NEW CASTLE COUNTY

Comprehensive Plan 2050

ncc2050.newcastlede.gov

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A very special word of thanks to the residents, community stakeholders, and advocacy organizations of New Castle County for their active participation in this planning effort. We also acknowledge the thoughtful partnership of our incorporated cities and towns, representatives from the State Planning Office, and other state agencies.

Acknowledgments

New Castle County Government

Matthew Meyer, County Executive

New Castle County Council

Karen Hartley-Nagle, President Kenneth R. Woods, 1st District Dee Durham, 2nd District Janet Kilpatrick, 3rd District Penrose Hollins, 4th District Lisa Diller, 5th District David Carter, 6th District George Smiley, 7th District John Cartier, 8th District Timothy Sheldon, 9th District Jea P. Street, 10th District David Tackett, 11th District Bill Bell, 12th District

New Castle County Planning Board

Karen Peterson, Chairperson Leone Cahill-Krout Jonathan Cochran Joseph Daigle Leah Gray William McGlinchey Robert Snowden Ruth Visvardis Kiana Williams

New Castle County Department of Land Use

Richard E. Hall, AICP, General Manager George Haggerty Antoni Sekowski Dawn Thompson Matthew Rogers Phillip McBride Alec Davis Betsy Hatch Stephanie Martins

Table of

Contents

The Plan

A. Introduction | 1 B-1. What We Heard | 9 B-2. What We Know | 17 B-3. What We’ll Do | 27 C. Future Land Use and Implementation | 83

The Topics

D. Conservation | 101 E. Open Space & Recreation | 131 F. Mobility | 147 G. Utilities, Water, and Sewer | 189 H. Housing | 211 I. Historic Preservation | 231 J. Community Planning and Design | 249 K. Economic and Community Development | 279 L. Climate Change and Hazard Mitigation | 303 M. Environmental and Social Justice | 329 N. Capital Improvements Plan | 353 O. Intergovernmental Coordination | 363

The Tools

Appendix A: 2012 Future Land Use Map and Current Zoning Map | 383 Appendix B: Goals, Objectives, and Strategy Matrix | 389 Appendix C: Planning & Public Involvement Process | 429 Appendix D: Youth Planning Board Recommendations | 445 Appendix E: Future Scenarios and Analysis Documentation | 457 Appendix F: Community Area Master Plan Key Recommendations | 499 Appendix G: EJSCREEN Indicators | 519 Appendix H: 2022-2023 School Enrollment Projections and Capacity | 533 Appendix I: Key Wildlife Habitats | 543 Appendix J: Acronym Glossary | 547

THE PLAN

A. Introduction

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NCC2050 The Vision

In 2050, New Castle County is a thriving healthy and equitable community with a clean environment and strong economy. It champions preservation of clean water and the natural environment, and adaptation to climate change, while fostering a prosperous and strong agricultural industry. Residents have equitable access to parks and recreation, a multimodal transportation network, and a robust economy with living wage jobs. The housing stock is diverse in both form and price. Important historic and cultural resources are respected and preserved as part of unique, high quality, walkable places. It is a model for social justice and climate resiliency. Historic overburdening of certain communities with dangerous pollution and health risks has been remediated and regulations are in place to prevent further injustice.

Introduction

New Castle County, Delaware has changed significantly in the last thirty years; the next thirty years will certainly bring big changes as well. This plan anticipates many of these changes and recommends a path forward that is sustainable, equitable, and prosperous. The county is at a crossroads in many respects: while new development continues to expand in some locations, other existing communities will need investments to maintain their desirability for future generations. Agricultural and natural resource preservation and protection will be essential for a sustainable future. Land use planning is more than managing where new growth occurs, it also needs to spur revitalization, equity, environmental justice, sustainability, and vibrant communities.

What is the primary purpose of the Plan? The Plan charts a course for the County’s future, while meeting its statutory requirements to guide/direct zoning, subdivision policies and regulations (the Unified Development Code). Any changes to these policies should be consistent with the Plan while serving as a guide for broader growth.

While NCC2050 is the decennial update to the Comprehensive Development Plan, its scope spans the next three decades,¹ hence the plan’s name NCC2050. Work on the plan began in June 2020 and the final plan was adopted by New Castle County Council on July 26, 2022, and certified by the Governor of the State of Delaware John Carney on July 26, 2022. The goals, objectives, and strategies in NCC2050 will be used to guide development, infrastructure, preservation, and other land use-related priorities for years to come. These recommendations were shaped by extensive public outreach and engagement.

This plan is occurring with the backdrop of climate change, a global pandemic, and a changing economy. Our future will not permit us to be complacent or reactionary. Our success—as individuals, families, and a community depends on deliberate, proactive measures for our future.

State and County Requirements for Comprehensive Plans

The Delaware State Code requires certain topics (elements) be evaluated in comprehensive plans to ensure consistency throughout Delaware’s three counties.² In 2020, New Castle County identified three additional elements essential for a resilient and equitable future for all residents and thus amended Chapter 28 (Planning) of the County Code to include Social Justice, Environmental Justice and Hazard Mitigation.³ It is important to understand that while NCC2050 addresses all of these elements, they do not always break neatly into separate sections.

The

Process

The Vision highlighted on the opening page of this plan captures the overarching aspirations that emerged early in the collaborative process. This extensive outreach and engagement effort moved through a series of deliberate steps toward specific policy priorities. Together, we identified six umbrella themes to achieve the Vision.

Themes

The themes provide a framework for the recommendations. They address the diversity of the county and integrate goals across the traditionally defined plan elements.¹ These themes became the standards for measuring the potential success of the 11 priorities discussed in Section B Plan Priorities of NCC2050:

Sustainable Growth

Development, redevelopment, and revitalization occurs in planned growth areas, efficiently using existing and planned infrastructure while limiting the impact on the environment. Growth will also be economically and socially sustainable.

Livable Built Environment for All

All elements of the built environment (e.g., land use, transportation, housing, energy, and infrastructure) work together providing a high quality of life for all our residents.

Conservation and Preservation

Our environmental (air, water, land, natural resources, and climate) and historic resources are protected as part of our thriving county.

Robust Economy

The economy is diverse, strong, and resilient, adapts to change with innovation and collaboration, while ensuring access to local, living-wage jobs.

Thriving Places and Community Character

The places we live, work and play are well designed, accessible, and vibrant, with active locations for people to gather. Our communities reflect important aspects of our past and are places in which we take pride.

Diverse Engagement

Our communities are central to our future and the diversity of the county’s residents is represented in civic life, engagement, and leadership.

Interconnected Challenges and Opportunities

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Effective long range planning demands that we carefully consider the manner that events and trends which are most challenging are intertwined. Strong and deliberate policies that address and leverage interdependencies are required to take us to the future our Vision describes.

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Protecting open space and achieving the right mix of housing in the right places. Reducing carbon emissions and broadening transportation choices. Addressing environmental justice now and anticipating future threats to those in harm's way. Each priority on our to-do list is woven into relationships with other priorities. If we focus too narrowly on overcoming one challenge, we can undermine success for others. So each of our strategies should be tested against the likelihood they’ll distribute opportunities and reduce threats across the broadest possible range of people who live, work, and play in New Castle County. The Comprehensive Plan must be comprehensive.

Implementation

NCC2050 presents ambitious Goals, Objectives, Strategies, as well as 11 Priorities, which have been carefully crafted with input from the public, professionals, and governmental agencies to assist us in achieving our Vision. Implementing this plan will require a holistic, balanced approach that considers the benefits of each applicable strategy. It is imperative that we understand that there will inherently be tradeoffs between Goals, Objectives, and Strategies within this plan that need to be carefully weighed. Finding a balance that best serves the community is essential. The Vision of NCC2050 will not be achieved overnight; we must strive for the best, while not letting our aspirations for perfect derail incremental benefits. A balanced approach which respects our environment, neighborhoods and economic opportunities will help achieve a sustainable and viable future for all residents.

How to Use

This Document

NCC2050 is a more voluminous document than previous plans due in part to the substantial analysis and new topics explored to support its policy recommendations. To help residents most effectively use the document we have structured the plan in a manner that should be read for different levels of depth and understanding. NCC2050 is divided into 3 sections: The Plan, The Topics, and The Tools.

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The Plan

The Plan section consists of the Introduction, What We Heard, What We Know, What We’ll Do, and Future Land Use and Implementation. The Plan provides:

• An understanding of where we’ve been;
• Where we hope to be; and
• How we hope to achieve the Vision.

This section includes a chronology of the two-year process that took us from what we know about challenges and opportunities ahead; to what we heard in our community conversations; to how we tested potential strategies against our goals; to what we plan to do.

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The Topics

The Topics section includes the following elements: Conservation; Open Space and Recreation; Mobility; Utilities, Water, and Sewer; Housing; Historic Preservation; Community Planning; Economic and Community Development; Climate Change, Resiliency, and Hazard Mitigation; Environmental and Social Justice; Capital Improvements; and Intergovernmental Coordination. These sections provide and in-depth understanding of important topics that will be instrumental in implementing the Plan, including crafting legislation and policy.

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The Tools

The Tools section consists of the appendices, which provides greater detail regarding the planning process, scenario development and analysis. It also provides useful maps for evaluating a number of factors impacting Environmental and Social Justice as well as a matrix for all of the goals, objectives and strategies in the plan.

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THE PLAN

B-1. What We Heard: Community Engagement

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What We Heard:

Community Engagement

NCC2050 strives to have a positive and meaningful impact on residents and businesses countywide. Community members have been integral to the planning discussion from the plan’s launch in 2020 and have continued to provide valuable guidance through the adoption process in 2022. It is imperative that moving forward the county continue this fruitful conversation through the plan’s implementation in order for the Vision to be realized.

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Figure A 1: NCC2050 Planning Process

The Public Process

The NCC2050 planning process occurred during the COVID-19 pandemic, and as such the community had fewer opportunities to participate at in-person events. The county as a community pulled together through the aid of virtual conferencing tools (TEAMS and ZOOM) resulting in the most active public participation for a New Castle County Comprehensive Plan. Moving forward, the County needs to harness new technology to expand the conversation, while providing the opportunity for residents to participate in-person, when possible.

NCC2050 has benefited from thousands of interactions with the community, with hundreds of community members participating in live and virtual NCC2050 events. The NCC2050 planning team ensured opportunities were accessible and inclusive during online discussions by recording the events and placing summaries and video recordings online for those who were unable to attend in person.

40 Youth Planning Board Participants

2,000+ Planning Board Public Hearing mailings

123,070 Newsletters in annual sewer bills

700+ registrants for 3 virtual Public Forums (November 2020, July 2021, December 2021)

370 people attended 4 virtual workshops Fall 2020

88 Stakeholder Advisory Committee & Interagency Work Group members attended 4 meetings

837 people attended 5 “Deep Dive” virtual sessions in Spring 2021

56,000+ visits to NCC2050 website

12+ community meetings, Fall 2021

141,000+ social media impressions

900+ responses to multiple surveys

For details on specific engagement events, participants, topics, and community member responses, see Appendices C and D.

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Early phases of community engagement focused on developing a shared awareness of New Castle County as it is today and the issues that are important to the future (See What We Know). The following Goals were crafted to reflect public input for the County in 2050:

1. New Castle County has a connected, well-maintained, and well-loved network of open space (natural lands and recreational resources) that benefits all residents. (For context and detail, see Recreation and Open Space; Community Planning and Design)

2. The natural environment of the county continues to be a distinguishing characteristic of our community, and the quality of our natural resources—air, water, land, ecosystems (plants and animals)—are continually improving and meeting the needs of present and future generations. Development/redevelopment patterns that consume less unbuilt “greenfields” and resource lands support conservation of our important natural resources. (For context and detail, see Conservation)

3. Clean water is available to all residents now and in the future. (For context and detail, see Utilities, Water, and Sewer element)

Residents play an equal role in this plan and I think this is great because in the chat, it has not only professional people but community people that have made points that are important to them and professionals as well. I hope that whatever is put in place is for the welfare of all. – Dora Williams, Community Representative, Route 9 Monitoring, Deep Dive Session 1: Open Space, Conservation, Recreation, Environment, February 3, 2021

“Beautiful and safe neighborhoods that are safe, environmentally friendly and a lot of green spaces with tasteful businesses built with well-designed urban planning.” — Public Participant, Our Homes and Neighborhoods — Let’s Talk Workshop, October 7, 2020

4. Healthy, safe, inclusive housing options throughout the County are diverse, meeting needs of all people while maintaining building design/form that integrates with existing communities. (For context and detail, see Housing)

5. New Castle County is a strong, resilient hub of the regional economy that provides a range of jobs and services to County residents. (For context and detail, see Economic and Community Development)

6. All residents have the ability to participate in the economy and have access to living-wage jobs. Delaware’s workforce is strong and positioned for emerging industry and jobs as well as applying innovation and adaptation in traditional industries. (For context and detail, see Economic and Community Development)

7. Farming continues to be as a viable way of life and contributes to economic resiliency and healthy communities (for its provision of food access and security, its preservation of farmland, and contribution toward community character). (For context and detail, see Conservation)

8. All New Castle County residents will have safe, efficient, inclusive access to employment, retail services, parks, and other daily needs including by walking, bicycling, public transit, and emerging modes. The transportation and land use systems are integrated and support each other to create livable places and a vibrant county. (For context and detail see: Community Planning and Design; Mobility; Recreation and Open Space)

9. Transportation of people and goods is efficient and fair. The transportation system and land use/development are coordinated; development occurs in areas with ample existing or planned transportation infrastructure (and other infrastructure) and decisions are fiscally sound, inclusive, and fair for present and future generations. (For context and detail, see Environmental and Social Justice; and Mobility)

10. Land uses, transportation, and other infrastructure complement each other, and neighborhoods and areas across the county are distinctive, attractive, functional, comfortable, and scaled to human needs. The physical environment is high quality, inclusively designed, retains value, and is fiscally sustainable. (For context and detail, see Community Planning and Design)

11. The built environment and streetscapes promote physical activity and healthy lifestyles including options for walking, biking, and other recreational opportunities. All residents have safe, inclusive access to lead physically active and healthy lifestyles. (For context and detail, see Economic and Community Development, and Mobility)

12. The value and significance of the historic, prehistoric, and cultural resources in the county are known and promoted; significant resources are preserved for the benefit of residents and visitors. (For context and detail, see Historic Preservation)

13. Environmental protection, climate change mitigation, and adaptation are important considerations in all county policies. Our community’s collective built environment—infrastructure, transportation, nature, and development patterns—are designed in a way that limits greenhouse gas emissions and protects our people and critical infrastructure from impacts of climate change. (For context and detail, see Hazard Mitigation and Climate Change)

14. Pursue a net zero built environment by following emerging technologies, and alternative regional and individual energy sources. (For context and detail, Hazard Mitigation and Climate Change)

15. New Castle County’s infrastructure and economic and social systems are strong, and our communities are prepared for future climate-related and man-made/natural events; all residents will live in neighborhoods that are protected from negative impacts of incompatible non-residential land uses/activity and other hazards such as flooding (discrete and cumulative); and economic growth, prosperity and change in New Castle County is equitable and accessible by all. (For context and detail, see Environmental and Social Justice); and Hazard Mitigation and Climate Change)

16. Participation in planning and development represents the full diversity of the county. (For context and detail, see Environmental and Social Justice)

This list helped us identify the overarching aspirations reflected in the NCC2050 Vision

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17. Development, infrastructure, and change is well-planned and coordinated, achieving sustainable and effective public investment in our communities. (For context and detail, see Community Planning and Design)

Scenario Planning

Scenario planning is an important tool to achieve our goals by forecasting a range of approaches and how they might lead to different outcomes. Broad, consensus-supported goals and ideas about how to bring the plan’s Vision to fruition, assists in narrowing the scope of land use policy.

