumes on roads leading to I-78, such as State Route 31 and County Route 517, have some of the highest rates of traffic growth in the County, and much of this traffic is coming from Warren and Morris Counties. As congestion increases on major commuter routes, county and local roads are increasingly utilized as alternative routes. In the meantime, these roads are experiencing greater volumes of traffic due to new residential development. Our Roadway Network Aside from I-78, the County’s roadway network consists of a hierarchy of state, county and municipal roads. There are approximately 103 miles of state highways in the County, which are designed to carry traffic between various regions of New Jersey. The primary function of County roadways is to provide adequate, safe access between municipalities and adjoining counties. This network collects traffic from local roads and links these trips to other county, state and federal roadways. Approximately 240 miles, or 16%, of the public road mileage in Hunterdon is under County jurisdiction. Municipal roads, on the other hand, primarily serve residential and rural areas. Currently there are nearly 1,100 miles of local roads under municipal jurisdiction, a figure that can be expected to increase with new residential development. While new residential streets are initially built by the developer, all public roadways ultimately become a municipal maintenance responsibility. New residential and nonresidential developments in Hunterdon County are typically designed with very few connections to nearby roads. Although people often prefer the privacy afforded by dead-end roads, a shortage of roadway connections increases the amount of traffic on larger, collector roads, requiring these roads to be widened as new developments are built. Furthermore, when lane closures occur on collector roads, the road invariably fails, since traffic cannot be redirected to minor roadways nearby.

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Figures 3 and 4. Interconnected roads in the image to the left offers multiple points of access. The roadway network to the right deposits most traffic onto one collector road (red), leaving it vulnerable to failure in the event of an accident or other problem.

County Roads and Bridges County road and bridge projects have been the subject of much public debate, particularly in recent years, as increased traffic volumes have become increasingly visible. Public concerns have focused on major projects, such as roadway straightening, bridge widening and the addition of travel and turning lanes, as well as minor projects, including shoulder widening, the installation of drainage pipes in lieu of roadside ditches, the regrading of banks and tree removal and replacement. In addition to road and bridge projects, the County has statutory responsibility to review subdivisions and site plans for possible impacts on County infrastructure. Through this process, the Planning Board evaluates development proposals, and requires that any impacts be mitigated as a condition of approval. Widening is typically required in order to ensure that traffic from new developments can safely access County roads without posing impacts to existing traffic conditions. Acceleration and deceleration lanes are sometimes required for access into and out of a development, as are left-turn lanes. Road widening trans-forms the character of country roads, just as changes in land use impact community character. Presently, Hunterdon County roads are primarily two-lane country roads that pass through woodlands and agricul-tural lands, newly suburbanizing areas and historic towns and villages. Stone arch bridges dot our landscape on county and local roads, including 78 structures that are listed on or eligible for the State and National Registers of Historic Structures. In an effort to preserve the rural character of Hunterdon County, residents frequently raise concerns about the impacts of the increased traffic volumes and speeds allowed by modernized bridge structures. The narrow widths and twists and turns of County roads, one-lane bridges and tree-lined streets are seen as a traffic deterrence, since they are obstacles to high-speed, high-volume traffic. At the same time, however, they can present safety concerns. This poses a constant debate between the County and many of our residents and community leaders. Funding for maintaining County roads and bridges is provided primarily through the County’s Capital Improvement Program (CIP). The CIP includes a one-year Capital Budget and a five-year Capital Improvement Plan. Federal and state funds are available to supplement County funding for a limited number of projects. Projects are placed in the CIP based on a series of criteria, and are prioritized based upon existing traffic volumes, road conditions and accident history. Roadway corridor improvements, such as drainage and intersection improvements, typically occur when the road is due for resurfacing, which

Stone arch bridges contribute to the cultural landscape of Hunterdon County.

Green Sergeants Bridge in Delaware Township is the last remaining covered bridge in New Jersey.

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generally occurs on a 12-15 year cycle. Particular roadway sections may be placed in the CIP in advance of this cycle if, for example, accident records dictate the need for immediate improvement. Likewise, major proposed developments may trigger the need for more immediate improvements. Bridges are evaluated based on a sufficiency rating (classification based on safety, serviceability and essentiality for public use), level of service criteria (load capacity, clear deck width, vertical over- and under-clearance) and accident reports. Road and bridge construction projects are designed for current traffic volumes according to state standards and national guidelines published by the American Association of State Highway Transportation Officials (AASHTO). Funding is contingent upon complying with these standards and guidelines; however, state and federal design guidelines and standards do introduce some flexibility for addressing a project’s local context. In an effort to address public concerns over County bridge projects, the County Planning Board coordinated meetings with municipalities and the County Roads, Bridges and Engineering Department in the development of a Bridge Management Plan. The plan introduces County policies regarding future bridge projects, which attempt to balance the need for safety and efficiency with public concerns about traffic impacts, historic preservation and community character. Truck Traffic Truck traffic has become a major concern to County residents over the past decade. With the growth of containerized shipping at the Ports of Newark and Elizabeth, the volume of truck traffic along Interstate 78 has increased significantly. A recently developed multimodal transportation center in the Lehigh Valley, Pennsylvania, which transfers cargo containers from to trains to trucks, will increase truck traffic on the Interstate even more. Further adding to traffic congestion and safety concerns, the highway hosts an increasing amount of commuter and holiday traffic traveling east from Pennsylvania and western New Jersey to the New York City Metropolitan Area. Of equal concern to County residents are increases in the number of trucks on state, county and local roads. Much of this growth in truck traffic can be attributed to development in the County, where an expanding population has generated a demand for new retail services. In addition, residential

Traffic on I-78 during peak time periods.

