Prepared by The Lancaster Campaign, January 2, 2003

The contents of this strategic plan will remain little more than an interesting study with intriguing recommendations in the absence of a clear strategy for implementation. There is a critical need to have an organization that specifically focuses on the findings of this action plan – this focused approach is critical to ensure success.

Currently, no existing economic development agency or organization in Lancaster is so narrowly focused and, as such, none have agreed to assume specific responsibility for this challenging assignment (all these organizations, however, must play a coordinating role in the implementation of the plan due to the unique skills each agency brings to the table.)

To move forward with the greatest opportunity for success, a true “public/private partnership” is required that brings together the city, the county and a blend of private sector leadership that ranges from young entrepreneurs to seasoned captains of industry.

This strategy is of the highest priority and should be initiated in the spring of 1998 and funded by July of 1998.

In the fall of 2002, Mayor Smithgall formed Team Lancaster to foster greater coordination and prioritization of the City’s economic development projects. The Lancaster County Planning Commission will facilitate a systematic approach to these efforts.

• Success in addressing this strategy is critical if the City is to move ahead efficiently and effectively in the short term (preparing for the Convention Center) and long term (ensuring a vital, thriving business climate in the years to come.)

Major changes are needed in the way economic development is handled in the Lancaster area. The city must address the need for development incentives, streamlining the process for obtaining development permits, and the impact of taxes on the cost of doing business. Improved inter-governmental cooperation and generally “leveling the playing field” between the city and surrounding townships are also essential. The need for these changes must be given high priority.

Lancaster recognizes the critical role workforce development plays in economic development and has a number of programs and initiatives in place to address this issue. The Economic Development Action Agenda focuses on infrastructure and therefore does not include a strategy for workforce development out of deference for the existing efforts already in process.

Major progress by the end of 1998.

Intergovernmental cooperation and communication and regional strategic planning, continue to be critical elements.

Progress is demonstrated in:

• The Mayor’s participation on the Lancaster Intermunicipal Committee
• The April 23, 2002 resolution of City Council authorizing appropriate City officials to participate in a draft Regional Comprehensive Plan
• Working with Manheim Township on Red Rose Commons
• Pursuing Heritage Tourism and Regional Wayfinding signage programs.
• The DID has been renewed by property owners for six years, instead of four, and the boundaries have been expanded.

  Regarding City tax structure, greater progress is needed in this area. The School District’s comparatively high tax millage rate and City tax structure are serious problems yet to be solved. State-led efforts to change the way public education is funded may help to address the School District challenge. Progress is demonstrated by:

• Enacting LERTA and tax increment financing.

  Regarding planning and zoning regulations, progress is demonstrated by:

• An Application Review Team now helps developers have a full understanding of all requirements and restrictions early in the process
• CM industrial zoning has been amended to meet current needs
• Negative developments are more frequently prevented through advocacy at zoning hearings.

Regarding adopting and enforcing design standards and criteria for all new development, progress is demonstrated by:

Adoption by City Council of the Heritage Conservation District Ordinance in 1999 and the Historic District Ordinance in 2001, both of which contain design standards for all new construction in an area encompassing approximately 80 percent of the City's original four-square miles.

Regarding streamlining the development permitting process, progress is demonstrated by:

• Creation of the Application Review Team;
• Agreement between the City and the County to streamline approval/permitting process. The County Planning Commission and the City Bureau of Planning have cut in half the formal review time for key economic development projects;

  Regarding incentives for development and creating a strong new entrepreneurial development friendly attitude, progress has been made through:

• LERTA, tax credits, low interest gap financing, federal historic tax credits
• Creation of KOZ, Infrastructure Development Program, Pride Small Business Program, Enterprise Zone, City’s National Register Historic District designation.

Regarding internal and external communications, and marketing and promotion for downtown and the city, no formal citywide plan currently exists. However, one-to-one meetings with prospective businesses help to promote the city as a viable business location. Progress noted on marketing and promotion includes:

• Marketing of Enterprise Zone and KOZ
• Discover Downtown brochure, the DID’s “What’s Happening” newsletter, City website and special events promotion
• Financial support for downtown marketing managed by PDCVB of PDCVB.