During the early stages of NCC2050 we identified interdependent and overlapping components, including where people live and their place of employment. Such imbalances could lead to undesired results including an increase in car commutes and greenhouse gases. A logical approach to combating housing/work mismatches is better coordination of infrastructure, economic development, community design, and climate change planning. Holistic planning and coordination may also be employed to explore ways to address and mitigate the impacts of climate change, which often disproportionately impacts people and neighborhoods already struggling with poverty, housing, and public health issues. This process will require integrating goals of social and environmental justice with those for community design, hazard mitigation, and economic development.

Thinking and planning across policy silos requires a deliberative approach testing the probabilities of advancing individual goals, as well as how well strategies might work in combination, thereby avoiding undermining other goals.

NCC2050 developed the following scenario planning process (For a detailed report, see Appendix E, Future Scenario and Analysis Combination). The planning team developed four scenarios based on community input and current conditions. They ranged from limited growth and retaining our current land use policies, to an alternative future with higher population and job growth and implementation of land use policies supported throughout the community engagement processes.

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Scenario Building Blocks

Scenario 1A in the graphic above assumes business as usual, projecting a future where the County does not alter its current land use policies or regulations. Any impacts to the environment, conservation, preservation, economic or equity would be the results of our current policies. Projections suggest low growth and increasing costs.

Scenario 1B assumes the County adopts plans currently in the works, including the subarea plans, but does not alter current land use policies or regulations beyond those plans. Outcomes differ from scenario 1A in that more compact development patterns, jobs/ housing balance, increased housing options, and more walkable conditions are achieved in the parts of the County that are the focus of the subarea plans. County-wide impacts would depend on cascading effects of area plans and from successes of our current policies. This scenario’s projects more moderate growth with increasing costs, but building on strengths that might help residents and businesses be resilient.

Scenario 2A assumes the same limited policy interventions as 1B (including implementation of subarea plans), but with higher population and job growth driven primarily by market forces. Left mostly to the market and current regulations, it results in more driving, lost farmland, etc.

Scenario 2B assumes higher growth guided by policy strategies that focus on infill, redevelopment, and traditional neighborhood design. It projects a future where the county experiences growth in jobs and population as a result of the adoption and successful implementation of the subarea plans, along with policies promoting growth in more compact patterns and in locations where existing shopping centers and other nonresidential uses may redevelop. Countywide outcomes would be tied to changes in policy designed to achieve the community Vision.

When we project outcomes of various policy interventions over the next three decades, the approaches most likely to achieve our Vision’s ambitions are those that work in combination with others to: align future development with supportive infrastructure; reduce car dependency; anticipate and prepare for the impacts of climate change; address social and environmental injustice; encourage an economic ecosystem that spreads prosperity across industry sectors and worker populations; increase the range and variety of affordable housing; and preserve open space.

THE PLAN

B-2. What We Know: Current Conditions and Trends

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What We Know:

Current Conditions and Trends

The path to our Vision for 2050 starts from where we find ourselves in 2022.

Ideally situated in the Mid-Atlantic Region, New Castle County is a vibrant and desirable place to live, work, and play. While our County is the smallest in the State of Delaware by area (426.2 square miles), it has the highest population and overall population density of any Delaware county. It’s home to over half of the state’s population.

Ours is a maturing county with both older and newer communities and populations. Among our assets: a high quality of life; lower property taxes than surrounding states; ample access to recreational and cultural activities; a large County and State Park systems; Delaware’s largest employers and industry hubs; and easy access to the New York City, Philadelphia, and Washington D.C. metropolitan areas. Map B-1 shows New Castle County and its surrounding region.

However, New Castle County is changing every day, responding to influences that originate both within our county and from regional, national, and global trends.

As a community we face a variety of challenges and opportunities:

Population

New Castle County’s population is aging and diversifying, and the overall growth rate is slowing. With those trends come different needs and preferences for housing, healthcare, and services government provides or influences through policymaking.

Increased migration could bolster growth in employable populations and in customers for employers’ products. But the future of immigration is uncertain, since incentives and restrictions change with federal policies and global economics, which are hard to predict.

There’s an upside to demographic shifts, however, provided our policies encourage growth in supply to accommodate growth in demand.

Table B-1

*Represents a five-year total beginning with specified year Source: Delaware Population Consortium Population Projection Series, October 31, 2019

Map B-1 New Castle County Surrounding Region

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20 | NCC2050

Projected Community Change (2020-2050)

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Where’s the growth? Largely in Black and Hispanic populations, but not enough to offset the decline in overall population numbers. And individuals and neighborhoods within those populations are the ones most vulnerable to social, economic, and environmental challenges.

Source: http://www.stateplanning.delaware.gov/demography/dpc-projection-data.shtml

Unemployment by Race

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Non-whites experienced higher unemployment than whites over the last three decades.

New Castle County Population Below Poverty Level, By Race

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Higher percentages of Blacks and Asians live below the poverty level.

Many of the community characteristics preferred by both older adults and younger job seekers—walkability, transit accessibility, proximity to shops and services, diversity of housing options—are ones that make communities more economically vibrant and successful. While these amenities are currently lacking in many parts of the county, they should be integrated into community planning and design, and serve as attractors for new people and businesses. They also, serving a range of other policy goals including those related to housing affordability, open space and recreation, and economic and social justice. (See Community Planning and Design Element)

Land Use and Infrastructure

Harmonious development patterns balancing residential with nonresidential development are prevalent in the county, however a disproportionate number of low-income communities are near incompatible land uses which results in negative health outcomes. (See Social and Environmental Justice Element)

Current Snapshot of Land Development/Preservation, New Castle County

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Shift in New Single Family Detached Home Development

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1954-1970

2002-2018

Increased suburban-style residential growth, especially in the southern parts of the County, has begun to impact traditionally rural communities raising questions about where investments in infrastructure and schools are best allocated.

Since jobs are concentrated in the north sections of the county, while suburban housing expands in the southern areas, there’s a growing mismatch between where people live and where they work. (See Community Design and Planning Element)

The likelihood of wetter and more severe weather resulting from climate change will require increased investments in maintenance and repair to aging infrastructure. Impervious surfaces, tied to development, result in more frequent flooding and stormwater management challenges. (See Hazard Mitigation and Climate Change Element)

We have the ability to alter our current trajectory, in part, by encouraging redevelopment of existing areas thereby better directing development areas with existing or planned infrastructure. Areas such as North Claymont, the Route 9 Corridor and Concord Pike/US 202 present an extraordinary opportunity for innovative reuse and reinvestment. (See Mobility Element)

Map B-2: What’s Left

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23 | NCC2050

“More preservation of remaining open space (open space tax fund?), especially forested/wetland areas, in southern NCC (some for parks/trails) and along 202 Concord Mall and other areas redevelopment. Create areas to attract employers/wider range of jobs.” — Community Survey #1 respondent

The transportation system is also integral to equitable development of the county. Public feedback during the NCC2050 process indicates a strong support for mixed-used development with pedestrian, bicycle, and transit facilities and open space preservation. (See Community Design and Planning and Mobility element). Work-from-home trends permitting employees to work from anywhere may help reverse the people/jobs mismatch by reducing commuting trips.

Open Space

There are roughly 74,700 acres of protected lands in New Castle County (about 27% of the total land area). Protected Lands include parkland, agricultural easements, private open space, and private conservation easements.

In this plan, land that is not already developed and that is not encumbered by preservation easements or important natural resources such as steep slopes, Critical Natural Areas, floodplains, wetlands, etc. is considered “What’s Left.” (Map B-2: What’s Left? displays the areas in the County that are potentially available for residential development).

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What’s the policy opportunity?

The County needs to better direct development to growth areas with infrastructure, while conversely limiting development in non-growth areas. Additionally, we need to enhance our land preservation efforts by partnering with the State and other stakeholders to augment existing programs.

Economic Development

Downward trends in industrial and manufacturing uses are having a negative impact on countywide job growth. Conversely, the expanding “gig economy,” which provides less job stability and fewer employer benefits, is expected to account for a growing percentage of jobs. The COVID-19 pandemic has further complicated the local and global economy with labor and supply chain disruptions. If we traverse along our current economic trajectory, we could exacerbate several issues faced by our communities including disparities of home ownership and unemployment rates between whites and non-whites. (See Economic Development Element). Addressing these problems that will require reimagining economic development support systems in partnership with the private sector.

How might better planning and targeted investment counteract some of these trends?

There are industry sectors poised to expand. Among them: retail, transportation, warehousing, real estate, financial, insurance, and healthcare. A robust transit system and transit-supportive infrastructure helps us compete with surrounding states to attract employers and jobs. (See Mobility)

Diversifying housing types and encouraging development patterns that are less automotive dependent helps increase the range of affordable housing and mobility options. While work-from-home opportunities explored during the COVID-19 pandemic have isolated many workers from traditional networks of retail, finance, and healthcare in urbanized areas, they present enterprising entrepreneurs the opportunity to explore creative economic ventures.

Hazard Mitigation and Climate Change

New Castle County is in the mid-Atlantic coastal region, which is considered a “sea level rise hotspot” where levels are rising faster and higher than elsewhere, making it vulnerable to a wide range of natural hazards including floods, tornadoes, tropical storms and hurricanes, winter storms, and earthquakes. Climate exacerbates these occurrences by contributing to hotter, wetter, and more severe weather related events. (See Hazard Mitigation and Climate Change Element)

Addressing the root causes of climate change and mitigating its impacts will require collaborative efforts at international, national, regional, and local levels. New Castle County should play an important role in these efforts, by committing to greenhouse gas reductions while prioritizing resilience.

Our Long-Term Vision and Our Immediate Realities

Acknowledging the gaps between current trends and our Vision for New Castle County in 2050 helps us focus community discussion on how to overcome the challenges and seize the opportunities.

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THE PLAN

B-3. What We'll Do: Action Steps

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What We’ll Do:

Action Steps

NCC2050’s Vision was crafted from an analysis of current conditions and trends, as well as the goals and potential strategies arising from continued community conversations. Scenario planning/idea testing helped move from analyzing background information and gaining public input to developing recommendations.

The Plan is organized under six umbrella themes:

• Sustainable Growth
• Livable Built Environment for All
• Conservation & Preservation
• Robust Economy
• Thriving Places & Community Character
• Diverse Engagement

Under these themes we have developed 11 policy priorities, which are summarized below:

1 Planned Growth - direct development to planned growth areas with infrastructure and limit it outside of these areas, promoting preservation.

2 Environmental Justice - reduce the risk and impact from environmental and health hazards on historically overburdened communities.

3 Land Preservation - preserve a minimum of 7,100 acres of land for open space in the county and improve the lands’ ecosystem health (including increasing farmland & historic preservation).

4 Sustainability & Climate Change - lead in addressing climate change with a path for New Castle County government to reach net zero greenhouse gas emissions by 2050, prepare the built environment for a clean energy future, and become more resilient to environmental and health risks by greening and related efforts.

5 Economic Development - develop policies and programs to create an economic environment that supports a range of industries and businesses while leveraging equitable and robust outcomes that limit negative effects.

6 Economic Justice - as economic growth occurs, strive for equitable distribution of benefits.

7 Implementation - ensure government is oriented to implement the plan in a comprehensive and coordinated fashion, including systematic data collection, tracking, reporting, and evaluation. Ensure growth and change in our communities is coordinated across agencies; that infrastructure and services are timed with new growth; and that decision-making leverages the full range of available data and technology.

8 Housing - increase the variety and range of safe, quality housing options for all, in a diversity of locations; focus on revitalizing and preserving areas already developed, while responsibly guiding future development in a manner consistent with adjacent communities.

9 Targeted Strategies - implement corridor, water, and other target-area-based revitalization programs that emphasize integration and accessibility of green infrastructure.

10 Diversity - increase diversity of engagement in community planning activities and on professional staff.

11 Use the Plan Guiding Growth, Including Rezonings - update the practice for rezonings and Future Land Use Map (FLUM) changes. Zoning (and rezonings) must conform to the FLUM, achieving the right balance between predictability and flexibility. The Comprehensive Plan should be the basis for land use decisions and changes to the Future Land Use Map should be the product of a public planning process, such as a community plan, or done at the 5-year evaluation of the Comprehensive Plan.

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Setting measurable goals provides credibility to plan development and the potential for greater predictability for plan implementation.

How We’ll Measure Success

We have identified quantifiable metrics and indicators of progress where possible to use along with the plan priorities. Where quantifiable measures and goals are not possible, we made qualitative (typically directional goals) assessments that will be re-evaluated as on-the-ground realities require.

Tracking and reporting metrics will also be useful for guiding public sector investments during annual reviews of capital and operating budgets for state and local agencies, directing investments to those resources (i.e., education, emergency services, transportation) and communities with the greatest needs.

The metrics applied in the priority explanations below acknowledge current conditions in the context of key goals and objectives of the plan and track them into the future. Many of the metrics will be compiled annually and will be included in an annual report, while others are collected less frequently and will be included as updated information is available. The list of metrics should change over time, as data availability and analysis capabilities evolve.

New Castle County will publish an online metric dashboard to track progress toward the goals in the plan. As part of plan implementation, the County will need to work with other agencies and organizations to gather and evaluate the data and monitor plan implementation.

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Priorities and Strategies

The metrics applied in the priority explanations below acknowledge current conditions in the context of key goals and objectives of the plan and track them into the future.

32%

Undeveloped land in New Castle County

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As a reminder of how we leveraged interconnected strategies to target multiple challenges and opportunities, we’ve included icons representing the umbrella themes addressed under each of the priorities below. Also detailed are: explanations for why new policies are needed; the specific strategies required to realize ambitions; how policies will be tracked through implementation phases; what agencies and other potential partners might collaborate; and over what time frame strategies are likely to be implemented.

