DCNR-2016-Plan
Plan-GPM – 10 Rev. 12-12
COMMONWEALTH OF PENNSYLVANIA
DEPARTMENT OF CONSERVATION AND NATURAL RESOURCES
BUREAU OF RECREATION AND CONSERVATION
COMMUNITY CONSERVATION PARTNERSHIP PROGRAM
MUNICIPAL GREENWAYS
AND OPEN SPACE NETWORK PLANS
General Information and Scope of Work Guidelines
INSTRUCTIONS: The following general information and examples of specific work tasks are
provided to assist in the development of a scope of work for Greenways and Open Space
Network Plans. Please use this information to first determine if your proposed study is best
conducted under this plan project type. A menu of scope options is provided. We encourage
you to develop your proposed scope, tailored to meet the planning needs of your project, and
submit this with your grant application. If your project is selected for funding, a detailed project
scope must be submitted and approved by the Bureau before proceeding with the project.
I.
GENERAL INFORMATION
A.
Before submitting a grant application and developing your scope of
work, please contact the Bureau's Regional Advisor for your area of
the Commonwealth to discuss your project and to develop a scope of
work that meets your needs and the Bureau’s requirements. (A
directory of Regional Advisors can be found in the Application Manual
or by visiting the DCNR website at: www.dcnr.state.pa.us).
B.
Identifying the Appropriate Greenway Planning Project:
According to “Pennsylvania’s Greenways: An Action Plan for Creating
Connections,” (Action Plan) greenways are linear corridors of public and
private land that serve as the linkages between specifically identified natural
resource-based or manmade features. They can be either land or water
based and serve a variety of functions and benefits including recreation,
transportation, community revitalization, economic development, natural
resource conservation, environmental protection, wildlife habitat and
migration and education. These corridors often follow old railways, canals,
ridge tops, rivers and stream valleys.
The Community Conservation Partnerships Program offers four planning
project types (each with sample scopes) under which greenway projects
could be studied: Greenways and Open Space Network Plans, Greenway
Plans, Rails-to-Trails Plans, and Rivers Conservation Plans. Here is basic
guidance on how to determine which project type will best meet your needs:
1. Greenways and Open Space Network Plan: The scope below was
developed for county planning. It was tailored to multi-municipal and
municipal greenways and open space network planning. The Bureau
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encourages such planning after a county has initiated its own planning
effort, established county policy and a countywide greenway network.
Such planning involves identifying natural and manmade resources and
a network of greenways that will connect these important resources.
The Bureau also recommends taking a multi-municipal approach to
greenway planning.
2. Greenway Plan: This type of planning targets a specific linear corridor
of open space that may have been identified in a greenways and open
space network plan discussed above or other local/regional planning
effort. This scope is best used for a greenway along a river/stream,
ridge tops, canals, road, and utility corridor, etc. There can be a broad
study purpose addressing both recreational use trails and resource
protection or a narrower focus on one or the other.
3. Rails-to-Trails Plan: If most (75%) of your proposed greenway is on or
adjacent to an abandoned railroad right-of-way and you want to study
converting it to a trail, refer to the Rails-to-Trails Plan scope.
4. Rivers Conservation Plan: If your project involves a significant water
resource (watershed, river or large creek) and you are most interested in
restoring, maintaining or enhancing this water resource, refer to the
Rivers Conservation Plan scope.
C.
Expectations of the Bureau
The Bureau has several priorities and expectations for greenways and open
space network plans. The purpose of your plan should be developed to
ensure that these expectations are met. We expect the following:
1. A key recommendation of the Action Plan is for each county to adopt a
county greenway plan by 2007. A pre-requisite for DCNR funded
county greenway plans is completion of a County Natural Areas
Inventory (CNAI). The Bureau is working with interested counties on
either completing their CNAI or initiating greenway planning.
2. Municipal and multi-municipal planning efforts should be generally
consistent with the county greenways plan and include reviewing
greenway connections beyond the official municipal boundary.
3. Substantial citizen involvement/public participation throughout the
process.
4. A thorough examination and analysis of local conditions, questions or
concerns related to developing the proposed greenways network.
5. The development of an action plan that sets forth concrete steps,
priorities and costs to establish the greenways network.
6.
The plan should be officially adopted as part of a municipality’s
comprehensive plan.
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D.
Public Participation
Your scope of work must include a public participation process that
substantially involves citizens to ensure that local attitudes are fully identified
and addressed. Special attention should be given to involving significant
property owners and stakeholder groups. Please review the Bureau’s
"Public Participation Guide" for specific information. Grantees must have an
approved public participation process that includes at least a study
committee and two public meetings. Past grantees have found that citizen
surveys and key person interviews provide useful results.
E.
Study Report Organization and Final Products
Upon receipt and incorporation of the Bureau’s final comments, the final
plan should be prepared. The final product can take a variety of forms
depending on the approach taken by the grantee. It can either be a
separately bound document or a chapter within a county/municipal
comprehensive plan. The Bureau recommends producing an executive
summary and at least twenty-five (25) copies of the narrative report. The
exact number of copies should be stated in the scope of work and are
based on the grantee’s needs. An electronic version and three (3) hard
copies of the plan must be submitted to the Bureau.
F.
Agency
The term "agency" is used throughout this Scope of Work Guidelines and
refers to the entity that is preparing the plan such as a one municipality, a
multi-municipal planning effort, etc.
G.
Greenway Resources
For more information on the State Greenways Plan, visit the PA Greenways
Clearinghouse Website at www.pagreenways.org. A Fact Sheet is available
on County Greenways and Open Space Network Planning that provides a
comprehensive list of useful resources that can assist in greenway planning
activities.
II.
ELEMENTS OF THE PLAN / PLANNING PROCESS
Although the process may vary according to the resources and character of each
agency, there are common steps. This process begins with clarification of the
plan’s purpose and scope, followed by inventory and analysis phases resulting in
a proposal for development of a greenway network. It also includes preparation
of a specific action plan to guide county/municipal implementation. A public
participation process as outlined in Section III should guide the entire process.
A.
Identify Purpose and Scope of Work