  Progress noted on adopting and enforcing design standards and criteria includes:

• Secured covenants for South Prince Street industrial park
• Adopted a look for signage and carried it over to other products
• Trash can design selected and implemented in some areas
• Community involvement in design charrettes for Lancaster and Penn Squares.

• Amend zoning ordinance to strengthen the role of the central business district as a regional commercial and cultural destination.
• Develop formal community-wide design standards for trashcans, benches, etc.
• Develop business ownership opportunities among communities of color.
• Increase marketing of downtown business opportunities.

Tourism is a major economic development activity in Lancaster County. Over-development in the Route 30 corridor and a dramatically changing national/ international tourism industry has resulted in some indication that tourism is declining in the county. At the same time, urban heritage tourism is growing in popularity both in this country and internationally. Downtown Lancaster has the potential to become a major downtown heritage tourism destination and an important component of the Lancaster County tourism product.

initiate in 1998 and continue for 3 to 4 years; the goal is to have 200,000 visitors by 2000.

• A Tourism Development Action Group was created and convened by the DID. Membership includes representatives from the DID, the Campaign, the Chamber, the City, the PDCVB, and the County. This partnership provides $56,000 per year for city marketing through the PDCVB.
• PDCVB distributes Discover Downtown Lancaster brochures to their markets
• PDCVB provides the City with free ad space in their visitor’s guide
• Several successful “familiarization” tours have been held for “sales people” and others in the County to learn more about the City.
• The City successfully nominated approximately 80 percent of the original four-square mile area to the National Register of Historic Places, enhancing the City’s position as a heritage tourism destination.

  Regarding new attractions, the following progress is noted:

• Attracted and helped finance a glass studio in the KOZ
• Pride Financing financed Zoetropolis
• A quilt museum will open in the Lancaster Trust Building in late 2003
• The Rocky Springs Carousel, now known as the Stoner Carousel, will be part of the Lancaster Square redesign
• There is strong community support for the new hotel and convention center
• The PDCVB funded a visitor center study
• A family of promotional materials has been created replicated the "wayfinding" design elements. This family of materials produced by PDCVB, the DID, RRTA and the City includes visitor brochures, maps, schedules, and posters. In addition, window decals, kiosks, and street banners have been designed to embrace the wayfinding look, further creating a "sense of place.
• The PDCVB has committed money for a Penn Square information person during the height of the tourist season
• DID has expanded its efforts in marketing downtown.
• Parking restrictions have been eased on weekends and at night.
• Downtown Lighting Program deals with creating a festive evening atmosphere. Some ornamental street lighting has been financed through CDBG funds for 100 block of East King. A neighborhood-based pilot lighting project on the 200 block of East King was implemented. This project involves the installation of wall-mounted lights at almost all doorways, using photocells to assure dusk until dawn lighting.
  Future Activity:

• The Convention Center will draw new attractions, but specific gaps in the types of attractions needed must be identified.
• Further progress is needed promoting evening activities as a niche market. First Fridays and some outdoor dining have been the main efforts to date.
• Additional free on-street parking and better promotion of all free parking is needed.
• Further develop public transportation within the downtown business core.
• Link conventioneers with regional attractions.
• Lancaster City Heritage Tourism Development Strategy.
• Walking Tour, Thaddeus Stevens Interpretive Center, Quilt Museum, Freedom of Religion Tour, Towns and Villages Tour.

The current economic development strategy planning process has not produced meaningful changes that would enhance traffic and transportation operations within the study areas. The State and County give no hope for major relief to congestion on Prince Street and within Downtown Lancaster. The existing street system is operating at or near capacity, in some cases over capacity. A balanced solution to metropolitan transportation problems is required.

Initiate in 1998 and continue over several years.

• A traffic-engineering consultant compiled data on truck traffic and re-routing was recommended. City Council is currently reconsidering the recommendation.
• A circulator trolley has been successfully tested in the downtown for two summers.
• The Inner City Group has completed designs for improvements to South Duke Street and work is progressing.
• A new RRTA Transfer Station is being constructed on N. Queen, which will remove parked buses from the street, while re-creating streetscape continuity.
• The YMCA will begin significant expansion and renovation.