1 Planned Growth

Focus growth. Direct growth to Delaware’s Level 1 (most urban/developed) and Level 2 (suburban) Investment Areas, as outlined in 2020 Delaware Strategies for State Policies and Spending (achieving at least 70% of growth in Level 1 and 90% in Levels 1 and 2).

(Objectives 2.3, 5.3, 10.1, and more)

THEMES

Sustainable Growth

Livable Built Environment for All

Conservation & Preservation

Robust Economy

Thriving Places & Community Character

Diverse Engagement

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The State encourages “local government land-use policies that promote higher densities and mixed-use type development in appropriate areas such that complete communities be developed—places where people could live, play, work, and shop.”

Why?

Increasing the proportion of growth in Level 1 and 2 Investment Areas (see Figure B-1) promotes transportation options and enhances community identity and quality of life by reducing vacant or underutilized property and by providing additional housing, community resources, and/or employment in those communities.

The State describes Investment Level 1 Areas as those that are often municipalities, towns, or urban/urbanizing places in counties, where density is generally higher than in the surrounding areas and where there are a variety of transportation opportunities available.

Investment Level 2 areas are described as: less developed areas within municipalities; rapidly growing areas in the counties that have or will have public water and wastewater services and utilities; areas that are generally adjacent to or near Investment Level 1 Areas; smaller towns and rural villages that should grow consistently with their historic character; and suburban areas with public water, wastewater, and utility services.

In both Investment Levels 1 and 2 the State encourages “local government land-use policies that promote higher densities and mixed-use type development in appropriate areas such that complete communities be developed—places where people could live, play, work, and shop.”¹

Encouraging growth, development, and redevelopment in areas with existing infrastructure and services is the best way to use our investments most efficiently, and to have compact, mixed-use development. Leveraging existing infrastructure reduces development costs and renews purpose for underused or disused properties.

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Figure B-1: 2020 Delaware Strategies for State Policies and Spending

Land is a finite resource, and we must use it wisely. There are many facets to sustainable growth, but directing development to growth areas and limiting it in preservation areas are fundamental.

Map B-3 is the New Castle County Growth Areas Policy Map, which is different from, but complementary to the Future Land Use Map. Unlike the Future Land Use (FLU) Map, which defines the planned future development character of an area parcel-by-parcel, the policy map more generally depicts areas of the county where growth (development and redevelopment) is prioritized, and it gives a spatial relationship to policy recommendations. The map provides the ability to target and prioritize policies toward areas where infill and growth are most desirable. The categories shown on the map are defined as:

• Redevelopment and Infill: These are 2020 State Investment Level 1 areas, as described above, excluding areas both preserved or targeted for preservation in the New Castle County Land Use Priority Preservation Areas Map (see Map B-5; page 43) and existing residential communities. These are colored salmon in the New Castle County Growth Area Policy Map.

• Potential Development Areas: These are 2020 State Investment Level 2 areas, as described above, as well as areas having or planned for sewer service in the near term but excluding areas both preserved or targeted for preservation in the New Castle County Land Use Priority Preservation Areas Map (see Map B-3) and existing residential communities.

• Focused Redevelopment and Infill Areas: These are areas that we’ve identified as corridor, hamlet/village, and/or (re)development areas in the draft FLU Map, they also include growth nodes such as Churchman’s Crossing and North Claymont. The transparent crosshatch purple in the New Castle County Growth Area Policy Map identifies these areas.

• Areas not Targeted or Anticipated for Future Growth or Preservation: These are existing residential neighborhoods where little change is anticipated by 2050.

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*Land Use Policy Designations within municipal boundaries reflect County policy aspirations and are not intended to prescribe municipal

Metrics / Tracking

The following metrics will help the County track progress with the goal of focusing growth:

Since 2000, approximately 59% of new single family residential development happened within State Strategy Level 1 and 30% happened within State Strategy Level 2.

STRATEGY: Enact land use policies and regulations that incentivize infill and redevelopment in and around job centers. (5.3.2)

Purpose

Improve inclusive access to employment opportunities and facilitate complete communities through a variety of strategies and policies:

• Focus on coordinated planning with municipalities such as Wilmington, Newark, Newport, Elsmere, Bellefonte, Middletown, Townsend, and consider Joint Planning Areas.
• Prioritize target areas and facilitate public and private investment to improve multi-modal accessibility (community area master plans, CCEDs, TIDs, around transit stations). Smart, multi-modal transportation investments that are coordinated with land use policies are critical to accomplishing successful infill and revitalization. Notably, corridor redevelopment should implement design features that contribute to achieving Vision Zero, such as reducing site access points when possible.¹
• Focus on implementing modern infrastructure and emerging/new technology (e.g. renewable energy transportation, Connected/Autonomous vehicles, microtransit, high speed internet, green energy, etc.) in these areas to increase access to jobs and opportunities

• Focus a suite of policy recommendations to support implementation of Community Area Master Plans (CAMPs)

• Focus on adding an inclusive mix of housing options in/near job centers

Status (Study, Develop Implementation Tool, Enact, Engage)

Study: Several relevant examples should be reviewed by NCC Department of Land Use and vetted with both agency and community stakeholders.

Related Examples / Resources

• The LEED-ND (Leadership in Energy and Environmental Design - Neighborhood Development) is a rating system that is a collaboration among the U.S. Green Building Council, the Congress for the New Urbanism, and the Natural Resources Defense Council. The scoring system includes credits for locations such as previously developed sites, housing/jobs proximity, and access to local shops, services, and other amenities.

• Cities across Florida offer infill incentives like expedited permitting and reduced impact fees for developers. Other strategies like land banking are also used.

• Expedite Development Review - San Diego, California, uses expedited permit review to encourage infill development through its Affordable/In-Fill Housing and Sustainable Building Expedite Program.

• Ease parking requirements for location efficient development – St. Paul, Minnesota recently eliminated minimum parking requirements and strengthened TDM requirements for certain developments.

• Density bonuses in and around job centers.

• Locate public facilities in and around job centers and encourage mixed use development – Milwaukee, Wisconsin has developed libraries with affordable housing in the upper floors.

• Form based code and focus on design; consider requirements that set lot size maximums rather than minimums

Anticipated Partners

NCC Department of Land Use

Timeline

Proceed with comprehensive rezoning associated with the Future Land Use map.

STRATEGY: Eliminate parking minimums for certain smaller buildings and in mixed use developments; establish parking caps. (2.2.1)

Purpose

Reduce impervious surface that contributes to stormwater runoff and heat island effect; promote a “park once” approach in business/commercial areas to reduce vehicle miles of travel. The benefits of reducing parking requirements also includes enabling alternative uses for the space, which should help achieve other local community development objectives.

Currently parking is tied to the land use in the Unified Development Code.

Status (Study, Develop Implementation Tool, Enact, Engage)

Study: Parking demand is sensitive to a variety of contexts including: different land use types that influence trip generation and parking duration; development density and diversity (i.e. land use mix) that influence parking cost (surface versus structure); likelihood of alternative modes of access like transit and walk/bike; multiple, nearby destinations that contribute to the “park once” approach; and whether parking costs are passed through to the user.

Replacing required minimums with required maximums (parking caps) helps reduce overparking. Shared parking provides flexibility incentives for relaxing rules on parking for customers only. Parking benefits districts

help leverage user fees to provide local community amenities, typically oriented toward non-auto transportation options.

Related Examples / Resources

• Montgomery County, MD has baseline parking minimums and maximums adjustable for shared parking implementation based on concepts from their planning study

• Portland, OR has parking minimums and maximums (To view the provision see Portland, OR, City Code § 33.266.115 (2018)).

• Hartford, CT has parking maximums only (for a compact, fully urbanized city)

• Ease parking requirements for location efficient development – St. Paul, Minnesota recently eliminated minimum parking requirements and strengthened TDM requirements for certain developments.

• Other: https://sustainablecitycode.org/brief/parking-maximums/ ; https://whyy.org/articles/ideas-worth-stealing-parking-benefit-districts/

• Parking Requirements Subcommittee | City of Newark, DE

• A Bold New Future for Newark: A Comprehensive Parking Solution Report | City of Newark, DE

• Parking Task Force | City of Rehoboth, DE

Anticipated Partners

NCC Department of Land Use, NCC Department of Public Works, NCC Department of Community Services

Suggested Timeframe

Complete study during 2025

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2 Environmental Justice

Reduce the risk and impact from environmental and health hazards on overburdened communities.

(Objectives 15.1 & 15.2)

THEMES

Sustainable Growth

Livable Built Environment for All

Conservation & Preservation

Robust Economy

Thriving Places & Community Character

Diverse Engagement

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New residential development should be located at an adequate distance from these uses to provide adequate protection. Residents of New Castle County have the right to healthy and safe places to call home.

Why?

While New Castle County’s long industrial history has shaped the places we inhabit today, much has changed. The legacy of industrial development, surrounding Wilmington and points along the Delaware River have resulted in negative impacts in communities that experience disproportionate environmental harms and risks and are typically inhabited by minority or low-income populations. The term “overburdened” also describes situations where multiple factors, including both environmental and socioeconomic stressors, may act cumulatively to affect health and the environment and contribute to persistent environmental health disparities (cumulative impacts). Appendix G features maps of environmental justice indicators using the US EPA’s EJScreen tool and index.¹

While recent legislative actions and economic trends have resulted in a countywide decrease in these activities, their continuing impact has an inherent harm to neighboring communities. As we move to the future, it is important to ensure that new uses with potentially significant negative impacts are not located near residential communities.

Land Use policy should also aim to eliminate, where possible and mitigate, the impacts of existing industrial development. New residential development should be located at an adequate distance from these uses to provide adequate protection. Residents of New Castle County have the right to healthy and safe places to call home.

It is important to recognize that the County has limited experience with health and environmental risk and impact to date. Addressing disparate impact and environmental justice issues in this context will require partnerships, resources, and outside expertise.

Several resources are available to support evaluation and monitoring of environmental and health risks, including the EJ Screen Tool produced by the US EPA. Tools such as this, which are generated by experts, based on uniformly tracked data, and are regularly updated, are important resources to rely on. Map B-4 shows areas in darker greys to orange/reds where the Environmental Justice Index of Particulate Matter (PM 2.5) is above the 60th percentile relative to the national average. This map is one of several environmental risk variables the tool analyzes (additional maps are also presented in the Environmental and Social Justice section of this plan). For each environmental factor, such as PM 2.5, the EJ Index finds the block groups that contribute the most toward the nationwide disparity in that environmental factor. Disparity, in this case, means the difference between the environmental indicator’s average value among vulnerable groups (low-income and minority) and the average in the US population.

Map B-4: Particulate Matter (PM2.5)

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42 | NCC2050

Metrics / Tracking

The following metrics will help the County track progress regarding environmental impacts on low-income and minority communities:

Countywide, there are 14,721 residential structures within a half mile of Heavy Industrial-zoned parcels. There are 6,949 residential structures within a half mile of developed parcels within the Heavy Industrial zoning district. Countywide, there are 5,895 residential structures within a quarter mile of Heavy Industrial zoned parcels. There are 3,697 residential structures within a quarter mile of developed parcels within the Heavy Industrial zoning district.

STRATEGY: Examine further opportunities through zoning and future land use designations to distance Heavy Industry from residential neighborhoods. (Goal 15 & Strategy 10.1.8)

Purpose

While heavy industrial zoned land makes up a small percentage of land area and relatively few parcels of land in the county, heavy industrial activity presents some of the most detrimental impacts on public health in comparison to other land uses. Recent legislation passed in 2019 (Ordinance 19-046) requires heavy industrial uses to obtain a special use permit, thereby rendering all existing heavy industrial uses as nonconforming. This requirement means that for an existing heavy industrial use to expand it must receive approval from the Board of Adjustment, it does little else to mitigate current conditions. Further modifications to the zoning regulations for heavy industry, and an evaluation of methods to create a greater distance between residents, including programs to assist residents in relocating, when necessary, should help reduce environmental and health hazards.

Possible actions could include:

• Consider split zoning HI zoned parcels adjacent to residential uses and assign appropriate zoning to serve as a buffer adjacent to the residential.
• Consider rezoning undeveloped residential land adjacent to HI zoned land to provide a better land use transition.
• Consider rezoning Heavy Industry zoned land that is not actively being used for a Heavy Industrial use.
• Consider offering opportunities for Environmental Justice training for NCC Board members and NCC Staff.

Status (Study, Develop Implementation Tool, Enact, Engage)

Study: Identify sites actively being used for Heavy Industrial activity, evaluate the problems, and conduct outreach to property owners and neighboring residents to discuss potential land use changes in the area.

Conduct a study of best practices regarding buffering, transitioning of uses/intensity, and distancing of residential neighborhoods from Heavy Industrial uses and craft zoning regulations that ensure that such distance is maintained with future development. For existing sites evaluate the appropriate distance and

consider split zoning the HI zoned land.

Engage: One recommendation of the Route 9 Corridor Master Plan was to conduct a survey of residents living in the Eden Park and Hamilton Park neighborhoods. These communities along the Route 9 Corridor are severely impacted by the adjacent active Heavy Industrial Uses. In January 2019, a survey was conducted by the University of Delaware to gauge residents’ attitudes towards environmental and health concerns, as well as, potential mitigation efforts, including rezoning or relocation. Continued engagement with the community is imperative, as we work to address the impacts of Heavy Industrial activities near residential areas.¹

Related Examples / Resources

• Land Use Policies to Protect Industrial Lands and Public Health | Oakland, CA

Suggested Timeframe

2024

STRATEGY: Evaluate cumulative impacts of pollutants and other community stressors to residents of Environmental Justice Communities. (15.2.1.)

Purpose

Develop standards for cumulative impacts on communities. Regulations around pollution tend to focus on individual facilities or individual pollutants; they fail to fully address the problematic cumulative impacts (all impacts taken into account, in total) which overburden some communities. Cumulative impact strategies provide a platform for examining equity and establishing appropriate maximums. Establish expectations for all communities regarding maximum cumulative exposure to stressors that considers past, present, and reasonably probable future development impacts.

Cumulative impacts are commonly addressed in

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National Environmental Policy Act (NEPA) studies to assess the magnitude and significance of effects on a variety of both natural and human environmental resources beyond those caused by the proposed action that is the subject of the study. Also, typical Adequate Public Facilities evaluations operate under a type of cumulative impact cap (i.e., number of school children, traffic level of service thresholds). These may be helpful examples to consider.

Status (Study, Develop Implementation Tool, Enact, Engage)

Study: Conduct collaborative study with sister agencies/experts to identify overburdened and/ or vulnerable areas, the most appropriate impact categories to be evaluated, geographic definitions (from neighborhood to countywide depending on the category considered) and use types. Based on results, proceed to draft/enact policy (likely to require multi-levels of government).