In Pennsylvania freight is unloaded from trains and transferred to trucks headed to Newark.

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development itself is accountable for much of the truck traffic we experience daily. It is estimated that each newly constructed home generates over 200 truck trips during the course of construction. Of greater concern, however, is truck traffic that has neither an origin nor a destination in the County. This traffic may be traveling through the County in order to avoid Turnpike tolls or greater congestion on more direct routes. With the completion of I-287 in northern New Jersey in the mid-1990’s, there was a dramatic increase in truck traffic on Route 31 in the County as truckers found an alternative route around suburban areas to the east. Transit Although the County has experienced significant job growth over the last two decades, according to the 2000 Census, a majority of residents commute to jobs outside Hunterdon (58.9%). More than 82% of residents travel to work alone with an average commute time of 33.5 minutes. There are several reasons for the extremely low percentage of residents who use public transit for commuting purposes (1.7%). The only intracounty public transportation is primarily designed to serve the County’s handicapped and disadvantaged populations, and the intercounty service available from Hunterdon County primarily connects to Newark and New York City. As a result, neither of these services meet the needs of County commuters, most of whom travel to jobs along the interstate corridors to the east. Intracounty bus service in Hunterdon is provided by a County-run system known as the Link. Since its inception in 1984, the nature of its service has evolved. Originally, the Link was a para-transit provider, taking the seniors and individuals with disabilities to medical appointments, jobs and grocery stores. In recent years bus service has been expanded to the general public. Intercounty bus service to Newark Airport and New York City is provided by Trans-Bridge Lines. Bus stops are located along the I-78 corridor and in Lambertville, Frenchtown and Flemington. Although frequent service is provided during commuting hours, service is limited during the rest of the day and for reverse commutes (trips during rush hour with destinations in Hunterdon County). New Jersey Transit has limited bus service in the County, operating a single bus per day in the morning and evening from Lambertville to the Trenton area. Passenger rail service in Hunterdon County is provided by New Jersey Transit’s Raritan Valley Line, which terminates at High Bridge. Other stops in the County include

Park and ride in Clinton Township.

NJ Transit rail station at Whitehouse

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Annandale, Lebanon and Whitehouse Station. To the east, service terminates at Newark’s Penn Station where riders can switch to trains destined for New York or Newark Airport. Ridership on the Raritan Valley Line is low in Hunterdon County since the last full-service stop is Raritan in Somerset County (Table 3). Only five eastbound trains run each day in Hunterdon County, including four in the morning and one in the afternoon. The current service level has constrained by Whitehouse Station, which has now received additional siding necessary to allow trains to pass without waiting for oncoming trains. In October 2007, with the completion of the siding project, New Jersey Transit expanded the number of trains, both eastbound and westbound, that stop at Whitehouse. Park-and-ride lots serve bus and rail passengers, as well as those who carpool. In addition to the modest-sized lots at the four Raritan Valley Line rail stations, commuter lots are found in Frenchtown, Flemington, Clinton Township and Union Township. In Clinton Township, the demand for parking spaces at two existing park-and-ride lots exceeds the number available. The New Jersey Department of Transportation and New Jersey Transit are considering alternative approaches to address park-and-ride needs that facilitate greater transit usage, while decreasing traffic congestion on major roadways in the County. HART Commuter Information Services is the transportation management association (TMA) serving Hunterdon County. TMA’s are public-private partnerships formed to promote ridesharing and address traffic and other transportation issues. HART’s mission is to provide programs and services that promote alternatives to single-occupancy vehicle commuting. In addition, HART encourages the integration of travel demand management into local planning efforts. Travel demand management programs are strategies municipalities can utilize for managing traffic congestion, including carpooling, vanpooling, public transportation, telecommuting and the introduction of flextime work schedules. Bicycles Hunterdon County has become a popular destination for biking enthusiasts. Opportunities exist for all types of bicyclists, including both recreational and commuter cyclists. State and County roads present challenges for the avid rider, meandering local roads offer an unsurpassed visual experience for the recreational cyclist, and the D&R Canal State Park offers a popular riding trail that is suitable for families with small children.

Table 3. Raritan Valley Line Ridership. Primary data source: NJ Transit.

Station 2005 Average Daily Boardings

High Bridge 60

Annandale 85

Lebanon 17

Whitehouse 103

Raritan (Somerset Co.) 660

Somerville (Somerset Co.) 663

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In 1997, the Hunterdon County Planning Board prepared the County Road Bicycle Facility Assessment, which identified roads and activity centers that could be linked together by a network of bicycle routes. It established criteria by which road segments should be analyzed before seeking funding for bikeway construction. In 2001 the County Planning Board adopted the Hunterdon County Bicycle and Pedestrian Element of the County Transportation Plan to buttress funding requests for County bikeways. Municipalities that are interested in pursuing dedicated bikeways along County roads should contact the Hunterdon County Planning Board for more information about opportunities for County assistance. The County Planning Board is also actively participating in the Federally funded Safe Routes to School program and will continue to work with municipalities who are interested in participating in the grant funded program. Airports Newark-Liberty International, Lehigh Valley International and Trenton-Mercer Airports provide scheduled air carrier service to Hunterdon County residents. There are three general aviation airports located in Hunterdon County: Alexandria, Sky Manor and Solberg-Hunterdon. General aviation airports are those facilities that do not serve regularly scheduled commercial operations. All three are privately owned, public use airports, which have been in existence for decades, contributing greatly to the County’s economy. Solberg-Hunterdon Airport in Readington Township is a designated reliever airport. Reliever airports serve aircraft outside of the congested airspace of Newark, Kennedy and Philadelphia Airports, providing local access to the national transportation system. In the National Plan of Integrated Airport Systems, 1990-1999, the Federal Aviation Administration (FAA) considered the Solberg-Hunterdon Airport a necessary component of the national air space system. A master plan for the airport was prepared, using federal funding, which outlined ways to modernize the facility. Residents living in the vicinity of the airport have expressed concern that these changes would result in larger planes and more frequent landings at the airport. In an effort to address these concerns, the New Jersey Department of Transportation stated its intent to acquire Solberg-Hunterdon and maintain its current level of service. Unlike the Solberg-Hunterdon Airport, Alexandria Field and Sky Manor Airports in Alexandria Township are small-scale airfields that are connected to surrounding properties, providing opportunities for airplanes