• Much work remains to be done on the other corridors into the city. There is a sub-committee of Economic Development Action Group that is formulating plans for North Prince Street, and South Duke Street and Lancaster Square are well underway, but South Water Street, the fourth corridor named in the Plan, still needs to be “adopted.”
• An engineering study was completed to examine the feasiblity of converting some one-way streets into two-way streets. It was concluded that Orange, Duke, Chestnut and Queen could be converted into two-way streets without detracting from the levels of service.
• Regionalize wayfinding. Arrival signs have begun to be installed and pedestrian signage is being conceptualized.
• Restore AMTRAK station, make it intermodal, and increase parking.
• 1 bridge replacement and 3 bridge rehabs.
• Resurface 222 from Prince St. to Golden Triangle.
• Regional Commuter Rail System.
• Truck route.
• Arrival signs to public attractions.
• Permanent rubber-wheeled trolley in downtown.
• Provide transit to jobs.

The City of Lancaster is tightly confined in terms of its corporate limits and the availability of land for development. Finding a well-located site of adequate size that can be developed or redeveloped for economic development purposes is the challenge.

The Northwest Triangle Employment Campus, as illustrated in Exhibit 3, is a strategically located site between Prince Street and Harrisburg Pike, including the new Liberty Street mixed-use project. The Northwest Triangle Employment Campus is envisioned as a high quality urban environment promoting a mix of office, research and development, and light manufacturing uses. The area is constrained by difficult access, traffic congestion, irregular parcel shapes, limited infrastructure and no identifiable, cohesive image that is marketable to the private sector. The campus concept illustrated on Exhibit 3 is designed to alleviate these problems, while providing a broader, more flexible approach that can accommodate a range of potential developers and employers. Importantly, the Northwest Triangle is effectively linked to other important supporting resources: (1) The Liberty Street Mixed-Use Building, (2) Franklin and Marshall College, (3) the Lancaster Regional Transportation Center, and (4) the Lancaster YMCA.

Hold grand opening in early 2001.

• Norfolk Southern, until recently, has steadfastly refused to consider selling any portion of its land. However, they recently agreed to consider this. EDC is negotiating with them to assemble sufficient property to create a community asset.
• The old Armstrong Headquarters on Liberty Street was acquired and developed and improvements have been made to the streetscape. Liberty Street west of N. Prince was converted into an attractive boulevard. This $300,000 project was completed at no cost to the City.
• Streetscape improvements are occurring slowly and include improvements to: the 300-400 block of North Prince Street, McDonald’s on West King Street, the Shand parking lot on West King, and planters and trash receptacles on several blocks. Lenox Lane is being upgraded and Musser Park will receive a $500,000 facelift.
• The firm of Derck and Edson was hired to recommend street furnishings.
• Wayfinding signage has been implemented. Arrival sign aspect of the program is underway.
• The Crime Commission and Bureau of Police have developed plans to ensure safety in the downtown and better quality of life within the neighborhoods.

Efforts to demonstrate that downtown is safe need to continue and we need to reinforce a positive image of the city.

Strategy # 6: Lancaster Square/Hotel Brunswick/Conference Center

The Challenge:

Lancaster Square is one of Downtown’s major focal points and centers of activity. Currently the Square is underutilized and the public infrastructure is dated and worn out. Redevelopment of the Square provides the opportunity for reinvestment in surrounding uses, such as the Armstrong/Lancaster Square Building and the Hotel Brunswick. With upgrading of the hotel, there is the opportunity to create a small, state-of-the-art conference center and additional hotel space.

Original Timeframe:

Will take several years to complete.

Progress to Date:

• Most of the factors influencing this strategy have changed since the Plan was developed. The conference center planned for Lancaster Square will now be a convention center in Penn Square.
• The City has contracted with Hunter Interests, Inc. for the renovation of Lancaster Square. Plans have been developed and shared publicly, some funding has been obtained and more being sought for design and construction.
• The owners of the Brunswick have made some improvements to the interior and exterior of the hotel. It now bears a Ramada flag. Exterior improvements will likely be part of the Lancaster Square project.