Study: Investigate programs that assist residents in relocating, when necessary, away from heavy industry.

Related Examples / Resources

• California’s Environmental Quality Review (CEQR) process has been applied to development projects, such as this example for the City of Irvine

• Environmental Justice and Green Zones | Minneapolis, MN

• House Bill 2488 requires the Land Conservation and

Development Commission to adopt a new statewide planning goal to address climate change mitigation and environmental justice for disadvantaged communities | Oregon

• Senate Bill 232 requiring State Department of Environmental Protection to evaluate the environmental and public health impacts of certain facilities on overburdened communities when reviewing certain permit applications | New Jersey

• EJScreen Tool | EPA

• Toxic Release Inventory Tool | EPA

• My Healthy Community | Delaware’s community health mapping resource:

• Transportation Justice data, reports, and maps for the New Castle County region | WILMAPCO

Anticipated Partners

NCC Department of Land Use, NCC Department of Community Services, Delaware Department of Natural Resources and Environmental Control, Delaware Division of Public Health

Suggested Timeframe

Complete two-year study during 2025

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Purpose

Improve public health by reducing exposure to pollution. A vibrant economy is important to the vitality of the community and to providing the ability for community members to support themselves financially. Some business-related activity, including on-site business operations and traffic, results in serious environmental and health impacts. Identifying and bringing forth environmental and health impacts into the development review process, such as through a requirement for an impact statement, enables decision-makers and the community to proactively address tradeoffs and consequences.

Being able to measure and know local data and conditions supports better decision-making and ultimately mitigating environmental justice issues. The County should create a screening tool/process to identify areas of vulnerability and cumulative/disparate impact to help identify areas of concern, set funding priorities, target regulatory and enforcement attention, and also track progress toward community clean-up and revitalization. (Also supports preceding strategy 15.2.1)

Status (Study, Develop Implementation Tool, Enact, Engage)

Study: Work with the community and agency partners to define the areas of concern: variables (pollutants, diseases, etc.), types of non-residential development (industrial or certain/all types of commercial), economic benefits in addition to adverse health effects, mitigation strategies. Consider the value of Health Impact Assessments as an organizing schema.

Study: Work with the community and agency partners (such as DNREC, State Division of Public Health, WILMAPCO Air Quality Subcommittee (AQS), etc.) to address and monitor air quality and environmental concerns in EJ neighborhoods though community air monitoring, fenceline monitoring, dust control, etc.

Study: Build on established programs to monitor and track various indicators, generally oriented towards measuring outcomes for which individual departments and agencies are responsible. Work with other agencies, departments, and groups to evaluate available data/tools, identify new/needed data/tools, and opportunities to collaborate.

Develop: Based on study findings and other resources, such as EJ/TJ data and analyses produced by WILMAPCO, develop a screening tool/process that helps identify areas of vulnerability to support land use planning and other community and public policy decision making (e.g., transportation decisions).

Enact: Develop legislation that requires social equity/health impact statement to identify impacts, risks, and opportunities to promote equity through decisions

about growth and investment.

Related Examples / Resources

• National: EnviroAtlas Use Cases | US EPA , Toxic Release Inventory | US EPA , EJScreen Tool | US EPA
• Regional (South Atlantic Coastal Study), leveraging social vulnerability and climate risk assessment databases):
• Local (King County, WA) https://www.communitiescount.org/-
• Local (Monterey County, CA) Resilient Monterey County Dashboards - Climate Change | Monterey County, CA
• Equity in Master Plans (impact statements found on page ) | Montgomery County, MD
• Displacement Risk Index | Seattle, WA
• Incorporating HIAs into the zoning code for Baltimore, MD
• Study of rezoning to consider industrial use impacts

and Environmental Justice in Eugene, OR

• Health Impact Assessment of the Fort DuPont Master Plan | New Castle County, DE
• My Healthy Community – Delaware Environmental Public Health Tracking Platform | Delaware
• Epidemiology, Population health, and Health Impact Assessment

Anticipated Partners

NCC Department of Land Use, DelDOT, WILMAPCO, DNREC

Suggested Timeframe

Initiate in 2024

Suggested Resource Needs

Train existing staff or hire outside support for health impact assessments, to the extent that becomes desirable.

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3 Land Preservation

Preserve a minimum of 7,100 acres of land for open space in the county and improve the lands’ ecosystem health (including increasing farmland & historic preservation).(Objective 1.1, 7.1)

THEMES

Sustainable Growth

Livable Built Environment for All

Conservation & Preservation

Robust Economy

Thriving Places & Community Character

Diverse Engagement

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New residential development should be located at an adequate distance from incompatible uses to provide adequate protection. Residents of New Castle County have the right to healthy and safe places to call home.

Why?

Open space and recreation provide vital functions for a community’s wellbeing, both mentally and physically. Access to natural lands for active and passive recreation are key to a robust and thriving community providing numerous health benefits to county residents. As of 2020, approximately 27% of land in New Castle County is preserved, including as public parkland (both active and natural resource/ passive), protected resource land/community open space, agricultural easements, and privately protected land. To protect a total of 30% of land, a total of approximately 7,000 acres must be protected between now and 2050. Achieving the goal will require an increase in land preservation over previous years, particularly a concerted effort to fund purchase of fee simple land and easements.

Map B-5 shows the Priority Preservation Areas policy map. The map depicts the areas across the county that are desirable for preservation and is intended to function similarly and in complement to the Growth Areas Policy Map (see Map B-3). For example, the Priority Preservation Areas policy map is expected to be used with preservation-related policy recommendations below, whereby preservation strategies and resources would be targeted to the areas shown in green on the map. The priority preservation areas are defined based on the following:

• High quality and critical natural resource areas
• Areas at risk of inland flooding and sea level rise
• Important natural, cultural, historic, and other features of the landscape to be preserved.

(Note: areas delineated as priority preservation include areas that are already preserved.)

Metrics / Tracking

The following metrics will help the County track progress with the goal of protecting a minimum of 7,100 acres of the land for open space:

Map B-5: New Castle County Targeted Land Preservation Policy Areas

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*Land Use Policy Designations within municipal boundaries reflect County policy aspirations and are not intended to prescribe municipal

Currently, there are approximately 74,700 acres of protected lands in New Castle County, which is approximately 27% of the County’s land area. This percentage was comprised of land classified as parkland (15%), private open space (4%), agricultural easements (5%), and conservation easements (3%).

STRATEGY: Establish the New Castle County Open Space Advisory Board in partnership with the state Open Space Preservation Council and implement the 2020 Land Preservation Task Force Report recommendations. (1.1.1)

Purpose

A body composed of community members and professionals with relevant subject matter expertise is needed to carry forward implementing the 2020 Land Preservation Task Force recommendations. A priority action of this body will be to develop viable and sustainable funding for land preservation.

Status (Study, Develop Implementation Tool, Enact, Engage)

Study: Study and consider different funding strategies, such as impact fees, for the preservation and acquisition of county owned open space and easements.

Study: Evaluate opportunities for other market-based preservation strategies, such as Transfer of Development Rights.

Related Examples / Resources

• Land Preservation Task Force Report (2020) | New Castle County, DE
• Open Space Committee | East Brandywine Township, PA
• Open Space Board | Montgomery County, PA

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Anticipated Partners

NCC Department of Land Use, NCC Department of Public Works, Delaware Department of Agriculture, DNREC, Community organizations

Suggested Timeframe

Once committee has been established, begin acting on Land Preservation Task Force Report immediately. Anticipated 2023.

STRATEGY: Develop a Land Preservation Master Plan with weighted project selection criteria. (1.1.2)

Purpose

Undeveloped land available for preservation is increasingly diminishing. As options to purchase land or easements become fewer, prices generally rise, and the qualities of the land and ecosystems are important to an overall strategy for maximizing public benefit, a land preservation master plan serves to guide a successful program.

This action will involve analysis and mapping to identify priority lands and will also include establishment of criteria for determining priorities. Build on successful land and resource preservation requirements in code to ensure land with greatest ecological and ecosystem services value is preserved.

This strategy should be done in complement with strategies to focus on redevelopment, infill, and growth

in areas already served by infrastructure (water, sewer service¹, road network, etc.).

Status (Study, Develop Implementation Tool, Enact, Engage)

Study: Evaluate and confirm priorities for land preservation, coordinate with the County Open Space Advisory Board to identify target preservation lands based on priorities and criteria developed, and establish associated project selection methods to support effective land preservation program. Consider a full range of environmental, cultural, and social values as well as resiliency functions of the land and the land cover to develop criteria that also support other goals of NCC2050.

Study: Work with partners to evaluate the effectiveness of the County’s existing Critical Natural Areas mapping and related code provisions. Based on findings, refine the features and definitions so the protections achieve the desired environmental protection and ecosystem enhancement objectives.

Related Examples / Resources

• Land Preservation Task Force Report (2020) | New Castle County, DE
• Land Preservation, Parks & Recreation Plan | Carroll County, MD
• Critical Natural Areas mapping and application of protections in the Unified Development Code | New Castle County, DE

Anticipated Partners

NCC Department of Public Works, NCC Department of Land Use, County Open Space Committee, community organizations, DNREC

Suggested Timeframe

Initiate 2024

STRATEGY: Establish the New Castle County Agricultural Preservation Committee and develop methodology and criteria to prioritize County funding for agricultural land preservation based on best practices and implement the 2020 Land Preservation Task Force Report recommendations. (7.1.1)

Purpose

Establish process for selecting contiguous, high-quality farms for preservation, maximize use of preservation funds, and reach a sustained and effective mechanism for farmland preservation that supports land preservation goals and local farming industry.

Status (Study, Develop Implementation Tool, Enact, Engage)

Develop Implementation Tools: Proceed where Land Preservation Task Force left off and develop a methodology and criteria that complements other land use planning and policy strategies that protect important resource land.

Study: Evaluate opportunities for other market-based preservation strategies, such as Transfer of Development Rights.

Related Examples / Resources

• Land Preservation Task Force Report (2020) | New Castle County, DE
• Agricultural Land Preservation Board | Centre County, PA
• Farmland Preservation Advisory Board | State of Connecticut

Anticipated Partners

NCC Department of Land Use, NCC Department of Public Works, Delaware Department of Agriculture, NCC Agricultural Land Preservation Committee, Farm Bureau

Suggested Timeframe

Once committee has been established, begin acting on Land Preservation Task Force Report immediately. Anticipated 2023.

4 Sustainability & Climate Change

Lead in addressing climate change, with a path for New Castle County government to reach net zero greenhouse gas emissions by 2050¹, prepare the built environment for a clean energy future, and become more resilient to environmental and health risks. (Objectives 2.1, 3.1, 14.1, 14.2)

THEMES

Sustainable Growth

Livable Built Environment for All

Conservation & Preservation

Robust Economy

Thriving Places & Community Character

Diverse Engagement

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Stormwater moves faster across impervious surfaces than natural land cover and causes erosion, more pollution, and at times, property and infrastructure damage.

Why?

Climate change will affect the daily lives -- the economy, ecosystems, and overall quality of life -- of everyone in New Castle County, from downtown Wilmington to rural farms and everywhere in between.

New Castle County needs a strategy that reduces GHG emissions that contribute to global warming as we prepare our communities to be resilient. That requires strategies to mitigate loss, reduce risk, and respond as the consequences of climate change come. This is essential for safety and quality of life that our residents deserve today and into the future. Actions taken to reduce emissions and address climate change will also help address environmental and social justice issues.

A key example: Targeting flood-prone impermeable surfaces. Approximately 15% of the land area in New Castle County is impervious; generally defined as paved surfaces and rooftops that prevent water (typically rain) from seeping into soil. Stormwater moves faster across impervious surfaces than natural land cover and causes erosion, more pollution, and at times, property, and infrastructure damage. More than half (53%) of the total impervious surfaces in New Castle County are made up of parking lots, with the remaining 47% are buildings and roads.

Metrics / Tracking

The following metrics will help the County track progress with the goal addressing climate change, preparing for a clean energy future, and resiliency:

STRATEGY: Establish a sustainability implementation team, with representation from a range of sectors and communities across the county. (2.1.1)

Purpose

Sustainability is inherently multi-disciplinary and requires knowledge, skills, and involvement from

across the community. Establishing a group of diverse members and organizations who will work with County Government to compose a sustainability action agenda and then support implementation and monitoring will help ensure that principles of sustainability are increasingly achieved through the actions of government and the community.

Status (Study, Develop Implementation Tool, Enact, Engage)

Develop Implementation Tool: Develop a Sustainability

Agenda: Building on the sustainability focused policies in NCC2050, engage a diverse group from the community to develop a community sustainability action plan.

Related Examples / Resources

• Community Sustainability Plan | Newark, DE
• Sustainability Plan | Office of Sustainability, Baltimore, MD
• Office of Sustainability and Greenworks Philadelphia | Philadelphia, PA

Anticipated Partners

NCC Land Use, NCC Public Works, other NCC Departments and community organizations

Suggested Timeframe

Initiate in 2023

STRATEGY: County government leads by example and reviews County operations to reduce greenhouse gas emissions. (14.1.1)

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Purpose

Community stewardship principles should guide the County’s day-to-day operations. The County invests significant funds annually through procurement, capital investments, and operations. Additionally, the County conducts operations such as indoor and outdoor facility maintenance and is responsible for a large fleet of vehicles. Strategically managing these resources with climate change goals in mind is an important component of the County’s effort.

Status (Study, Develop Implementation Tool, Enact, Engage)

Study: Evaluate or audit for sustainability in areas of procurement, public space management, buildings, vehicles, and other areas of operations to identify areas for improvement. Consider opportunities for positive change, such as:

• Convert County passenger and heavy-duty vehicle fleet to electric and low-emission technology.
• Conduct energy audits at all County-owned properties and implement energy upgrades.
• Establish work policies that support reduced transportation emissions, such as flex schedule and remote work.
• Enhance renewable energy at County-owned properties.
• Upgrade County land maintenance equipment (mowers, tractors, etc.) to electric.
• Convert large areas of mowed space at County properties (including offices and parks) to meadows, pollinator gardens, and forests with native species.
• Develop tracking system to establish baseline and track progress.

Related Examples / Resources

• Greenhouse Gas Reduction Policies and Initiatives | Tompkins County, NY

• Climate Roadmap 2030 | Santa Clara County, CA

• Washtenaw County Environmental Council | Washtenaw County, MI

Anticipated Partners

NCC Department of Land Use, NCC Department of Public Works, NCC Procurement/Finance, other NCC Departments

Suggested Timeframe

Ongoing

STRATEGY: Expand and enhance opportunities for renewable energy (Goals 13 & 14)

Purpose

While energy efficiency is one most cost-effective methods for reducing energy use and associated emissions, replacing fossil fuels-based energy sources with renewables is another important tool to address climate change and air quality. New Castle County has an important role in encouraging the transition to clean energy, whether it be on a single residential parcel or large-scale solar energy system. Land use policies and regulations need to encourage, enable, and facilitate the transition to renewable energy while ensuring equitable outcomes.