Describe the purpose of the plan noting any special or unique concerns,
opportunities or priorities that will be addressed.
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B.

Establish the goals of the plan describing what the agency would like the
plan to accomplish. Discuss any specific policy goals or objectives that
relate to the use of greenways for different functions (e.g. recreation,
wildlife migration, water quality protection, etc.)

Discuss how the agency, the general public and other stakeholders may
use the plan. Specifically indicate how this plan will interface with the
County Comprehensive Plan and other relevant plans.
Inventory Existing Data and Related Plans
This involves the identification and mapping of what the existing natural
resources, manmade features and linear greenway corridors are within the
study area that might influence the development of the greenway network.
They should also include any existing trails and other greenway corridors
that extend beyond the boundaries of the study area that have potential for
creating connections to form a greenway corridor that might be more
regional in scope.
Agencies should build upon any existing data inventories and mapping for
the county and perhaps other applicable regional planning efforts. These
might include rivers conservation or watershed plans, heritage park
management plans, non-motorized and motorized trail plans,
comprehensive land use plans, comprehensive park, recreation and open
space plans, transportation improvement plans or economic
development/revitalization efforts.
••
Natural Resources (“green infrastructure”) – Inventory the following types of
natural resources and natural resource-based hubs and linear corridors
that currently exist in the study area that should be considered within the
context of a greenways network. Data associated with the second and
third bullet items below should be available as part of a completed County
Natural Area Inventory (CNAI).

Water resources -- flood plains, wetlands, aquifer recharge zones and
surface waters including lakes, ponds and river and stream corridors
including wild and scenic rivers and those designated as special
protection waters and waters supporting trout.

Natural areas – areas involving land, water or both land and water
which are important in preserving plant and animal species, native
ecological systems, geological, natural, historical, open space, scenic
or similar features of scientific or educational value.

Important plant and animal species and their critical habitats including
wildlife migration corridors. Critical habitat is defined by DCNR as
area of land, water or both land and water which provides for rare,
threatened or endangered plant and animal species or ecological or
natural communities which are at risk of destruction or substantial
degradation.

Forests and woodlands.
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
Public and other protected open space (e.g. state or local park land,
game lands, private land protected by conservation easement, etc.).

Farmland including preserved acreage (i.e. covered by conservation
easement) and other working or active agricultural land. Specifically
identify those lands considered “primary agricultural land” as defined by
Executive Order 1997-6.

Soils and geological features.

Steep slopes (15% or greater) and slide prone areas.

Ridge tops and scenic view sheds.
Manmade Resources (“gray infrastructure”) - Inventory the manmade
hubs/destinations and linear corridors that currently exist in the study area
that should be considered within the context of a greenways network.

Transportation and utility corridors and related facilities: Canals,
abandoned rail lines, utility right-of ways, highway bike lanes, pedestrian
walkways, park and ride lots, bus and train terminals, etc.

Recreation facilities: Public recreation facilities (passive or active),
community and neighborhood parks, bikeways, walking/hiking paths,
water trail and waterfront access areas, fitness trails, etc.