Private planes at Sky Manor Airport

City office with bikes

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to be taxied onto airport property directly from private homes. Alexandria Field has recently become a preserved property. The Challenge While annual traffic counts taken by the County Roads, Bridges and Engineering Department have historically documented steady increases in volume on most County roads (Maps 1 and 2). However, these increases appear to be leveling off in recent years. Nonetheless, there are segments of County roads that will continue to face congestion as development pressure increases. Expanded roadway capacity has been shown to attract drivers from nearby congested areas; similarly, limited roadway capacity encourages drivers to seek less congested routes. County roads will continue to host more traffic as the amount of regional traffic intensifies and the number of County residents increases. Although most County roads are designed to accommodate regional traffic, local roads are ill-equipped to handle high volumes of vehicles. As County roads become overburdened or difficult to travel, drivers will most likely take alternate routes along local roads. Further adding to the challenge, highways that exists today will likely have to handle future traffic without significant expansion. Although I-78 is approaching capacity, currently there are no plans for roadway widening. Planned construction projects are limited in scope, including: • Interchange improvements along I-78 at select locations as well

as increased options for public transportation and carpool/vanpool commuting along this corridor.

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Map 1. 2006 Traffic Counts and Percent Increases on 600 Level County

• A congestion mitigation project in the Raritan-Flemington area to relieve traffic on Route 31 north, which focuses on a new interconnected roadway network and the elimination of the Flemington Circle.

Ongoing congestion has made residents acutely aware of how much the County has changed over the last 30 years. Certainly there are other reminders of the County’s rapid growth, such as the high cost of housing, taxes and farmland, and the loss of open space, but it is traffic on our roads that people experience on a daily basis. In many ways traffic has become the focal point for venting one’s frustration with these changes. Reducing the amount of single-occupancy vehicle driving is of critical importance to Hunterdon County, where there is a strong desire to maintain rural character, clean air and uncontaminated water supplies. If residents rode an alternate mode of transportation to work just one day a week, the amount of commuter driving would be cut by 20 percent. Tackling these difficult issues will be among the major challenges we are to face well into the future.

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Map 2. 2006 Traffic Counts and Percent Increases on 500 Level County roads.

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Policies, Strategies and Acions Transportation Planning

Explanation of Transportation Planning Policies Hunterdon County’s rural areas, suburban areas and towns are linked by a network of roadway corridors. So many of our roads afford outstanding scenic and historic views. We are reminded of the public’s desire to maintain the scenic and historic integrity of our road corridors on a near daily basis. We are also reminded of the desire to limit the amount of traffic traveling our local and county roads and the extent of improvements done to our roads and bridges. Unfortunately, traffic has been increasing steadily on our roads, resulting both from development within Hunterdon County as well as regional traffic passing through. Additionally, Hunterdon County has a responsibility to ensure a safe system of roads and bridges. Often, the nature and extent of safety improvements triggers public outcry. They are viewed as destroying the visual and environmental integrity of the area. At the same time, people believe that these improvements only spur more traffic. Determining when improvements are needed and criteria that trigger these improvements should be clearly articulated as written policy and design standards. When improvements to our roads and bridges become necessary, public resistance becomes particularly vocal. But it is before extensive design work is done on any road or bridge projects that the public must be brought into the process. In this way, designs will reflect the best possible solutions to public concerns. Americans are in love with their cars. It is extremely difficult to change personal behavior that will reduce the amount of driving we do, especially when we live far away from places where we work, recreate or shop. But it is not impossible. If we can reduce the amount of single-occupancy driving that we do, chances are we can also postpone and minimize the extent of needed roadway improvements. This demands a collaborative and comprehensive series of strategies at the local, county and state levels.

Transportation Planning Policies: *Protect the scenic, historic and environmental integrity of our county road corridors * Involve the public early on in road and bridge improvement projects * Reduce the rate of increase in vehicle miles of travel Supports additional goal(s): * Plan for people * Support community-based planning * Environmental sustainability

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Policies, Strategies and Actions Transportation Planning

Strategy #1: Complete County Transportation Plan In 2004, the Hunterdon County Planning Board received a Smart Growth Grant from the New Jersey Department of Community Affairs. This funding will be used to develop a plan for the county’s transportation network. The Transportation Plan will evaluate the needs of roadway corridors holistically. A more traditional approach would evaluate existing conditions of relevant corridors, project future motor vehicle usage and recommend physical improvements accordingly. The Smart Growth approach to corridor management planning requires planning for all users of the county transportation network. First, the plan will examine county and other select roadway corridors as resources for a variety of user groups, including bicyclists, pedestrians and corridor residents. Second, the plan will give consideration to infrastructure needs alongside aesthetic, historic and environmental concerns. Third, the plan will make recommendations addressing land use patterns and zoning along the corridor, which will help achieve the plan’s management objectives. Finally, the Transportation Plan will include a public process for generating local input into transportation management decisions. Action #1: Use Smart Growth funding to prepare a County Transportation Plan. Action #2: Establish a public-private Steering Committee to oversee the development and completion of a

Transportation Plan. Action #3: Develop a capital improvement program detailing how the Transportation Plan will be implemented. Action #4: Implement the Transportation Plan, including possible revisions to Hunterdon County Land Development Standards. Action #5: Review the draft Bridge Management Plan as a sub-element of the Transportation Plan

Strategy: Undertake a plan for the county transportation network.