Status (Study, Develop Implementation

Tool, Enact, Engage) Study: Build on recent County and State renewable energy legislation and building codes, and further study market for solar and renewables and identify needs and opportunities in County policy and processes to increase access and use of renewable energy.

Study and Evaluate: Develop a tracking system: establish baseline and gauge solar growth over time, supporting enhancement of regulations and policy. (Focus on what NCC LU is able to directly measure,

such as acres or parcels of land used for solar to gauge change over time by use type; further tracking of energy production and use would be best done at statewide level)

Enhance: Enhance existing policies to expand opportunities for solar, including:

• Incentivizing for infill and retrofitting

• Evaluate existing code as it encourages/ discourages solar and enhance as appropriate, such as enabling solar in community area open space and other underused space. (Accessory use of solar is currently allowed in all zones and large- scale solar is currently allowed in Suburban and Suburban Reserve zoned areas as well as many non-residentially zoned areas, where up to 85% of a site is usable for solar.)

• Consider buildings of a certain size be built to allow for the option of solar panel installation.

Related Examples / Resources

• Renewable Energy Ordinance Framework | Delaware Valley Regional Planning Commission

• Miscellaneous resources | American Cities Climate Challenge Renewables Accelerator

Anticipated Partners

NCC Department of Land Use, NCC Office of Economic Development, NCC Department of Public Works, DNREC Office of Energy, Public Service Commission

Suggested Timeframe

Initiate in 2024

STRATEGY: Add sustainability requirements at construction or time of sale, including electric vehicle charging capability and energy efficiency disclosure. (4.4.3)

Purpose

Over a quarter of total U.S. greenhouse gas emissions come from fossil-fuel combustion attributed to residential and commercial buildings.¹ Ensuring the county’s existing and future building stock is outfitted to leverage modern technology will help reduce greenhouse gas emissions and support affordability as well as financial well-being of lower-income community members.

Status (Study, Develop Implementation

Tool, Enact, Engage) Engage: Engage housing and residential real estate industry to develop policy to lead to efficiency and modernization of housing across the County. Consider also encouraging/collaborating with municipalities to do the same.

Enact: Develop legislation to amend the building code to require attached garages include a 220 volt receptacle.

Enact: Ensure County building code regulations are consistent with State Law requiring new residential buildings to be zero net energy capable by 2025 and new commercial buildings by 2030.

Enact: Build on the 2021 ordinancing requiring EV charging stations.

Study: Develop incentives in County Code to encourage the construction of green buildings. While, Chapter 6 of the New Castle County Code recognizes the four (4) most widely recognized rating systems for green building. There currently is little incentive for builders to pursue one of these green building rating system designations. These rating systems include Green Globes sponsored by the Green Building Initiative (GBI), Leadership in Energy and Environmental Design (LEED) sponsored by U.S. Green Building Council, Model Green Home Building Guidelines sponsored by National Association of Home Builders (NAHB) and the National

Green Building Standard sponsored by International Code Council (ICC) and National Association of Home Builders (NAHB).

Related Examples / Resources

• Energy Disclosure Report | Minneapolis, MN
• Residential Energy Performance Rating and Disclosure | Portland, OR

Anticipated Partners

New Castle County Department of Land Use, Real Estate and building organizations, such as Delaware Association of Realtors, Homebuilders Association, etc.

Suggested Timeframe

Initiate by 2024

STRATEGY: Perform analysis of the criteria and perquisites as well as develop a plan to achieve a National Flood Insurance Program Community Rating System Class 4 Rating. (13.2.3)

Purpose

According to FEMA, the Community Rating System (CRS) is a voluntary incentive program that recognizes and encourages community floodplain management practices that exceed the minimum requirements of the National Flood Insurance Program (NFIP). The CRS uses a Class rating system that is similar to fire insurance rating to determine flood insurance premium reductions for residents. CRS Classes are rated from 9 to 1. As a community engages in additional mitigation activities, its residents become eligible for increased NFIP policy premium discounts. Each CRS Class improvement produces a 5% greater discount on flood insurance premiums for properties in the Special Flood Hazard Area (SFHA).

Status (Study, Develop Implementation

Tool, Enact, Engage) Develop Implementation Tool: Map the areas that are most vulnerable (“repetitive loss properties”)

Enact: Develop mitigation fund to use toward the match for the mitigation of “repetitive loss” properties.

Develop Implementation Tool: The County currently has the best rating in the state at level 6 and the 5-year renewal cycle is anticipated in the Spring of 2022. The County should seek to improve is classification, reaching Level 4 by 2032.

Anticipated Partners

NCC Department of Land Use, NCC Department of Public Works, DNREC, FEMA

Suggested Timeframe

Initiate in 2024

STRATEGY: Collaborate with partners and other agencies to achieve reduction in Vehicle Miles Traveled (VMT) per capita. (14.2.2)

Purpose

Roughly one third of greenhouse gas emissions in the U.S. stem from the transportation sector. Vehicular emissions contribute to poor local and regional air quality affecting public health, especially of vulnerable populations. Dispersed development or “sprawl” (depicted through NCC2050 future scenario analyses) has the effect of increasing VMT and contributing to the health and climate impacts. Delivery-based retail and anticipated advances in driverless vehicle technologies will have an impact on VMT, though how is currently unclear. The importance of land use and development to this issue necessitates a collaborative approach between New Castle County and organizations focused on transportation, including DelDOT and WILMAPCO.

Reducing vehicle miles traveled per capita is accomplished in two essential ways: reduce the amount of vehicle travel and/or replace vehicle travel with transit or non-vehicular travel, such as bicycling or walking. However, achieving reduction overall or replacement of trips by different modes is influenced by many factors, such as cost of travel and its different modes; comfort and experience of travel; essential need to travel long distances to get to daily needs or desired destinations. The full range of strategies is collectively called Travel Demand Management, Compact and mixed use development is part of this suite of strategies.

Status (Study, Develop Implementation Tool, Enact, Engage)

Study: Continue addressing travel demand through sub-area plans:

1. Implement existing policies and programs that result in fewer people traveling by car and more bicycling, walking, and taking transit.

2. Plan and implement strategies in target areas where there is opportunity to guide change toward more compact, mixed use development patterns and toward a better balance of jobs and housing, a greater mix of uses, and increased transit opportunities.

Engage: Work with municipalities to support infill, revitalization, and transit connectivity between important origins and destinations that exist between jurisdictions.

Develop Implementation Tool: With changes in commuting and the retail environment, collaboratively evaluate those trends and associated forecasted impacts, and identify needs and opportunities to reduce VMT per capita.

Related Examples / Resources

• Reducing Vehicle Miles Traveled Through Smart Land-Use Design | New York State Energy Research and Development Authority
• Reducing Vehicle Miles Traveled, OneSTL | East-West Gateway Council of Governments

Anticipated Partners

DelDOT, WILMAPCO, New Castle County Department of Land Use, municipalities

Suggested Timeframe

Ongoing

5 Economic Development

Develop policies and programs to create an economic environment that supports a range of industries, including emerging industry, while ensuring policy is based on leveraging equitable and robust outcomes that limit or mitigate negative effects. (Objectives 5.1, 5.2, 6.2)

THEMES

Sustainable Growth

Livable Built Environment for All

Conservation & Preservation

Robust Economy

Thriving Places & Community Character

Diverse Engagement

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A strong economy will also be a more equitable one, in which all county residents are able to take advantage of employment opportunities, housing opportunities and transportation infrastructure.

Why?

A strong and stable economy provides for job growth, thriving businesses, as well as resources for developing and preserving the other important aspects of our communities. Global and national economic shifts already in play were further disrupted by the COVID-19 pandemic and its aftermath. New technologies and new adaptations in retail and other commercial business sectors will add to the challenges of planning ahead. A deeper understanding of the local effects of these changes is needed so that new strategies for economic and workforce development are developed and implemented. A strong economy will also be a more equitable one, in which all county residents are able to take advantage of employment opportunities, housing opportunities and transportation infrastructure.

Metrics / Tracking

The following metrics will help the County track progress with the goal addressing economic development:

Jobs in New Castle County are concentrated in leisure & hospitality, wholesale & retail trade, FIRE, business services, and health and education. New Castle County falls in the 99th percentile for percentage jobs in the FIRE sector among metro counties in the nation. Corporate and management sector is also very high. Top employers in the County include: Christiana Care (12,181), JP Morgan Chase (11,000), Bank of America (6,400), University of Delaware (4,500), and Nemours (3,795). Currently, the county is more of a housing resource than a jobs resource with 1.45 jobs/household overall (ideal jobs housing ratio is 1.6 jobs/household), but the jobs/housing balance varies significantly in different parts of the county. In Southern New Castle County, the jobs housing ratio is 0.46 jobs/household. In contrast, within the other CAMPs (North Claymont, Rt. 202, Rt. 9, and Churchman’s Crossing), the ratio is 2.55 jobs/household.

STRATEGY: Support emerging and existing business (logistics, startups, bioscience, eds & meds and other areas where demand from the market is growing) to complement traditional industry and business in the County (business services, agriculture, banking, chemical and life sciences, healthcare, etc.) (5.1.1)

Purpose

New Castle County has recently experienced a significant increase in warehousing and logistics centers, a trend also seen in the surrounding region and other parts of the country. There is also emergence of a wide range of other new business, including startups, financial technology, and biotechnology. Sustaining and enhancing the local economy must include by building on the strengths of our existing/foundational industries (noted above), while fostering new business and innovation.

Status (Study, Develop Implementation Tool, Enact, Engage)

Study: Research and evaluate the needs and opportunities associated with existing and emerging business in New Castle County. Explore ways that land use policy are able to support emerging business to strengthen the local economy, such as through opportunities for redevelopment, complementary/ accessory business uses and siting, business support activity, etc. Also identify and evaluate negative externalities of economic changes.

Develop Implementation Tool: Create an economic development strategy that aligns and coordinates resources and focuses policies to achieve an attractive and supportive economic environment for new business and prevents negative consequences. Update policy accordingly.

Related Examples / Resources

Economic Value Atlas | Oregon Metro

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Anticipated Partners

NCC Department of Land Use, NCC Office of Economic Development, Office of State Planning, Delaware Prosperity Partnership, WILMAPCO, DelDOT, NCC Chamber of Commerce, Committee of 100, as well as new or smaller economic development organizations

Suggested Timeframe

Ongoing

STRATEGY: Work with other agencies and partners to focus transportation and other investments in the built environment that support and attract local business, such as corridor reinvestment, streetscape enhancement, new technology and energy infrastructure, etc. (5.1.2)

Purpose

Infrastructure and the quality of the built environment are important factors for the success and sustainability of all business. This includes roads, sidewalks, trees and green infrastructure, broadband/high speed internet, emerging transportation technology, and capability for green energy. Further, the aesthetic quality of a place serves to help or hinder business activity both in terms of attracting customers as well as employees.

Status (Study, Develop Implementation Tool, Enact, Engage)

Engage, Study, Develop Implementation Tool: Building on sub-area studies and local community development efforts, such as corridor monitoring committees, work with partners and communities to evaluate needs/ opportunities and align strategies, policies, and effort into action plans.

Consider prioritizing efforts toward small business COVID recovery through Corridor / Main Street

Enhancement programs as has been discussed by the Community and Economic Development Committee the County convened for American Rescue Plan Act funding.

Engage with partners such as DelDOT, Delaware Transit Corporation, and others to plan for emerging transportation modes and technologies (e.g., renewable energy-based, autonomous, e-bikes/ scooters, micro-mobility, etc.) to leverage benefits and minimize potential negative externalities; embrace technology designed to address existing infrastructure issues, benefit the environment, and improve how people experience travel. Include addressing support transition to electric and other renewable and efficient vehicles.

Related Examples / Resources

• Route 9 Corridor Monitoring Committee | Wilmington Area Planning Council

Anticipated Partners

NCC Department of Land Use, NCC Office of Economic Development, DelDOT, DTC, Office of State Planning, Delaware Prosperity Partnership, NCC Chamber of Commerce, Committee of 100, as well as new or smaller economic development organizations, municipalities, community development corporations,

Suggested Timeframe

Initiate in 2023, focusing on leveraging ARPA opportunities

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6 Economic Justice

As economic growth occurs, strive for equity with distribution of benefits across the community. (Objective 6.2)

THEMES

Sustainable Growth

Livable Built Environment for All

Conservation & Preservation

Robust Economy

Thriving Places & Community Character

Diverse Engagement

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In New Castle County, more than half of the housing units are one-unit detached houses, 21% are one-unit attached, 24% are two or more-unit structures. Two percent are classified as Other (includes mobile homes, boat, RVs).

Why?

All New Castle County residents should benefit from economic growth and change. The County should encourage workforce training opportunities so that our residents are well equipped for a modern economy. Community Benefits Agreements are a mechanism to consider in support of this priority.

Metrics / Tracking

The following metrics will help the County track progress with the goal addressing equity within the community:

In New Castle County, more than half of the housing units are one-unit detached houses, 21% are one-unit attached, 24% are two or more-unit structures. Two percent are classified as Other (includes mobile homes, boat, RVs). Approximately 30% of households have housing costs that are higher than what is considered affordable.

STRATEGY: As the retail economy shifts away from brick and mortar and toward delivery-based, ensure sufficient access to goods and services. (6.2.2)

Purpose

Changes in access to goods and services that result from economic and market shifts are likely to have greater impact on low-income communities. The shift to delivery-based retail and the COVID-19 pandemic put many local, smaller stores out of business. While the long-term impacts are unclear, for those who do not have access to the internet or are on a constrained budget, access to goods and services in the local community has decreased. Further, the shift to delivery-based systems has the potential to bypass customers who have poor access to the digital economy, including online access for ordering and paying for goods and services.

Policies and programs that support continued existence of local stores, locally available goods and services, and ready access to the internet for online retail are important for bridging this emerging divide.

Status (Study, Develop Implementation Tool, Enact, Engage)

Develop Implementation Tool: Ensuring equitable access to the digital economy may include consideration of a wide range of regulatory actions, which should be considered.

Enact: Ensure County libraries continue have adequate computer access and training to provide residents with an opportunity to participate in the digital economy (e.g., Route 9 Innovation Center/Library).

Engage: Work with local business and communities to enhance opportunities for strengthening local retail, including ensuring flexibility in the zoning code to support adaptation.

Related Examples / Resources

• Through a public-private partnership pilot program, residents in the historically low-income and underserved area of East Cleveland, OH will receive access to high-speed internet service.

• San Francisco, CA created the Digital Equity Strategic Plan (2019-2024) to address digital access and literacy challenges in the city and county. The plan includes three major goals and 5-year targets to measure success.