Future Activity:

Recruit master developer to implement plan.

Strategy # 7: Heritage, Arts, Cultural District

The Challenge:

Lancaster has a large number of arts, cultural and heritage-related buildings and activities located downtown. The concept of a heritage, arts and cultural district should reinforce and support existing uses such as the Lancaster Heritage Center Museum, historic Fulton Opera House, Pennsylvania School of Art and Design, Pennsylvania Academy of Music, the Chameleon Club, theater groups, and private art galleries, coffee shops and clubs. Adding to the arts, cultural and heritage base would be highly desirable in terms of the overall mix of uses within downtown; it also adds to the attractiveness of downtown as a destination for residents and visitors.

Original Timeframe:

Begin in 1998 and continue as an ongoing project.

Progress to Date:

• Destination Downtown!, an action group of the Lancaster Campaign, was formed to take on this challenge. The group is currently working on defining and developing an arts district on North Water and North Prince Streets. Elements from this district can then be used as a prototype to develop other districts in the City.
• Destination Downtown! has developed a database of all attractions in the City.
• Destination Downtown! has coordinated the design, fundraising and installation of wayfinding signs to identify many arts/culture/heritage venues.
• A new quilt museum is in the works, the Rocky Springs Carousel is finding a home, Hole In the Wall Puppet Theater is opening a museum, the Academy of Music and the Museum of Art are both planning expansions.

Future Activity:

• Update the attractions database, and find ways to share this information with the public, visitors, hotel concierges, etc.
• Create an arts district that has a distinct look and sense of place while enhancing and fitting in with the City overall.
• Academy of Music and Museum of Art expansions.
• Develop the “cultural entertainment district” as recommended by the Final Report For The Lancaster Square Master Plan

Strategy # 8: Central Market Strategic Plan

The Challenge:

Lancaster’s historic Central Market represents a major economic development opportunity. The Central Market is a treasure located in the heart of downtown. In order to achieve its maximum potential as an attraction for area residents and visitors from around the world, the Market needs careful and sensitive attention to retail mix, management policies, and operations. An action-oriented strategic plan is required.

Original Timeframe:

Should be initiated in spring of 1998 and completed no later than early 1999.

Progress to Date:

• Friends of Central Market has been formed to support the standholders and create awareness about all market has to offer.

Future Activity:
• Develop a strategic plan to maximize Central Market’s potential as an attraction.

Strategy # 9: Watt and Shand Building

The Challenge:

The Watt and Shand Building at Penn Square is the heart and soul of Downtown, Lancaster City, and the County. It is already a special place and one of great beauty, charm, interest and vitality. The challenge is to further reinforce this special place and to bring about the meaningful redevelopment of the Watt and Shand Building.

Original Timeframe:

An objective of the owners and the Executive Council should be to transition the property to a preferred developer by the end of 1998 with development occurring during 1999 and 2000. The property should be fully occupied by January 2001.

Progress to Date:

• Penn Square Partners and Lancaster County Convention Center Authority have been formed.
• Plans for a convention center and Marriott Hotel are underway.
• Design charettes have been held and the architects’ concepts/designs have been shared with the community.
• Although several county hoteliers continue to challenge the project, numerous court/judicial opinions have been returned in favor of the project.

Future Activity:

• Market convention center to meeting planners.
• Develop name of the center.
• Develop hotel retail plan.
• Develop Ambassador Program.
• Continue King Street revitalization.
• Assess infrastructure needs for convention center and plan for improvements.
• North Prince Street Gateway Project.
• Market the Swan Hotel to potential developer.
• Support city marketing/branding campaign.
• Establish support from countywide business community.
• Develop overflow and multiple venue system.
• Secure neighborhood support for convention center.
• Continue hospitality training.