Strategy #2: Reduction in Single Occupancy Travel A key strategy to limit the amount of congestion on county roads and conserve the county’s transportation infrastructure is to reduce single occupancy travel. There are many efforts underway at the county and at the regional level to take advantage of existing county rail and bus public transportation network. In addition, a major focus of HART Commuter Information Services (HART) focuses on coordinating carpool and vanpool opportunities for commuters. Finally, as recommendations for the county bicycle network are implemented, the opportunities for non-motorized transportation options increase. Action #1: Investigate feasibility for intercounty public transportation services. Action #2: Disseminate recommended master plan and ordinance language calling for ride-sharing,

parking limitations, shared parking and other employee trip reduction programs. Action #3: Work with communities interested in establishing dedicated bicycle lanes on County roads.

Continue to plan for and investigate the feasibility of creating linkages for non-motorized transportation through the county’s planned transportation and open space networks.

Action #4: Continue to support HART in its promotion of ride-sharing and employee trip reduction programs. Action #5: Lobby New Jersey Transit for additional service for Whitehouse Station on the Raritan Valley Line Action #6: Work with municipalities, NJ Transit, HART, and NJDOT to find solutions to overcrowding

at existing park and ride facilities along the I-78 corridor in Hunterdon and adjacent counties.

Strategy: Pursue programs and policies that reduce single occupancy travel. References: 1. HART Commuter Information Services http://www.hart-tma.com/home/ 2. Hunterdon County Road Bicycle Facility Assessment

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Policies, Strategies and Actions Transportation Planning

Regional Economic Trends In the 1980s, Hunterdon County experienced a real estate explosion that generated over 5,000 residential building permits, 90% of which were issued between 1985 and 1986. A majority of this land speculation and real estate development coincided with completion of Interstate 78 (I-78) in Union County in 1987, which provided Hunterdon County with a direct link to Newark Airport and the New York Metropolitan Area. New offices sprouted up along the I-78 corridor in Union and Somerset Counties. Attracted to the Hunterdon County’s scenic views and rural character, many new employees of these firms sought this area for their place of residence. Office development eventually inched its way westward along I-78 into Hunterdon County. During the 1980s, large corporate offices and real estate developers, such as Exxon, Foster Wheeler, and Merck, received approvals to construct over five million square feet of office space. In the 1990s, New Jersey became a leader in research and technology with a strong mix of pharmaceuticals, computer technology, biotechnology and medical research. Minutes from the Hunterdon County’s eastern boundary on I-287 is a high-tech growth corridor that has capitalized on Somerset County’s educated labor force, good school districts and accessibility to major urban and suburban markets. Another successful high-tech industrial corridor is located south of Hunterdon County in the Princeton/Lawrenceville area along Route 1. This corridor has recently been targeted by the New Jersey Economic Development Authority (EDA) for a cluster of biotechnology and medical research facilities, uses that complement the nation’s leading pharmaceutical industries located nearby. Speculative buildings have been constructed by the EDA that meet the needs of these specific industries and the new companies are moving in quickly. As the nation entered the new millennium, the symptoms of an economic recession were beginning to be felt. More recently, however, there have been signs of economic relief. Analysts predict that the economy will include many of the same industries that characterized the country before the recession. Domestic businesses will capitalize on high-tech capabilities, including high speed internet access and teleconferencing. Home offices will continue to use this technology to conduct business long-distance, occupying an important segment of the economy. Hunterdon County will likely be the target for future economic development because of its strategic location within the region, good schools, positive business climate and a high quality of life. The extent of that growth, however, will largely be a

Economic development is a way of describing the expansion of a community’s wealth, measured by its employment, tax revenue and locally provided goods and services. Over the past few decades, the County has witnessed a tremendous amount of growth, transforming some of our rural, agrarian areas into suburbs. While municipalities welcome the tax ratables and new goods and services, they are concerned about the increase in traffic and development pressures that often accompany economic development. This does not have to be the case. Economic development can positively benefit any community, regardless of size or character, if it is planned within the context of the community's vision and land use goals.

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Hunterdon County Profile Economic Development

function of the cost of new development and the availability of needed infrastructure. Some analysts, including James Hughes, Dean of Rutgers University’s Bloustein School of Planning, predict that the next decade of growth in Hunterdon County will be subdued compared to previous years. This is a result of the increasing cost of conducting business in New Jersey and the statewide planning incentives to locate industries in urban areas. The former issue is already impacting the pharmaceutical industry, with such companies interested in moving their research and production facilities out of state. Business and Industrial Growth in Hunterdon County Business and industrial growth in Hunterdon County reached its pinnacle in the 1980s and early 1990s. Industrial development, office parks and commercial growth were approved and built almost exclusively along state highways. New highway development has continued to occur, albeit at a slower rate. Recently the sites of the former Yale and Lipton industrial buildings were partially reoccupied as food and trucking distribution centers. Office construction has occurred in Raritan, Union and Readington Townships along Routes 31, 173 and 78. Similarly, new retail businesses continue to be constructed along the County’s highway corridors. Several existing retail facilities, sitting vacant for years, have been targeted by national retailers for new store locations. Downtowns In addition to highway corridor growth, there are 12 municipalities in the County with main streets that host a variety of nonresidential uses. These main streets vary significantly in size and appearance. Some municipalities have undergone extensive renovations of historic structures, offering attractive main street areas primarily for tourists. Other towns host combinations of local services, industries and tourism businesses. Even in towns where main streets include a variety of nonresidential uses, most of the community’s goods and services are provided by businesses now located along highway corridors. Tourism provides continued economic viability for downtowns that are rich in scenic, historic and architectural resources. Despite the economic opportunities that tourism provides for some main streets, others may need to establish an alternative niche market in order to continue to attract economic development.