Anticipated Partners

NCC Department of Land Use, NCC Department of Community Services, NCC Office of Economic Development, community development corporations and community organizations, NCC Chamber of Commerce

Suggested Timeframe

Initiate 2024 followed by program development and implementation

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7 Implementation

Ensure County government is oriented to implement the plan in a comprehensive and coordinated fashion, including systematic data collection, tracking, reporting, and evaluation. Ensure growth and change in our communities is coordinated across agencies; that infrastructure and services are timed with new growth; and that decision-making leverages the full range of available data and technology. (Objectives 15.2, 17.2, and many others)

THEMES

Sustainable Growth

Livable Built Environment for All

Conservation & Preservation

Robust Economy

Thriving Places & Community Character

Diverse Engagement

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Tracking and publishing data helps promote transparency, government accountability, collaboration, community engagement, and data-driven decision making.

Why?

Planning and development do not happen in a vacuum. Coordination among local, state, and national agencies as well as community and nonprofit groups helps to ensure that we are working toward shared and mutually beneficial goals. Without this coordination, future development could become disconnected and create negative impact instead of positive growth.

Metrics / Tracking

The following metrics will help the County track progress with the goal of focusing growth:

STRATEGY: Establish a public-facing dashboard to report key metrics and support tracking of NCC2050 implementation. (8.2.3, 15.2.3 & 16.1.1)

Purpose

Tracking and publishing data helps promote transparency, government accountability, collaboration, community engagement, and data-driven decision making. As data becomes more abundant and technology supports improvements in efficiency and effectiveness in operations and decision-making, the County should continue to enhance its tracking and reporting.

Status (Study, Develop Implementation Tool, Enact, Engage)

Develop Implementation Tool: Collaborate across departments to build on technology capabilities, data collection/analysis/applications, and workflows, especially in support of tracking implementation of this plan and other priority actions across government.

Related Examples / Resources

• Sustainability Dashboards – Cambridge, MA has a sustainability dashboard focused on buildings, GHG emissions, energy, transportation, and waste reduction.

• Regional Planning Metrics Dashboard | Delaware Valley Regional Planning Commission

Anticipated Partners

NCC Department of Land Use, other County departments, collaborating agencies and organizations that consistently collect data

Suggested Timeframe

Initiate 2023

STRATEGY: Integrate long-range planning and sustainability functions across all departments. (17.1.9)

Purpose

Greater integration of long-range planning and sustainability functions across departments to help build on data analytics and application of data toward enhancing effectiveness and sustainability of county operations. While all departments do some form of planning, it is often short-term, operational planning, and few departments are able to fully leverage the benefits of longer-range planning and or skills of those in planning and sustainability fields.

Status (Study, Develop Implementation Tool, Enact, Engage)

Study: Evaluate where the needs and opportunities exist for long-range planning, applied data/analytics, and sustainability

Related Examples / Resources

• Sustainable Long Range Planning | Washington County, OR
• Office of Long-Term Planning and Sustainability | New York City, NY

Anticipated Partners

All County Departments

STRATEGY: Conduct study of impact fees and other economic cost-benefit analysis to ensure sustainability of community infrastructure and services over time. (Goal 17)

Purpose

Better understanding the costs and benefits of policy, services, and infrastructure and linking that across

agencies to sustainable finance is important to ensuring continued quality of service and more broadly the vibrancy of communities. Development patterns across the county vary widely, from compact, urban neighborhoods to dispersed suburban development, to rural farms. The associated costs for infrastructure and services to different development varies and it's important to recognize these differences.

Notably, impact fees must have a direct relationship to provision of services/facilities to accommodate new development. While the County is specifically excluded from using impact fees for maintenance of existing facilities, ensuring the current fees are commensurate with the true costs is an important step in assuring sustainability of communities. Other policies and approaches will also be important to ensuring infrastructure and services to the community are sustainable.

Status (Study, Develop Implementation Tool, Enact, Engage)

Study: Study/adjust impact fees and conduct economic cost-benefit analysis of other policies associated with financing infrastructure and service, to address issues such as ongoing parks and open space maintenance needs that cut across multiple departments.

Related Examples / Resources

• Rate Study for Impact Fees for Transportation, Parks, and Fire Protection | City of Renton, WA
• Transportation Impact Fee Rate Study | City of Bainbridge Island, WA
• Transportation and Water Impact Fees | City of Fort Worth, TX

Anticipated Partners

NCC Department of Land Use, NCC Department of Public Works, NCC Department of Community Services, NCC Finance

Suggested Timeframe

Begin study in 2022

8 Housing

Increase the variety and range of safe, quality housing options for all, in a diversity of locations; focus on revitalizing and preserving areas already developed, while responsibly guiding future development in a manner that is consistent with adjacent communities. (Objectives 4.1, 4.2)

THEMES

Sustainable Growth

Livable Built Environment for All

Conservation & Preservation

Robust Economy

Thriving Places & Community Character

Diverse Engagement

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It is critical that our land use policies support a variety of long-term housing solutions to provide opportunities for all residents to have safe and affordable homes throughout the county.

Why?

In recent years, wages have not increased proportionally to housing costs, and many residents have been experiencing housing insecurity. Affordable housing is also disproportionately located in Wilmington. It is critical that our land use policies support a variety of long-term housing solutions to provide opportunities for all residents to have safe and affordable homes throughout the county. Element H presents greater detail on the current challenges, opportunities, and trends the County faces with regard to housing and affordable housing.

Metrics / Tracking

The following metrics will help the County track progress with the goal of providing safe, quality housing options in New Castle County:

STRATEGY: Enable a greater range of housing types and price points in exclusively residential zones, including Accessory Dwelling Units (ADUs), duplexes, multiplexes, and tiny homes. (4.1.1 & 4.1.2)

Purpose

While County code already enables a range of housing types in many residential zones, including attached ADUs as by right in all residential zones and detached with a 2-acre minimum, a fresh look at the housing

Approximately 30% of households in New Castle County are considered “cost burdened”. This means that they spend more than 30% of their income on housing related costs. A draft objective of NCC2050 is to increase the variety and range of price-points of safe, quality housing in diverse locations. In New Castle County, more than half of the housing units are one-unit detached houses. Approximately 95% of the existing housing stock in New Castle County is categorized as average, good, excellent, or superior condition and 5% area categorized as fair or poor condition. Approximately 42% of the County’s existing housing stock was built between 1950 and 1979, 26% were built between 1980 and 2000.

market/economics and comparison with policy could help refine rules and incentives to increase options for evolving household types by number, age, and relationships among residents.

For example, this could include:

• Expanding the Accessory Dwelling Unit provisions of the code;

• Evaluating undeveloped residential land appropriate to rezone as Suburban Transition, where land is either located in the central core of the southern sewer service area¹, or should accommodate a gross density of five (5.0) dwelling units per acre or greater and with access to transit services (or if accompanying a plan will have transit access upon completion of a plan) and undeveloped residential land within two (2) mile radius of an existing transit park and ride facility. Consider revising the distance requirement of walkability within current Suburban Transition regulations. Any rezoning will need to consider the context of adjacent communities.

• Enabling apartment conversions; and

• Providing more flexibility for older (pre-Zoning Code, before 1954) multi-family buildings

Status (Study, Develop Implementation Tool, Enact, Engage)

Study: Identify barriers to variety of housing, including regulatory, fiscal, and community acceptance concerns. Define what supporting mechanisms may be appropriate to better support private sector investment in each type of housing type.

Study: Consider expanding upon and broadcasting information about the advantages of innovative housing types

Related Examples / Resources

• Santa Cruz, CA developed an Accessory Dwelling Unit (ADU) Development Program to address the increase in local housing costs. As part of the program, the city updated its zoning ordinances and created an accompanying loan and fee waiver agreement for homeowners renting the unit at a low-income rent.

• Sightline Institute article on market potential of innovative housing options based on rental price points and owner investment rates of return.

• Pinellas County, FL is applying sales tax revenues toward building affordable homes and developing a multipronged and coordinated approach to the challenge in a public-facing initiative.

• Co-Housing Association of the United States - Creating Co-Housing

Anticipated Partners

NCC Department of Community Services and NCC Department of Land Use

Suggested Timeframe

Initiate 2023

STRATEGY: Expand moderately-priced dwelling units (MPDUs). (4.1.4 & 4.1.5)

Purpose

Increase the availability of affordable housing.

Status (Study, Develop Implementation

Tool, Enact, Engage) Study and Enact: Evaluate and develop policy, such as:

• Reducing the threshold of by-right development size that triggers the MPDU requirement NCC Code 40.07.510 for provision of MPDUs for 15% - 20% of all DU; or

• Require a certain percentage of units fall under a maximum income threshold

Related Examples / Resources

The Montgomery County (MD) MPDU process has elements that might be considered during discussions on enactment:

• Shifting required MPDU percentages to apply to residential floor-area-ratio rather than number of DU

• Requiring payment-in-lieu of MPDU construction for smaller sites (>20 units must build; >10 units must pay into the county’s Housing Initiative Fund

• Increasing the affordability/control period from 10 years to 30 years for most properties

Anticipated Partners

NCC Department of Land Use, NCC Department of Community Services

Suggested Timeframe

Develop proposed ordinance text during 2023.

STRATEGY: Using the market value analysis (MVA) from the State and other data, identify priority areas and areas of opportunity and implement affordable and moderately priced housing efforts there to achieve better distribution of housing types and price points along with accessibility to daily needs (jobs, transit, school, etc.). (4.1.5)

Purpose

A main product of the MVA study is classification of the county’s housing markets (at census tract geographic scale), which is designed to help public sector officials and private market actors more precisely craft intervention strategies in weak markets and support sustainable growth in stronger market segments. The Balanced Housing Opportunities map on the following page uses MVA data to define areas of the county in one of three categories: distressed, stable, and strong. Using this data (and future refinements), the County should evaluate its current land use and housing policies and programs and use the data to refine policies that are appropriate to the different markets. For example, the County could align its federal housing dollars (e.g., CDBG or HOME programs) and scoring to lead to affordable housing incentives in areas which are identified in NCC2050 as target growth or redevelopment areas and also identified as areas of opportunity in the Balanced Housing Opportunities data/map, see Figure B-2 below.

Neighborhood-level definitions of affordability recognize the variability of price parity power across the county and help more effectively achieve affordable housing in more places across the county, rather than in the currently disproportionate concentration of affordable housing in Wilmington.

Status (Study, Develop Implementation

Tool, Enact, Engage) Study: The study should consider the price parity power across the county in conjunction with the combination of housing/transportation affordability that influences

the “drive to qualify” market.

Study: In alignment with recommendations from the Housing Advisory Board evaluate possible adjustments to Impact Fees, such as an exemption/waiver for developers of low to very low-income housing in exchange for covenants that run with the land to continue affordability for 30 years and accept all sources of income for rental unit developments. Importantly, the study will need to weight the benefit of expected impacts from this type of policy change relative to the loss of fees.

Consider establishing sliding scale for moderately priced dwelling unit (MPDU) requirements, which should factor access to transit and nonmotorized transportation modes. For example, in parts of the county better served by affordable housing fewer

MPDUs are required, and in areas with fewer affordable units more MPDUs are required. (4.1.4)

Related Examples / Resources

• Housing+Transportation Affordability Index
• Virginia DOT Smart Scale consideration of accessibility to jobs by disadvantaged populations (Measure A-2)

Anticipated Partners

NCC Department of Land Use, NCC Department of Community Services, DSHA, other housing organizations and developers

Suggested Timeframe

Initiate 2023

Figure B 2: QAP Target Areas

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Adapted from: “Qualified Allocation Plan, Reference Guide”

Targeted Strategies

Implement corridor, watershed-based, and other target-area-based revitalization programs that emphasize integration and accessibility of green infrastructure (stormwater BMPs, trees/landscaping, greenways/trails). (Objectives 1.2, 2.2 &10.1)

THEMES

Sustainable Growth

Livable Built Environment for All

Conservation & Preservation

Robust Economy

Thriving Places & Community Character

Diverse Engagement

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Revitalization efforts could benefit from a multi-pronged program that creates incentives for property owners to enhance the environment

Why?

The natural environment is a distinguishing character of the County, and our natural resources should be continually improved for the use of current and future generations. It is important to recognize that community revitalization and stream/ecosystem restoration are linked and balance the needs of our residents and businesses with conservation of our environment. Improving the built and natural environment includes fixing problems from the past and to do so, a range of collaborative approaches will be needed including public investment, individual action, and public-private partnerships.

Metrics / Tracking

The following metrics will help the County track progress with the goal of increasing revitalization and accessibility of green infrastructure:

Based on an analysis developed by the Delaware Department of Transportation, approximately 55% of households within the County currently have easy and safe access to parks and open space (one mile or less with a low level of traffic stress).

Approximately 15% of the land area in New Castle County is classified as impervious; hard surface area that either prevents or retards the entry of water into the soil mantle as under natural conditions prior to development. More than half (53%) of the total impervious surfaces in New Castle County are made up of parking lots, with the remaining 47% are buildings and roads.

STRATEGY: Encourage growth and redevelopment in targeted areas through public/private investment and programs that address multiple community enhancement objectives (e.g., preservation, environmental enhancements, non-motorized connectivity, placemaking, etc.). (10.1.1)

Purpose

There’s an advantage in spurring investment in priority areas for infill/revitalization and environmental enhancements through a collaborative public/private approach.

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Revitalization efforts could benefit from a multi-pronged program that creates incentives for property owners to enhance the environment (remove asphalt parking, install trees and Green Stormwater Infrastructure), create bicycle and pedestrian connectivity (as identified in the County Bike Plan and Connecting Communities initiative), and make other place-enhancing investments in target areas (like fostering local jobs training through a locally based maintenance program/agreement). Where full-fledged redevelopment is intended, but the market may not yet be fully ready, such a program could serve as a transitional phase and catalyze subsequent reinvestment.

Addressing stormwater through reduction in impervious surface and strategic application of stormwater BMPs in a watershed would support the County’s requirements under the NPDES program to implement water quality improvement plans. State code does allow for stormwater management districts through legislation signed in September 2021. That approach, as well as others, such as fee-in-lieu, grant, or credit-based, countywide stormwater implementation and maintenance programs should be considered. (See next strategy regarding stormwater utility/similar mechanism)

Taking a greenways/green corridor-based approach should be considered, in addition to a watershed-based approach.

Status (Study, Develop Implementation Tool, Enact, Engage)

Study and Enact: Evaluate and enact legislation to enhance redevelopment provisions of the UDC to encourage redevelopment consistent with the principles of community plans (e.g. Concord Pike Master Plan).

Engage: Consider opportunities for incentivizing public-private partnerships toward one or more preservation, environmental, non-motorized travel, and placemaking goals.