Cultural/Historic Sites: Interpretive centers, memorial sites, museums,
historic districts, battlefields, tourism attractions, etc.
Population Centers and Destinations: Commercial areas, community
centers, schools/educational complexes, libraries, business/industrial
parks, shopping centers, villages, towns, brownfield redevelopment
sites, etc.


C.
Future development areas: Proposed residential, industrial, or
commercial development areas, etc.
Analyze Data and Develop Proposed Greenways Network Vision
This involves review and analysis of all data collected, synthesis of the
results and identification of the agency’s vision for its greenway network.
The result is a map and text to describe the proposed network. It should
include a rationale for the proposal including any criteria, values or
priorities set out to determine selection of the components identified as
part of the greenway network. At this stage, input from stakeholders as
part of the public participation process, will be critical in helping to
establish the proposed greenway network vision and can provide a
“reality check” for the proposal.

Identify potential greenway corridors based on the data gathered and
inventoried above. Discuss the specific functions and associated
benefits of each of the different types of proposed corridors to meet
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county goals including water and land trails to support recreation and
opportunities for physical activity close to home, riparian buffer and
conservation-oriented greenways to facilitate stormwater
management, water quality protection and wildlife habitat and
migration, and diversity in use options considering motorized versus
non-motorized trails or hiking paths.

Identify hubs / destinations that are either natural resource-based or
manmade (or a combination of the two) that should be part of the
greenways network.

Specifically identify important and threatened open space that should
be conserved as part of the greenways network including those
ecologically or biologically significant areas or “hubs” that would have
been identified in the CNAI or through other programs like the Natural
Land Trust’s Smart Conservation or Conservation By Design
programs.
Many of these areas are characterized by large, unfragmented tracts
of different habitat blocks (e.g. oak forest, prairie, etc.) A specific
examples of this kind of natural resource hub is the 8,800-acre
“Hopewell Big Woods” in southeastern Pennsylvania known to be the
last functioning oak forest in both southeast Pennsylvania and the
entire Piedmont Region of the eastern United States.
To assess the conservation values of open space areas, consider
developing a specific list of attributes (e.g. size, shape, diversity,
landscape position for connectivity of habitat, current land use and
relative protection status, etc.) that can be used to evaluate and
prioritize areas for conservation within the greenways network.

Consider corridors and hubs that are known to support wildlife habitat
and migration such as Pennsylvania Audubon’s Important Bird Areas
or the Elk Range in northwestern PA that is home to the state’s elk
herd.

Consider linkages between existing linear greenway corridors and
major hubs or destinations both within the study area and those that
make connections beyond local and county boundaries. Corridor
connections beyond the study area’s boundaries may have regional,
statewide or even national significance by providing long-distance
recreational and alternative transportation opportunities as well as
potentially important migration routes for wildlife. When such
connections are made across multiple jurisdictions and landscapes, a
comprehensive statewide system of greenways for Pennsylvania can
emerge. Examples of such corridors include the Appalachian Trail,
Schuylkill River Greenway, Susquehanna River Trail, The Great
Allegheny Passage and the Delaware-Lehigh Canal Towpath.

Identify major “restorative” opportunities along river and stream
corridors where riparian buffer greenways may be established or
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improved to address the water quality protection benefits of the
greenways network.
D.

Consider opportunities that might be provided by mine land
reclamation and brownfield sites.

Prepare a map and text to illustrate the agency’s vision of proposed
greenways network. Include rationale used for development of the
proposal including any specific criteria or analysis used to determine
the greenways network.
Mapping



E.
Sections B & C above call for the development of maps to illustrate
not only existing greenways network elements, but also the proposed
greenway network envisioned by the agency and its stakeholders in
the planning process. This mapping should be done at an appropriate
scale where the goal is to show connections between corridors and
hubs rather than parcel level identification. The scale should be useful
for facilitating further greenways planning at the local or site-specific
level. To support that purpose, maps should at least include
municipal boundaries and major roads.
Agencies should also strive to generate maps using a Geographic
Information System (GIS) in order to make statewide compilation of
greenways network data a much simpler and efficient task. Those
agencies looking for guidance on consistent standards and best
practices for data set development and manipulation should consult
the “Local Government Handbook for GIS – Implementation Within
the Commonwealth of Pennsylvania.” The handbook, prepared by
PaMAGIC, a consortium of GIS professionals and government
agencies in the Commonwealth, can be accessed at
www.pamagic.org/DataStds/DataStds.htm. Agencies can also contact
DCNR’s Bureau of Topographic and Geologic Survey initiative (717)
702-2047 for guidance on developing geographical data that will be
consistent with statewide standards and the PA-MAP initiative.
Data produced as a result of a Greenways and Open Space Network
Plan grant shall become the property of the Commonwealth.
Develop Action Plan
This involves development of a specific action plan that will position the
agency to move forward in realizing the proposed greenways network
vision. In preparing the Action Plan consider the following:

Creating a matrix of concrete actions for next steps laying out
priorities for the short, medium and long-term time horizons.