Highway commercial businesses along the Route 31/202 corridor

Businesses in downtown Clinton

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Agriculture With 51% of its land base in agriculture and over 21,000 acres of permanently preserved farmland, Hunterdon County remains committed to sustaining its agriculture industry. As the county entered the new millennium, it led the state in hay production, corn for grain, non-race horses, sheep and specialty animals and plants. Despite these leads, agriculture in the County has followed state and national trends, declining since 1950 due to competition from large agri-business farms, increased production expenses, lack of local support services, and high property taxes. As a result, there are relatively few farmers in the County that rely on agriculture for their primary source of income. Amid the decline of the agriculture industry, there continues to be an abundance of farms. A large number of farmers supplement their declining incomes with part-time jobs. An even larger percentage of the County’s farms are operated by “hobby farmers,” people who work other full-time jobs. Hobby farmers are an important component of the County’s agricultural economy, since their limited time on the farm often requires the assistance of full-time farmers for feed, harvesting and other services. Some farm owners do not farm at all; instead they lease their land to farmers to keep it in agriculture. This particularly helps grain farmers, because the more acreage they farm, the higher the yield and resulting profits (for more on agriculture, see the Agriculture Profile in this chapter). Economic Development In Hunterdon County, the Hunterdon County Chamber of Commerce focuses on regional economic development. The Hunterdon County Chamber of Commerce is an action-oriented private business organization. Its mission is to provide its members with opportunities for business leadership and business and professional development. Chamber members and officers have worked closely with the Hunterdon County Planning Board on regional growth management projects. The Hunterdon County Planning Board is an affiliate member of the New Jersey State Data Center. As a member, the County is given direct access to demographics, projections, employment and other economic information, which can be distributed to the general population upon request. The Board also compiles a data book summarizing Census data, development activity, and related data, and prepares population estimates and projections. At the municipal level, there are organizations established for the sole purpose of promoting economic development and revitalization. In addition to these organizations, every municipality in Hunterdon County is involved to some degree in economic development activity. By virtue of the power to zone and the ability to locate and permit or prohibit specific land uses, municipalities influence the type of businesses and industries that locate in their communities.

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Employment, Income, Tax Base Hunterdon County’s socio-economic profile measures the strength and direction of the County's economy. Income data measures the buying power of county residents. Employment statistics indicate the number and type of jobs in the County, as well as the extent to which residents are able to find jobs. Tax data indicates the wealth of local governments, a barometer of the community's ability to provide goods and services for its residents. Labor Force and Income The socio-economic profile of Hunterdon County residents has changed significantly during the last few decades of the 20th century. Hunterdon County’s labor force, defined as the number of people who are over 16 years of age and are able and willing to work, was 60,121 in 1990 and 65,094 in 2000. By 2010, the New Jersey Department of Labor projects that the labor force will grow to 84,900 (Table 1). The percentage of people in the labor force who are unemployed is referred to as the unemployment rate. Historically, Hunterdon County has had a low unemployment rate, virtually half the rate of New Jersey and the United States. The average annual unemployment rate in 2000 was 1.8% for Hunterdon County and 3.8% for New Jersey. Income levels in Hunterdon County have risen significantly over past decades, since an increasing percentage of Hunterdon residents are highly-skilled professionals. In the 1970s and 1980s income levels trailed slightly behind Morris and Somerset Counties. For 1999, the 2000 Census reported that Hunterdon County led New Jersey in affluence with a median household income of $79,888. The statewide median household income for 1999 was $55,146, higher than the national average, but significantly lower than Hunterdon County. In 2000, Hunterdon County’s median per capita personal income of $51,018 was the 13th highest in the nation.

Table 1. 1990 and 2000 Census Data. Labor Force Projections Source: NJ Dept. of Labor (The Dept of Labor does not project Employment, Unemployment Rates, or Median Household Incomes) Note: Employment statistics are based on the employment status of Hunterdon County residents.

1990 2000 2010 2020 %

Change: 2000—2020

Labor Force 60,121

65,094 84,900 90,000 38%

Employment 57,500 63,448 64,700 74,800 18%

Unemployment Rate

2.7% 1.8%

Median Household Income

$54,628 $79,888

Employment Employment figures are available from the New Jersey Department of Labor using statistics gleaned from the information filed for unemployment insurance. The data is referred to as "covered employment" and excludes all self-employed residents, including farmers (Table 2). Covered employment numbers include all jobs that exist in Hunterdon County, regardless of whether or not the employee is a County resident. In 1998, there were an estimated 47,100 total jobs in Hunterdon County. Of these jobs, 25% were goods-producing and 75% were service-producing. The goods-producing jobs include construction work and manufacturing facilities. Merck & Co. in Readington Township was included in this category. The category of service-producing jobs includes everything that is not construction or manufacturing. The largest sub-category of service jobs in the County is local services, which includes engineering and management firms, health services and a wide variety of small businesses. The second largest sub-category is retail trade. Currently the marketplace in Hunterdon County consists of predominantly small businesses. Out of 7,564 businesses, 7,220 (95%) employ fewer than 25 people, while only 61 (less than 1%) employ 100 or more. Among the largest employers are Chubb Insurance Company, Foster Wheeler, Merck & Co. and the Hunterdon Medical Center (Figure 1 and Table 3). Local Taxes In New Jersey, municipalities pay for or contribute to a variety of services including local police and the lion’s share of education costs, all of which are funded through local property taxes. Local tax data is an indication of how well a local government can provide services to the community, and at how reasonable a cost. Property taxes can be affected by budgetary changes, bonding, changes in land use or ratables, and changes in municipally-provided services. The idea of “high taxes” is relative; without a universal ceiling or standard (for example, x% of income or y% of property value), tax rates are relative to a specific time and place. Nevertheless, New Jersey has some of the highest per capita property taxes in the country (Table 4), even with recent reassessments that, for the most part, lowered local taxes. The cost of education comprises 70% of the local property tax bill and is typically the sole target of property tax reform. Without a constitutional change to the tax laws, munici-palities are left to land use strategies, such as encouraging nonresidential development for the alleged net increase in tax revenue.