Strategy # 10: Downtown Parking

The Challenge:

At this time, Downtown Lancaster is reasonably well served with strategically located public parking facilities. Parking is more readily available than is sometimes perceived by those who rarely visit the City. Future growth and development will create new demands for expanded public parking resources.

Original Timeframe:

Initiate in 1999 and keep up-to-date routinely.

Progress to Date:

• The Parking Authority commissioned the Walker Study of parking needs.
• The Authority has completed, within budget limitations, signage, lighting and environment improvements in all garages.
• Negotiations have been completed for the Convention Center Authority to acquire the King Street Garage and sites are being sought for a new garage or garages.

Future Activity:

• Develop future garage sites based on Walker Study.

Strategy # 11: Antique/Rare and Used Books Centre

The Challenge:

Some of the Queen, Orange, Prince, and King Street frontages of the Central Market block are vacant or underutilized. A number of the buildings have interesting interior retail spaces and arcades that can provide relatively inexpensive retail space for specialty uses like rare and used books, art galleries and antiques shops. While these are rather low-end retail uses, they provide the opportunity to create a concentration and critical mass of such uses that would attract people from great distances thereby complementing other retail and service uses within the block and within the downtown core. The image and interest in this block can be further enhanced through the use of the "Lanes and Alleys" of Lancaster proposed in Strategy #13.

Original Timeframe:

Could be initiated in early 1998, with tenants in place by Thanksgiving.

Progress to Date:

• The concept of a rare or used book center is less viable today than five years ago, largely because the role the internet plays in identifying used books. Original editions or rare books may be sold at an antique mall.
• The DID has taken the initiative on the concept of an antique mall. A committee has been formed and a business planned has been developed.

Future Activity:

• Pursue establishing an antiques mall in the City.

Strategy # 12: Chestnut Street Corridor

The Challenge:

Currently, underutilized and vacant properties along the north side of Chestnut Street from Prince Street to Duke Street present the opportunity to create a north side commercial anchor for the downtown core. While diverse ownership presents a challenge, the real opportunity rests in attracting new private development to these underutilized sites. The existing Police Headquarters Building can be redeveloped for new uses when the newly relocated headquarters facility is developed.

Original Timeframe:

Should be initiated in 1999-2000.

Progress to Date:

• A new police station is under construction on West Chestnut Street.

Future Activity:

• Redevelop the existing police station when a new one is complete.

Strategy # 13: "The Lanes and Alleys of Lancaster"

The Challenge:

The historic core of Lancaster is blessed with exceptionally large city blocks bisected by interesting alleys and lanes as shown on Exhibit 5. In many cases, these alleys and lanes are used as pedestrian ways, plazas and parks. Steinman Plaza is an urban space of exceptional quality that sets the tone for the concept of “The Lanes and Alleys of Lancaster.” The challenge will be to create a system of pedestrian lanes that are well streetscaped, have appropriate pavers, signage and lighting, and have interesting uses and access points to other street front uses as well.

Original Timeframe:

Should be programmed over a 7- to 10-year period beginning in 1999.

Progress to Date:

• No demonstration project was ever undertaken and very little has been done overall to enhance all of the alleys in the city.
• There are some successes: Lenox Lane is undergoing improvements, Christian Street Court is nearing completion, and the design team for the hotel and convention center are incorporating alleyways in their plans.

Future Activity:

• Develop alley demonstration project using Lancaster Square design opportunity.
• Complete Lenox Lane project.
• Complete Pennsylvania Academy of Music project.

Strategy # 14: South Prince Economic Development Center

The Challenge:

The south end of Prince Street includes a number of vacant and underutilized commercial/ industrial properties that can be redeveloped for new employment-generating uses. The challenge involves acquiring these properties, addressing environmental problems, providing public infrastructure, and creating the planned development of new uses.

An important part of this project calls for the extension of South Water Street to Fairview Avenue. The Water Street extension creates major new frontage for a variety of commercial and light industrial uses along its eastern border, backing up to new development along Prince Street. The Water Street extension also provides some traffic relief through this relatively congested part of Prince Street and it also provides access and a new “front door” for neighborhood residential development between Water Street extension and Brandon Park as suggested in Strategy #15.