Study: Study/evaluate existing and proposed local programs and community priorities to develop multi-pronged, focused approach for revitalization. Consider how to fund, whether a program should be area-specific, what criteria/methods for the program would be, etc.

Engage: Consider linking to corridor revitalization/Main Street/COVID-relief efforts getting underway in late 2021.

Related Examples / Resources

• Green City Clean Waters | Philadelphia, PA

Anticipated Partners

New Castle County Department of Land Use, Department of Public Works, DNREC

Suggested Timeframe

Initiate 2023

Suggested Resource Needs

There may be opportunities to initiate this kind of approach in qualified census tracts under the ARPA program/funds.

STRATEGY: Establish a stormwater utility or similar mechanism to fund and optimize Best Management Practices for stormwater project implementation and ongoing maintenance and restoration. (2.2.4)

Purpose

Fund and optimize stormwater management to protect and enhance natural resources, leverage ecosystem services and “green infrastructure”, and protect and complement the built environment.

Status (Study, Develop Implementation Tool, Enact, Engage)

Study: Further evaluate opportunities for sustainable funding/maintenance of green infrastructure along streets or other public right of ways within key areas. A first step could include a maintenance fund approach, done on a community-by-community district; any new community would have to create a maintenance district, existing communities could opt in, funds would be collected through the HOA or community maintenance corporation entity and into an account to the maintenance entity, such as the Conservation

District or County Public Works. Draft legislation in 2021 puts forth this idea to build on the existing maintenance fund, which currently exists as a one-time fee solely intended to fund failures; this idea would create a continuous fund.

Related Examples / Resources

• Stormwater Utility | Newark, DE
• Integrated Stormwater Management Program | Wilmington, DE

Anticipated Partners

New Castle County Department of Land Use, Department of Public Works, DNREC, NCC Conservation District, Civic/HOAs

Suggested Timeframe

Initiate 2023

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10 Diversity

Increase diversity of engagement in community planning activities and in professional staff.

(Objectives 16.1, 16.2 & 17.2)

THEMES

⬚ figure Sustainable Growth

⬚ figure Livable Built Environment for All

⬚ figure Conservation & Preservation

⬚ figure Robust Economy

⬚ figure Thriving Places & Community Character

⬚ figure Diverse Engagement

Recruit younger professionals to select careers in New Castle County, and more generally public service, with an eye toward cultivating the next generation of economic and civic leadership.

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Why?

New Castle County residents come from all walks of life to make our county great, and it is important that we hear voices that are representative of our population as we develop and update plans, programs, and policies that affect county residents.

Metrics / Tracking

• Demographics of engagement (surveys)
• Employment age pyramid

STRATEGY: Collaborate with partners and agencies to foster a shared public input platform to help bring together the community and all levels of government in civic discourse and public decision-making. (16.1.2)

Purpose

Foster civic discourse, awareness, and engagement in community decision making by providing an accessible, user-friendly, centralized platform for participation working with a wide range of agencies and community organizations.

Status (Study, Develop Implementation Tool, Enact, Engage)

Engage: Work with partners on evaluation of opportunities and needs for better civic engagement, considering equity in accessibility, convenience, quality of engagement and feedback, opportunities for organizations to share and leverage resources, etc.

Develop Implementation Tool: Develop tools based on lessons learned, focusing on how to leverage existing data and research, portal resources, and other strategies and platforms.

Related Examples / Resources

• Be Heard Philly

Anticipated Partners

NCC Department of Land Use, Office of State Planning Coordination, State and Local Government, educational/research institutions

Suggested Timeframe

Initiate during calendar year 2023

STRATEGY: Collaborate with partners and agencies to increase exposure and engagement by students and young professionals in planning, public policy, and other fields, creating a pipeline for future employment. (16.2.1)

Purpose

Recruit younger professionals to select careers in New Castle County, and more generally public service, with an eye toward cultivating the next generation of economic and civic leadership.

Status (Study, Develop Implementation Tool, Enact, Engage)

Engage: Collaboration promoting economic development and attracting a skilled workforce already occurs but should be both broadened and focused organically. Working with educational institutes to help attract and retain leaders is a key in differentiating New Castle County among its peers.

Engage: Continue to build on the Youth Planning Board.

Related Examples / Resources

Jackson, MI developed the Anchor Initiative, a consortium of local employers and educational institutions interested in collaborating to revitalize the downtown area.

The Tulsa Regional Chamber created TYPROS, an initiative to attract young professionals to live and work in the Tulsa region. TYPROS members not only cultivate their own skills through networking and special events, but they also engage with and help grow their local communities.

Anticipated Partners

NCC Department of Land Use, NCC DHR, Educational institutions

Suggested Timeframe

Ongoing

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11 Use the Plan Guiding Growth, Including Rezonings

Update the practice for rezonings and Future Land Use Map (FLUM) changes. Zoning (and rezonings) must conform to the FLUM, achieving the right balance between predictability and flexibility. The Comprehensive Plan should be the basis for land use decisions and changes to the Future Land Use Map should be the product of a public planning process, such as a community plan, or done at the 5-year evaluation of the Comprehensive Plan. (Objective 17.3)

THEMES

Sustainable Growth

Livable Built Environment for All

Conservation & Preservation

Robust Economy

Thriving Places & Community Character

Diverse Engagement

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Maintaining a Future Land Use Map that represents the community vision for the future and then periodically reviewing and consistently undertaking a comprehensive update will support predictability to future development of the county for residents as well as developers.

Why?

The Comprehensive Development Plan serves as the formal land use and planning policy for the County. It is through the Future Land Use Map of the Comprehensive Development Plan that the vision articulated in this plan is translated into official policy serving as the basis for all land use recommendations and decisions. The Future Land Use Map holds the force of law. The following recommendations form an important foundation for sustainable growth and for achieving many of the goals of this plan. In many ways, these recommendations have an overarching role in the plan.

The Comprehensive Plan (especially the Future Land Use Map (FLUM) should guide all County planning and land use decisions. It is important to coordinate these decisions around a central reference point, so that all efforts are working toward a shared long-term goal. This follows State planning law.

Specifics to Consider

• Simplify future land use map categories providing clear and concise definitions that are consistent with their associated zoning districts resulting in predictability and clarity.
• Clearly define where change is desirable and/or needed and where preservation is desirable and needed. Update the FLUM and framework to enable sufficient flexibility for emerging economic activity and for infill and redevelopment that complement land preservation efforts.

• Where needed and when possible, develop sub-area plans where more unique conditions exist or a more detailed approached is needed. Where appropriate, develop form and design-based regulations that enhance predictability and neighborhood preservation/character, as well as investment, development/redevelopment, and overall economic and fiscal health.

STRATEGY: Update the approach for rezonings and Future Land Use Map (FLUM) changes so zoning conforms to the FLUM (17.3.1)

Purpose

Improve predictability of rezoning by ensuring compatibility with the Future Land Use Map. While the Future Land Use Map is the spatial embodiment of the Comprehensive Plan’s vision, the Zoning Map is the spatial implementation mechanism prescribing site specific use and intensity regulations. Maintaining a Future Land Use Map that represents the community vision for the future and then periodically reviewing and consistently undertaking a comprehensive update will support predictability to future development of the county for residents as well as developers.

Status (Study, Develop Implementation Tool, Enact, Engage)

Study: Include the following elements:

• Develop a table showing the relationship between rezoning and FLUM categories/definitions

• Processes to synchronize rezoning and FLUM updates; Consider comprehensive updates to the FLUM and rezonings during Comprehensive Plan updates--every 5 years, with full update every 10 years). This it to address the current practice where rezonings are considered on a project-by-project basis and any required corresponding changes to the Comprehensive Plan are an afterthought.

• Evaluate future land use map categories to confirm appropriate range of categories and details. Future land use categories should reflect the goals and objectives of the Comprehensive Plan.

• Define what set of conditions prompts a needed change to the FLUM.

• Consider needed zoning changes to improve alignment with FLUM. It is important that zoning regulations have provisions that further the implementation of the goals and objectives of the Comprehensive Plan.

• Engage stakeholders through educational materials and clear communication of the processes.

Related Examples / Resources

• Request Change of Zoning process | Miami, FL

• Rezoning and Future Land Use process | Cedar Rapids, IA

Candidate Performance Measures

• Annual parcels / acreage of change to the FLUM

Anticipated Partners

• Lead Agency: NCC Department of Land Use

Suggested Timeframe

Develop proposed implementation tool and baseline performance measure during calendar year 2022, enact during 2023 to meet concurrency deadline of 18 months, post-adoption of comp plan, required by State law.

STRATEGY: Provide better predictability to New Castle County residents regarding future residential and nonresidential development. (17.3.2)

Purpose

Improve predictability of future development capacity and design. It is important for existing and future residents to understand the development potential in and around their communities. Public feedback has identified that residents are unaware of the potential intensity (density and gross floor area ratio) and site design (housing type and building layout) on land adjacent to their communities.

Status (Study, Develop Implementation Tool, Enact, Engage)

Engage: Include the following elements:

• Continue to provide and expand outreach and educational opportunities such as Planning 101: Citizen Planner Course and the Youth Planning Board.

Enact: Include the following elements:

• The Future Land Use Map should drive zoning and only be amended in rare instances, when needed to adapt to changing conditions and only after careful consideration.

• Refine zoning district descriptions to provide clarity regarding sewer services.

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THE PLAN

C. Future Land Use and Implementation

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Land Use

Overview

Overseeing the use of land in New Castle County to ensure the built and natural environments support the health, safety, and welfare of the community is a fundamental function of the Land Use Department.

This is achieved in a range of ways from long-range planning, such as this NCC2050 comprehensive plan, to the application and enforcement of the unified development code, building code, and other regulations. Notably, the future land use map and associated maps are the component of the comprehensive plan that hold legal status, according to State law. The Future Land Use Map directs land use policy and zoning changes.

A Brief Background on Zoning

One of the most common ways of influencing the character and quality of the community is through use-based (Euclidian) zoning. The theory behind this approach is to keep different, non-compatible uses such as homes and factories separate. In practice this type of traditional zoning has shown to have downsides, including separating uses that are compatible and leading to increased vehicles miles traveled and related consequences. Land use and development related policies, including zoning, have also had other problematic results (see Section M for Environmental and Social Justice) —some intentional, some not—and through this comprehensive plan there is opportunity to make corrections and improve on the past.

Other approaches to zoning exist and have been used to some extent in New Castle County, including hybrid and form-based zoning. These tend to focus more on form of the built environment rather than use, acknowledging the benefits of integrating different, but compatible uses, and the importance of form to high-quality places and livable communities.

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In addition to land use and zoning policy, other agencies also influence the character of development (and redevelopment and preservation) in our communities.

Future Land Use Map and Zoning

The Future Land Use Plan Element designates general distribution, location, and the extent of the uses of land including residential uses, commercial uses, industry, agriculture, recreation, conservation, education, public buildings and grounds, other public facilities, and other categories of the public and private uses of land.¹

The Future Land Use Plan Element also includes standards to be followed in the control and distribution of population densities and building and structure intensities; this is depicted in the Future Land Use Map (see Map C-1; the 2012 Future Land Use Map, as amended through January 2022 is included in Appendix A for reference).

While the Future Land Use Map is the spatial embodiment of the Comprehensive Plan’s vision, the Zoning Map² is a spatial implementation mechanism prescribing site specific use and intensity (Gross Density for residential uses and Gross Floor Area Ratio for non-residential uses) regulations. As such it is imperative to understand the intent of each zoning district and the range in development intensity permitted.

In addition to land use and zoning policy, other agencies also influence the character of development (and redevelopment and preservation) in our communities. For example:

• Wastewater infrastructure is administered by the County Public Works Department and is a significant factor in defining where development can occur;

• Roads are administered by the Delaware Department of Transportation and the presence and design of roads can attract, enable, or deter certain types of development; and

• Land preservation programs are a function of a variety of government and non-government organizations, with two of the largest preservation resources in the county--the Delaware Agricultural Land Preservation Fund and Land and Water Conservation Fund (LWCF)--administered by the State. (The County and other non-profit organizations also play significant roles in land preservation, too.)³

• The State of Delaware’s Outdoor Recreation, Parks and Trails (ORPT) program is a matching grant program that assists municipalities and counties with public parkland outdoor recreation projects and land acquisitions. ⁴

These issues are explored further in other elements of this plan, but it’s important to understand the extent to which land use change in our communities is dependent on collaboration and coordination with many stakeholders.

Future Land Use Plan Element and Map Series

The Future Land Use Map is the product of public outreach and land use analysis. During the planning process, we evaluated four scenarios using both adopted projections from the Delaware Population Consortium⁵ (2020) as well as Woods & Poole Economics, Inc.⁶ These projections consider a spectrum of potential futures allocating jobs, population, and household growth across Traffic Analysis Zones (TAZs)⁷ to provide for a more localized understanding of land use and infrastructure needs.

Evaluation of existing conditions, current trends, and alternative future scenarios confirm opportunities to improve effective and efficient development patterns by focusing new development toward infill or redevelopment opportunities in appropriate locations, where substantial investment has already been made by both the public and private sectors, thereby minimizing adverse effects. For many of the key objectives evaluated, the efficiencies embodied in these locations could offset the impact of higher population and employment totals associated with economic growth. The analysis most importantly revealed that there will be sufficient capacity from a land use and infrastructure perspective to support projected growth as predicted by the DPC (at a minimum) and could accommodate much higher rates of growth should that occur. (See Appendix E for more detailed information on individual scenarios, methodologies, and findings) Building on the foundation of the draft community goals and objectives, the planning team devised a map of areas of anticipated change. The map was used along with

Map C-1: Future Land Use Map 2022

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Future Land Use Map 2022

• Business Flex
• Community Development Areas
• Hamlets & Villages
• Manufacturing
• Residential
• Residential Developed
• Resource Preservation

Corridor Areas

• Type 1 - Commercial Corridor Development

• Type 2 - Employment-based Corridor Development

• Municipalities

• Major Roads

• State and County Boundaries

• Water

*Descriptions of the Future Land Use Designations and appropriate zoning districts are consitered integral to and part of the Future Land Use Map

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0 1.25 2.5 5 Miles |---|---|---|---|

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engagement activities (interactive map exercise, questionnaire, and forum #2) to generate community conversation around the fundamental questions of “where do we want to grow and change?” and “where do we want to preserve?”

Through the planning process the following land use issues consistently were identified as necessary to be addressed through NCC2050:

• The Future Land Use plan element needs to represent the desired future for communities across the county from areas that have had more localized planning efforts such as Community Master Plan areas to neighborhoods in need of protection and enhancement.

• The Future Land Use plan element needs to provide adequate flexibility for vibrant economic activity bringing good jobs to the area as well as address housing and recreational needs for all New Castle County residents.