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Percentage of Hunterdon County Businesses by # of Employees

1

2-4

5-24

25-99

100-249

250-499

more than 500

Figure 1. Percentage of Hunterdon County Businesses by # of Employees Source: Hunterdon Economic Partnership, 2002 Statistics

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This strategy, commonly referred to as the ratables chase, has been scrutinized for its impact on a municipality’s fiscal health, as well as alleged increases in residential and nonresidential development pressures. Recent studies in New England towns have found no predictable correlation between municipalities with a high percentage of nonresidential development and low or stable taxes. Municipalities with high percentages of commercially- and industrially-assessed properties do not necessarily have the lowest property taxes. Future research will likely reveal a complicated matrix of variables that influence the net benefits of tax ratables. Although some Hunterdon County municipalities actively promote nonresidential development for tax benefits, others promote it for local employment and a diversification of the local economy. These are legitimate economic reasons for promoting nonresidential uses and should not be ignored as debates about the ratables chase continue. The aggregate amount of land in Hunterdon County taxed as commercial or industrial development in 2001 was just 7,952 acres, or 2.8% of the County’s gross land area. Municipalities with the highest value of commercial and industrial development are Readington, Clinton and Raritan Townships. The municipalities with the largest overall percentage of commercial and industrial development are Flemington and Lebanon Boroughs, the Town of Clinton and Union Township. Raritan Township, a municipality with a high value of nonresidential development, has one of the highest per capita property taxes in the entire country (Table 4). At the same time, small towns, such as Flemington and Lebanon Boroughs, tend to have the largest percentage of commercial and industrial development in the county, as well as some of the highest tax rates.

Merck & Co. in Readington Township Home Depot in Raritan Township

Niece’s Lumber in Lambertville.

Bed and breakfast on a Hunterdon County farm

Table 2. Estimated and Projected Employment by Major Industry Group, 1998-2008: Hunterdon County, NJ. 1. Data for industries w/less than 3 units or for industries having fewer than 100 employees or for industries where one unit makes up 80 percent or more of the total industry employment have been suppressed. 2. Employment and change rounded to fifty. 3. Employment change and percent change based on unrounded data. Source: NJ Department of Labor, December, 2000.

1998 2008 Change: 1998– 2008

Industry Title Number Percent Number Percent Number Total Annual

Total Nonfarm Payroll Employment 47,100 100.0 53,100 100.0 6,050 12.8 1.2

Goods-Producing 10,550 22.4 9,750 18.4 -800 -7.5 -0.8

Mining - - - - - - -

Construction 2,550 5.4 2,800 5.3 250 9.7 0.9

Manufacturing 8,000 17.0 6,950 13.1 -1,050 -13.0 -1.4

Service-Producing 36,500 77.6 43,350 81.6 6,850 18.7 1.7

Transportation, Comm., Utilities 1,250 2.7 1,550 2.9 300 22.9 2.1

Wholesale Trade 1,850 4.0 2,250 4.2 350 19.8 1.8

Retail Trade 8,850 18.8 10,500 19.8 1,650 18.7 1.7

Finance, Insurance, and Real Estate 2,650 5.7 2,800 5.2 100 4.4 0.4

Services 13,650 29.0 17,700 33.4 4,050 29.8 2.6

Public Sector, w/Public Education 8,250 17.5 8,600 16.2 350 4.0 0.4

Percent Change

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Employer Municipality # of Employees

Ingersoll Rand Tool & Hoist Div Clinton Twp. 150

Ino Therapeutics Union Twp. 100-249

Interstate Iron Works Readington Twp. 100-249

Johanna Foods Raritan Twp. 250-499

Kitchen Magic Bloomsbury 100-249

Kullman Industries Clinton Twp. 250-499

Lambertville Station Lambertville 100-249

Magnesium Elektron Inc. Kingwood Twp. 120

Merck & Co. Readington Twp. 1800

New York Life Clinton Twp. 400

Quick Chek Readington Twp. n/a

Raritan Valley Disposal Raritan Twp. 100-249

Readington Farms Readington Twp. 100-249

Shop-Rite of Hunterdon Clinton & Raritan Twps. 440

Smurfit-Stone Container Kingwood Twp. 125

Sprint Clinton Twp. 148

Tekni-Plex Inc. Flemington 100-249

WalMart Franklin Twp. 200

Wedco Bethlehem Twp. 250-499

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Employer Municipality # of Employees

3M Raritan Twp. 170

A.M. Best Tewksbury Twp. 250--500

ADP Clinton Twp. 100--249

Atlantic Spring Raritan Twp. 100-249

Bemis Co. Flemington 100-249

BOC Inc. Lebanon 250-499

Burlington Coat Factory Flemington 100-249

ChubbInsurance Co. Readington 1,500 (Year 2002)

Curtis Specialty Papers Milford 100-249

ExxonMobil Research & Eng. Clinton Twp. 500-999

Fibermark Inc. Milford 100-249

Flemington Car & Truck Raritan Twp. 293

Flemington Dept. Store Raritan Twp. 100-249

Foster Wheeler Union Twp. >1500

Georgia Pacific Milford 100-249

Hitran Corp. Raritan Twp. 130

Hunterdon Care Center Raritan Twp. 175

Hunterdon County Flemington 500-999

Hunterdon Hills Playhouse Union Twp. 100-249

Hunterdon Medical Center Raritan Twp. 1600

Table 3. Major Employers in Hunterdon County, 2001 Source: Hunterdon Economic Partnership Note: Employees are sometimes listed by ranges for purposes of maintaining confidentiality.