Original Timeframe:

Begin in 1998-99 and complete over a 5 to 10 year period.

Progress to Date:

• The current KOZ is in this area.
• Funding and property acquisition is complete, as is all the feasibility work. Brownfields environmental cleanup is completed. Industrial park covenants are completed.
• The city has been successful in marketing this area to Rhoads Energy and Blythe Studios, and has several other businesses that have made preliminary commitments.

Future Activity:

• Continue marketing area for new business.

Strategy # 15: Brandon Park Residential

The Challenge:

While residential development could occur on this approximately 56-acre site, it becomes a more viable and interesting project with the extension of South Water Street, along the eastern edge. Importantly, this site provides an excellent location for the development of affordable market-rate housing that will benefit from its location next to the Economic Development Center and Brandon Park.

Original Timeframe:

Needs to be on the agenda over the next three years (1998-2000) and activated early in the new century.

Progress to Date:

The LDR Plan envisions extension of Water Street and market rate housing on a 56-acre site resulting from street extension.

Local efforts have focused on the Keystone Opportunity Zone. The following tasks have been completed:

• Land assembly through eminent domain
• Environmental assessment and clean-up nearing completion
• Funding of several public improvements
• Preparation of a development/site plan to maximize job creation
• Adoption of protective covenants and criteria for land sales
• Sale of Prince Street property for construction of Rhoades Energy facility.

The land was accomplished under a DEP agreement to authorize "a special industrial designation"; other initiatives would necessitate ground water cleanup and would be most cost prohibitive.

Future Activity:

• Investigate residential component of this strategy.

Strategy # 16: South Duke Historic Corridor

The Challenge:

With the urban renewal efforts of the 1960’s, the Southeast Neighborhood lost a large portion of its historic mixed-use core along South Duke Street. This area should be revitalized and marketed as the center for business, entertainment, culture, and recreational activities in the Southeast Neighborhood, as well as a unique attraction for the City of Lancaster to promote.

The South Duke Street Historic Core concept focuses on the area bounded by Church Street, Rockland Street, Dauphin Street and Christian Street. This area offers opportunities for both revitalization of existing buildings and development of new structures. The concept for the historic core is to focus existing neighborhood resources into a very tightly defined area to create the biggest positive impact with the available funds. Latin-themed and African American cultural attractions should be considered as a means of expanding the market for this area.

Original Timeframe:

Begin in the summer of 1998; public infrastructure programmed for 1999-2000 with new center of activity ready for development shortly thereafter.

Progress to Date:

The Inner City Group has worked with consultants to complete a planning process for this area. Input has been gained from the community and incorporated into the plan. Funding has been acquired to implement the plan.

The Inner City Group and Weed and Seed have completed the application to become a federal Weed and Seed program.

Strategy # 17: Cross Roads Commercial Center

The Challenge:

The Southeast Neighborhood has voiced a need for more commercial services along the South Duke Street corridor. The number of services needed exceeds the capacity of the South Duke Street historic core discussed in Strategy 16. Another area identified for larger scale, private commercial activity is at the “crossroads” of South Duke and Chesapeake Streets. Converting this area into a small, lively, multi-purpose commercial center will benefit both the South Duke Street community and the larger surrounding area, particularly to the south.

There are three distinct areas that form the Crossroads Commercial Center area. To the northwest there is Fulton Bank and Brothers Market, to the southwest there is Miguel’s Sport’s Bar and a car wash, and to the southeast there is an existing shopping center with Family Dollar as the anchor tenant. Each of these areas could better serve the community if they were developed to their highest potential.

Original Timeframe:

Needs to be on the agenda over the next three years (1998-2000) and activated early in the new century.

Progress to Date:

This has become part of the South Duke Street Revitalization Project of the Inner City Group. The Inner City Group is currently in the process of making façade improvements to the small strip commercial mall next to Fulton Bank, which is located on South Duke and Chesapeake Streets. Planning for improvements to the strip mall across from Fulton Bank will begin in 2003. Street improvements and linear park improvements are in the design phase now, with construction of improvements starting in 2003.