For counties: Specify the life of the plan as 10 years to encourage
synchronization with county planning initiatives, in particular, County
Comprehensive Plans now required by the Municipalities Planning
Code (MPC) to be reviewed for updating every 10 years.
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F.

For counties: Taking a multi-municipal approach to implementation of
the county plan by municipalities. This will foster a network approach
within the county facilitating opportunities for greenway corridors that
cross municipal jurisdictions.

Identifying roles and responsibilities for each action step.

Estimating costs and resources and potential financing options
needed to address actions steps.

Identifying greenway corridor segments as potential pilot projects to
generate momentum for early implementation of the plan.

Reviewing and recommending model ordinance and land
development regulation language that could be used to assist in
implementing the plan (e.g. standards for riparian buffers along
stream corridors, conservation by design, etc.) and/or identifying gaps
and inconsistencies in existing local regulations.

Recommending the use of existing or new advisory groups (e.g.
Environmental Advisory Councils, Recreation and Park Advisory
Boards, State Health Improvement Partnerships, etc.) at the municipal
or county level to act as greenways network champions.

Establishing methods for the long-term protection of the corridors and
hubs proposed in the greenways network.

Setting up on-going mechanism for coordination with other counties,
regional planning entities, municipalities, landowners and other
stakeholders including local health improvement partners who are
becoming valuable and interested parties in greenways planning and
design.

Exploring partnerships with private organizations and corporations
including hospitals and those involved in community health programs
and services that could commit to the establishment and protection of
the identified greenways network.

Determine and identify the opportunities and mechanisms necessary
to facilitate any proposed inter-municipal and inter-county project
opportunities.
Prepare Final Plan

A draft final plan document should be prepared and submitted for county
and Bureau review. This should include the results of completing items
A-E above. This should occur once the plan undergone final review and
comment through the public participation process.
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III.

The Bureau must review and approve the complete draft plan before it is
officially adopted by the agency. Typically, the review process consists
of reviewing a complete draft plan, providing comments and then
reviewing a revised draft to ensure comments are adequately
addressed. Accordingly, one (1) copy of the complete draft plan must
be submitted to the Bureau.

Upon receipt and incorporation of the Bureau’s final comments, the final
plan should be prepared. The final product can take a variety of forms
depending on the approach taken by the agency. It can either be a
separately bound document or a chapter within a Comprehensive Plan
plus attachments such as background and supporting resource
documents. An electronic version and three (3) hard copies of the plan
must be submitted to the Bureau.
PUBLIC PARTICIPATION / COMMUNITY INVOLVEMENT PROCESS
The entire planning process should be guided by public participation that will fully
engage the community and stakeholder groups. In particular, all municipalities in
the county must be involved in the planning process as the county plan is
intended to set a larger framework and vision for more localized greenway
planning and development. The elements listed below should be part of the
agency’s public participation process. Applicants can also review the Bureau’s
"Public Participation Guide." Municipal applicants will need to tailor to their local
needs.

Review the results of the community involvement activities of previous
planning efforts and county initiatives.

Identify and engage key organizations (e.g. watershed organizations, trail
steward groups, land trusts, heritage parks, economic development agencies,
business concerns, hospitals and community health partners, school districts,
non-profit groups and civic organizations, etc.) government representatives,
and other individuals who can lend expertise to the process of identifying
important resources and opportunities for linear connections, and the needs
of community and environment.

Establish a Study Committee to guide the entire planning process.

Using a variety of techniques (e.g. public forums, design charrettes, stakeholder
interviews, focus groups, student projects, surveys, etc.) solicit ideas and
feedback on the greenway network plan as it is under development, using maps
as key exhibits.

During the planning process seek participation from each municipality in the
county and set up a process to keep them engaged throughout the project.
Solicit municipal resolutions supporting the plan, its adoption and
implementation.
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
Reach out to surrounding counties and adjacent municipalities outside the
county boundaries to capture information about existing and potential
connections.

Publicize the planning process and development of the plan. Distribute
information on the plan including the proposed greenways network map, as
widely as possible, including but not limited to every municipality, adjacent
county, and participating organizations.

Summarize results of the public participation process in the plan.
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