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Table 4. Tax rates by Municipality, Hunterdon County, NJ. Notes: 1. The tax rate is the dollar

amount per $100 of the 2. assessed value of property to

be paid in taxes. 3. The tax information shown

takes in to account all taxes within the municipality

Primary data source: Hunterdon County Board of Taxation.

TAXING DISTRICT 2006 2005 2004 2003 2002 2001 Alexandria Township 2 1.88 1.84 2.97 2.8 3.105 Bethlehem Township 2.7 2.65 2.58 2.44 3.03 2.815 Bloomsbury Borough 1.75 3.37 3.28 3.16 2.72 3.375 Califon Borough 2.3 4.1 3.89 3.73 3.39 4.025 Clinton Town 2.3 2.44 2.69 2.57 2.74 2.851 Clinton Township 1.9 2.35 2.24 2.13 2.31 2.366 Delaware Township 1.93 1.8 2 1.9 2.11 2.086 East Amwell Township 1.78 1.67 3.09 2.87 2.78 3.398 Flemington Borough 2.38 2.39 2.78 2.71 2.77 2.936 Franklin Township 2.22 2.06 2.01 3.06 2.94 3.19 Frenchtown Borough 2.42 2.25 2.13 3.54 3.38 3.707 Glen Gardner Borough 2.68 2.47 2.43 2.41 3.34 3.044 Hampton Borough 2.22 4.34 4.44 4.03 3.81 4.629 High Bridge Borough 2.59 2.39 3.79 3.55 3.32 3.914 Holland Township 1.8 1.68 1.93 1.74 2.27 2.184 Kingwood Township 3.08 3.08 2.8 2.68 2.53 2.384 Lambertville City 1.51 1.66 1.79 2.08 2.44 2.58 Lebanon Borough 3.05 3 2.91 3.02 2.89 2.884 Lebanon Township 2.64 2.53 2.44 2.24 2.03 1.923 Milford Borough 2.62 2.55 2.53 2.2 2.9 2.623 Raritan Township 3.44 3.21 3.1 2.99 2.9 2.738 Readington Township 2.38 2.21 2.07 1.96 2.26 2.029 Stockton Borough 3.31 3.14 2.96 2.99 2.71 2.617 Tewksbury Township 2.22 2.2 2.1 1.96 1.88 1.796 Union Township 2.49 2.34 2.2 2.07 2.06 1.893 West Amwell Township 1.71 1.56 1.58 1.78 1.97 1.942

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Policies, Strategies and Actions Economic Development

Explanation of Economic Development Policy Planning for economic development must be done within the context of the local and regional economy. Although municipalities can shape economic development strategies to meet the needs of local residents, existing businesses and community goals, consumer trends and leading industries cannot be ignored. In an area that strives to preserve its community character, municipalities should adopt land use policies that address this value, while developing strategies to accommodate economic development. Current economic trends that communities should consider include: • Agricultural markets - The county's commitment to farmland preservation and the concurrent

decline of profitable agricultural commodities reinforces the need to seek out new markets and explore new farming possibilities. In order to maximize profitability, agriculture zoning can permit a wide variety of agriculture-related activities, including businesses and industries that provide markets for local agricultural products.

• The changing demands of retail businesses - The retail industry is dynamic and constantly

changing to meet consumers' needs. Regional indoor malls were once thriving elements of the retail industry and a 50,000 square-foot building was once the maximum floor area required by discount stores. While several commercial buildings, both large and small, have been vacant in the Flemington area for years, the development of new commercial buildings has increased at an unprecedented rate, all within 1-2 miles of vacant structures. In an effort not to overzone for commercial uses, flexible zoning and other incentives can facilitate the conversion and/or redevelopment of vacant buildings to accommodate new or mixed uses.

• One-stop shopping - Common sense tells us that people prefer to travel fewer miles to purchase

goods and services. Communities can plan for one-stop shopping, avoiding single-use buildings and limiting commercial developments to targeted, concentrated areas, minimizing the effects of traffic and unsightly sprawl while addressing consumer needs.

• Ratables chase - Encouraging local employers, goods and services is a laudable goal; however,

there is a risk of attracting spotty, unfocused growth, traffic problems, and increased development pressures. The ramifications of nonresidential zoning must be carefully evaluated for such negative consequences, and municipalities should be engaged in comprehensive, long-term planning,

• addressing regional issues including traffic, as well as site planning details, such as shared parking and streetscape considerations.

Economic Development Policy: * Link planning of commercial growth to local needs and market forces *Support State Development and Redevelopment Plan policies

Strategy #1: Local Redevelopment Typically, urban blight comes to mind when we talk about redevelopment needs in New Jersey. Yet, the Local Redevelopment and Housing Law (LRHL), the law that provides municipalities with revitalization tools, is applicable not only in urban areas but in suburban and rural areas alike. In fact, Lambertville and Milford Borough are two communities in Hunterdon County that have taken advantage of the LRHL to revitalize a residential and industrial area respectively. The state redevelopment law offers municipalities a powerful tool to revitalize properties in need of rehabilitation or redevelopment. It allows them to designate these properties; develop and adopt plans and ordinances for the specific areas; and undertake revitalization projects. Other strategies such as the redevelopment of brownfields or grayfields properties can be used in conjunction with this designation. In addition, declaring an area in need of redevelopment gives municipalities the power to use eminent domain to acquire property and then convey it to a redeveloper; grant tax exemptions to redevelopers; and assist in financing redevelopment projects via bonding, grants and loans. At the same time that these are powerful tools, they are also highly complex processes and should be pursued after other approaches, such as rezoning, have failed, the area of concern has been vacant or underused for a long time and/or the municipality wants control over what is built. Another option for increasing the economic viability of older commercial properties is through Main Street New Jersey (MSNJ). MSNJ is part of a national program sponsored by the National Trust for Historic Preservation which focuses on the revitalization of traditional downtown business districts and the promotion of economic development through historic preservation. This program is discussed in greater detail in the Historic Resources chapter of this plan. Action #1: Hunterdon County Planning Board offers programs to municipalities to learn more about

redevelopment opportunities available to them. Action #2: County Planning Board offers planning, data and site design assistance to municipalities

undertaking redevelopment projects. Action #3: County Planning Board promotes Main Street New Jersey as an alternative to suburban

style commercial development.

Strategy: Utilize various tools to redevelop non-residential properties. References: 1. The Redevelopment Handboo Guide to Rebuilding New Jersey’s Communities www.njredevelopment.com 2. New Jersey Main Street http://www.nj.gov/dca/osg/resources/msnj/drmi.shtml 3. New Jersey Brownfields Redevelopment Task Force http://www.nj.gov/dca/osg/commissions/brownfields/taskforce.shtml

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Strategy #2: Economic Development Master Plan Element Not all municipalities want nor should they necessarily attract significant ratables to their communities. While some ratables, even if just local services, can be beneficial, the desire to maintain a balance of uses and a more rural lifestyle should limit the amount of residential and nonresidential growth. In either event, all municipal master plans should contain an economic plan element. The Municipal Land Use Law sets forth basic requirements for this plan element. This includes a comparison of the types of employment anticipated with the characteristics of the labor pool in the municipality and surrounding area; and an analysis of the stability and diversity of the economic development to be promoted. But the economic development plan element should go beyond this. In it, the municipality can document the type, intensity and general location of nonresidential development it is seeking and the likely impact this will have on residential housing demands, including affordable housing. Likewise, it can document the likely impact of residential housing on future economic development. A build out analysis should be included either here or in the land use plan element, to indicate the extent of nonresidential development that will result and to ensure this is consistent with the overall master plan vision. Action #1: Hunterdon County Planning Board uses forums such as its Breakfast Talk Series to educate municipal officials about the value of adopting economic development plan elements into local master plans. Action #2: Hunterdon County Planning Board collaborates with Hunterdon County Chamber of

Commerce to undertake a market analysis of commercial development potential and limitations in Hunterdon County. Action #3 Hunterdon County Planning Board collaborates with organizations in the agriculture and

tourism sectors to promote these opportunities as viable economic development strategies in municipalities.

Strategy: Promote the adoption of economic development plan elements into municipal master plans. References: 1. Municipal Land Use Law

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Population Between 1950 and 1990, Hunterdon County’s population growth ranged from 23% to 29% per decade. Although growth rates declined to 13% between 1990 and 2000, Hunterdon County ranked third in population growth among counties in New Jersey, following only Somerset County (23.8%) and Ocean County (17.9%). Hunterdon County’s population in 2000 reached 121,987. New Jersey experienced a growth rate of 9% over the past 10 years, slightly less than the national growth rate of 13%. This modest growth did not affect its status as the nation’s most densely populated state with 1,134 persons per square mile.Hunterdon County covers 429.94 square miles and added an average 30 persons per square mile in the last 10 years. At 283.7 persons per square mile, it has the third lowest population density of all counties in the state; only Sussex County (276.6) and Salem County (190.3) have lower densities. Population projections for the County show a continued increase of moderate population growth (Table 1). By 2020, the County’s population will reach 152,889, a 25.3% increase from 2000. Projections were developed using the New Jersey Department of Labor (NJDOL) projected growth rate, knowledge of pending development applications, vacant developable properties and preserved properties. The County’s projected growth exceeds that of the NJDOL by 134,139 in 2010 and 149,947 in 2020. Municipal Growth Trends and Projections Between 1990 and 2000, some of the fastest growing municipalities in the County have been those with close connections to major transportation corridors, such as the Townships of Raritan (27%), Readington (18%), Clinton (19%), Bethlehem (23%) and Union (21%) and the Town of Clinton (28%). One of the more rural municipalities, Alexandria Township, experienced the highest growth rate (31%). Raritan, Readington, and Clinton Townships contain the largest resident population while the smaller municipalities contain the highest densities. For example, both Flemington and the City of Lambertville contain over 3,400 persons per square mile compared to the County’s 283.7 persons per square mile. Municipal projections through 2020 predict that Raritan, Readington and Clinton Townships will continue to lead the County in total population (Table 2). The highest growth rates between 2000 and 2020 are predicted to occur in Alexandria (65%), followed by Bethlehem (48%), Union (45%) and Clinton Townships (43%). Flemington is projected to reach full build out by 2020.

Over the past several decades, population growth has driven new housing development and increased school enrollment throughout Hunterdon County. County residents are among the wealthiest and its housing prices among the highest in the state. As the population continues to grow and age, housing demand will shift as well. Assuming housing prices remain high, affordability to all but a limited segment of the population will become more and more of a reality.

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Hunterdon County Profile People and Housing

Documents

Part 2 - Hunterdon County, New Jersey