• The Future Land Use plan should remain unaltered and rezonings need to be consistent with the map as adopted. Any changes to the Future Land Use Map should be the product of public planning process such as a Community Area Master Plan (CAMP) or at the 5-year evaluation of the Comprehensive Plan.

• Land use objectives, policy and regulations need to be accessible, clear, and predictable.

• The Future Land Use plan element needs to facilitate the adoption and implementation of form and design-based regulations in support of predictability and neighborhood preservation/ character, as well as investment, development/ redevelopment, and overall economic and fiscal health. (Apply in CAMPs and other target areas)

These strategies are detailed in subsequent pages.

Resource Preservation

These areas include existing preserved lands as well as those appropriate for future preservation. Land within this district includes important environmental and agricultural resources as well as National Scenic Byway

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areas. Land Use policies shall discourage development and incentivize preservation of these resources.

This includes land with the following zoning classifications:

• Suburban Transition District

• Suburban District

• Suburban Estate District

• Suburban Reserve District

• Neighborhood Conservation District

• Historic District

• Any district created to meet the intent of the Resource and Agricultural Preservation District and implementation of the Goals and Objectives of the New Castle County Comprehensive Plan

Residential Districts

These are lands that are designated for residential and where appropriate mixed-use developments as well as supporting uses. The Future Land Use Map considers two categories:

• Residential (Developed) – Land that is part of an existing development

• Residential – Land that is not part of an existing established development

This includes land with the following zoning classifications:

• Suburban Transition District
• Suburban District
• Suburban Estate District
• Suburban Reserve District
• Neighborhood Conservation Districts
• Neighborhood Preservation Overlay District
• Historic District
• Traditional Neighborhood
• Manufactured Mobile Home
• Any district created to meet the intent of the Residential District and implementation of the Goals and Objectives of the New Castle County Comprehensive Plan

The Comprehensive Plan encourages development in these areas where appropriate infrastructure is present.

Business Flex

These are areas of existing and potential nonresidential development. These areas are essential to the county’s continued economic viability, as such, the County Code needs to accommodate changes in form and function of these sites. While the County supports the evolution of these sites to meet future needs, Heavy Industrial uses are not permitted in this District.

The Business Flex District includes land zoned:

• Commercial Neighborhood District
• Commercial Regional District
• Office Neighborhood District
• Office Regional District
• Business Park District
• Economic Empowerment District
• Hometown Overlay District

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• Historic District
• Industrial District
• Any future district created to meet the intent and of the Business Flex District and implementation of the Goals and Objectives of the New Castle County Comprehensive Plan

Manufacturing

The Manufacturing District includes all land currently engaged in Heavy Industrial uses. While manufacturing uses have been and will continue to be an important sector in our economy, they have in some cases had an adverse impact on adjacent neighborhoods, and natural resources. Any Land Development Plan, Rezoning, Variance or Special Use within this district should consider the impact and effect on Social and Environmental Justice.

The Manufacturing District permits existing Heavy Industrial zoning and rezoning to the following zoning districts:

• Industrial District

• Business Park District

• Office Neighborhood

• Office Regional

• Economic Empowerment District

• Any district created to meet the intent and implementation of the Goals and Objectives of the New Castle County Comprehensive Plan

Uses permitted in the Business Flex district should be evaluated as an appropriate transition from residential

neighborhoods to heavy industrial uses.

Community Development Areas

These are areas that have been studied by the completion of a Community Area Master Plan which prescribed guidance for land use policies for Claymont and Route 9. The County envisions additional areas to be evaluated as the result of the implementation of the 2022 Comprehensive Plan. While no existing use or zoning is made non-conforming within this district, land development plans within the district shall consider the following:

• Claymont – The Claymont Plan envisioned the redevelopment of the area to create a place that centers on built form, walkability, and other non-automotive forms of transportation. The train station will serve as an important anchor for future development. Any development and redevelopment along the corridor should focus on achieving these goals. Any Land Development Plan, Rezoning, Variance or Special Use within the study area should consider the impact and effect on creating a corridor that has appropriate built form and multimodal transportation opportunities of the request.
• Route 9 – The Route 9 Plan examined corridor development, multimodal transportation as well as Environmental and Social Justice issues. Any Land Development Plan, Rezoning, Variance or Special Use within the study area will consider the impact and effect on creating a multimodal corridor that has appropriate built form as well as the impact on Social and Environmental Justice.

Hamlets & Villages

These are areas that, based on existing developments, land use analysis as well as community planning efforts have been determined to be appropriate for development in a manner consistent with the Hamlet and Village provisions of the Unified Development Code. All land development plans within those designated areas shall be consistent with the Hamlet and Village provisions at the time of submission. Developments using the Hamlet and Village provisions subsequent to the adoption of the 2022 New Castle County Comprehensive Development Plan, will be updated on the Future Land Use Map at the 5-year review opportunity or the formal update in 2032.

Corridor Areas

Over the next 30 years there will likely be significant changes in the form, function, and use of land, especially in areas with strong commercial potential, such as along major roadways in the county. Some areas currently designated as Residential Districts may in the future be appropriate for Business Flex uses. While no existing use or zoning is made non-conforming within this district, rezoning of land within the corridor areas shall be limited to the following designations and consider the following:

Type 1 (Commercial Corridor Development)

Zoning Districts

• Commercial Neighborhood
• Commercial Regional
• Office Neighborhood
• Office Regional
• Business Park
• Economic Empowerment District
• Any district created to meet the intent of the Type 1 (Commercial Corridor Development) and implementation of the Goals and Objectives of the

New Castle County Comprehensive Plan

Considerations

• Type 1 corridors generally have a tight integration of jobs and services with adjacent residential neighborhoods. Future development should seek to bolster this relationship.
• Non-residentially zoned land and uses – All development and redevelopment of these sites should be oriented and designed in a manner that creates massing and design for the corridor consistent with the vision and provisions of the Guiding Principles in the Unified Development Code for Commercial Corridor Development. Corridor redevelopment should implement design features that contribute to achieving Vision Zero, such as reducing site access points when possible.
• Residential Zoned Land and Uses – Residential land may continue to be used and developed for residential purposes, however, rezoning to permit uses allowed by the above zoning districts is appropriate when the proposed development is conducive in form and function to the Commercial Corridor Development (Guiding Principles) of adjacent non-residential land, while being sensitive to the context to neighboring residential development.
• Environmental, Agricultural and Historically significant land – Preservation shall be encouraged, and development shall be discouraged.

Type 2 (Employment-based Corridor Development)

Zoning Districts

• Commercial Regional
• Office Neighborhood
• Office Regional
• Business Park
• Industrial
• Economic Empowerment District

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Corridor redevelopment should implement design features that contribute to achieving Vision Zero, such as reducing site access points when possible.

• Any district created to meet the intent of the Type 2 (Employment-based Corridor Development) and implementation of the Goals and Objectives of the New Castle County Comprehensive Plan

Considerations

• Type 2 corridors generally have a regional impact regarding jobs and services. Future development should strengthen the impact and importance of these centers while being sensitive to the relationship the developments have on neighboring communities.
• Non-residentially zoned land and uses – Development and redevelopment of these sites should be oriented and designed in a manner creating massing and design for the corridor consistent with the vision and provisions of the Guiding Principles in the Unified Development Code for Employment-based Corridor Development. Balance is essential for these corridors with a variety of uses supported from existing small retail establishments to regional shopping and logistic centers to business parks. Corridor redevelopment should implement design features that contribute to achieving Vision Zero, such as reducing site access points when possible.
• Residential Zoned Land and Uses - Residential land may continue to be used and developed for residential purposes, however, rezoning to permit uses allowed by the above zoning districts is appropriate when the proposed development is conducive in form and function to the Employment-based Corridor Development (Guiding Principles) of adjacent non-residential land while being sensitive to the context to neighboring residential development.
• Environmental, Agricultural and Historically significant land – Preservation shall be encouraged, and development shall be discouraged

Future Land Use Density and Intensity

While Future Land Use Map is the spatial embodiment of the Comprehensive Plan’s vision, the Zoning Map is the spatial implementation mechanism prescribing site specific use and intensity (Gross Density for residential uses and Gross Floor Area Ratio for non-residential uses) regulations. As such it is imperative to understand the intent of each zoning district and the range in development intensity permitted.

Existing Zoning Districts

• The Suburban Transition District (ST) allows high quality moderately high-density development (Gross Density: 3.69-8.00 dwelling units per acre) with a full range of residential and limited nonresidential uses (Gross Floor Area Ratio up to 0.30). Developments in this district are to have a suburban transition character, encouraging pedestrian linkages in addition to automobile access.

• The Suburban District (S) is a residential district that either has existing or anticipated for future sewer service consistent with land use policies and projected residential growth. The district is primarily located in growth areas designated in the Comprehensive Development Plan and intended for moderate density (Gross Density: 0.67-1.56 dwelling units per acre) with a high-quality suburban character, and significant areas of open space and/or landscaping maintaining the balance between green space and buildings. The district also permits hamlets and villages, which are planned communities (Whitehall) having a greater range of permitted uses and higher residential densities by employing Smart Code techniques.

• The Suburban Estate District (SE) is a residential district designed to preserve the low density (Gross Density: 0.41-0.44 dwelling units per acre) character of northern New Castle County. While some areas may have access to public water service, the district is not serviced by public sewer. Landscaping and other development design aspects serve to enhance or preserve the character of the area and preserve the views of the landscape.

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• The Suburban Reserve District (SR) is a residential district not currently planned for sewer, that is designed to preserve the countryside character of the area. Residential development is permitted at a very low density (Gross Density: 0.17-0.30 dwelling units per acre), so as to not foreclose on agricultural preservation and the ultimate sewering of the area.

• The Manufactured Mobile Home District (MM) allows the creation of manufactured home parks having a suburban transition. Residential development in this district is permitted at a medium density of (Gross Density up to 4.7 dwelling units per acre).

• Neighborhood Conservation Districts (NC2a, NC40, NC21, NC15, NC10, NC6.5, NC5, NCap, NCga, NCth, NCsd, NCmm and NCpud) - These districts protect the residential character of existing neighborhoods and developments, designed using zoning and subdivision regulations that predate the Unified Development Code (adopted 12/31/97). Since development regulations evolved during the years that many of these developments were planned, they have a range of intensities and uses (Gross Density: generally, between 0.41 and 20.80 dwelling units per acre).

• Hometown Overlay Districts (HT) perpetuate and enhance the character of early settlement areas, hamlets, villages, and pre-World War II subdivisions ensuring that infill, redevelopment, and changes to the zoning pattern are compatible with the existing community. Each district has a community redevelopment plan, and design review advisory committee, that ensure development is sensitive to land use, intensity, dimensional characteristics, signage and site design are compatible with and complimentary to residential neighborhoods.

• Historic Overlay Districts (H) are designed to preserve and protect buildings, structures, sites, objects, districts and landscape features of historic, architectural, cultural, archeological, educational and aesthetic merit are public necessities and are in the interest of the health, prosperity and general welfare of all residents of the County.

• The Traditional Neighborhood District (TN) is intended to be predominantly residential with a traditional urban neighborhood character. This is accomplished through design standards that encourage pedestrian activity and appropriate built form. Residential development is permitted at a medium density (Gross density: 4.39-6.00 dwelling units per acre), and mixed-use facilities are encouraged (Gross Floor Area Ratio: 0.40). No land is currently zoned Traditional Neighborhood.

• The Commercial Neighborhood District (CN) allows a variety of small-scale commercial uses having a suburban character, with a scale and intensity of the development (Gross Floor Area Ratio ranges from 0.18-0.35) by ensuring that uses primarily serve the surrounding residential neighborhoods while not promoting strip commercial development that serves highway traffic or regional uses.

• The Office Neighborhood District (ON) allows small scale office uses providing for professional and administrative offices in a park-like setting whose character is suburban transition (Gross Floor Area Ratio ranges from 0.24-0.50) and designed to provide a setting that is generally compatible with most of the County’s residential areas.

• The Industrial District (I) allows light industry uses as well as to a limited extent other uses that include offices, retail establishments and restaurants (Gross Floor Area Ratio from 0.16-0.60). The district does not permit heavy industrial uses.

• The Commercial Regional District (CR) allows for community and regional commercial services (Gross Floor Area Ratio ranges from 0.28-1.00) providing for a variety of uses ranging from mixed-use to heavy retail. Developments should be located near transit and should be designed to promote pedestrian circulation.

• The Office Regional District accommodates large regional employment centers that are primarily office employment together with support type uses including mixed-use (Gross Floor Area Ratio ranges from 0.14-0.71). Transit stop facilities are incorporated into the development to reduce automobile traffic on surrounding roads. Mixed use structures are permitted for the same reason.

• The Business Park District (BP) allows high-quality business park character with a variety of uses including office, manufacturing, light industrial, warehousing, and uses that support them at a moderate to high intensity (Gross Floor Area Ratio ranges from 0.14-0.60).

• The Heavy Industry District (HI) is intended to provide for industrial and heavy industrial uses, typically having access to rail lines or navigable marine waterways in addition to roadways (Gross Floor Area Ratio ranges from 0.34-0.69).

• The Extraction District (EX) allows mining, quarry operations, recreational activities and industrial uses (Gross Floor Area Ratio ranges from 0.01-0.15).

• The Economic Empowerment District (EED) is intended to create a master planned, campus-like setting consisting of target industry uses as identified in the 2014 Economic Development Strategic Plan, as may be amended or updated, comprising corporate headquarters, high technology offices, research and/or light assembly centers, or master planned employment centers. It can be used to transition existing industrial/office campuses to accommodate the expansion or re-use of target industries with streamlined reviews. No land is

The 1997 and subsequent updates to the New Castle County Comprehensive Development Plan have sought to bring predictability to future development of the county for residents as well as developers.

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currently zoned as an Economic Empowerment District.

• The Neighborhood Preservation Overlay District intended for residential communities that are dealing with issues of infill and proximate nonresidential development or redevelopment that could have a deleterious impact on the residential areas, while encouraging economic development, placemaking, and healthy communities in a way that protects the character of existing neighborhoods. No land is currently zoned as a Neighborhood Preservation Overlay District.

Other Key Implementation Strategies

Predictability

The 1997 and subsequent updates to the New Castle County Comprehensive Development Plan have sought to bring predictability to future development of the county for residents as well as developers. One important implementation tool for this was the adoption of the Unified Development Code, which consolidated the zoning and subdivision codes into one cohesive volume. The establishment of the suburban zoning districts (Suburban Reserve, Suburban Estate, Suburban and Suburban Transition) to replace largely undeveloped residential land (Formerly R-1 – R-4) provides a character description for future development understandable to residents.

• Suburban Reserve land is former R-2 land not currently planned for sewer designed to preserve the countryside character of the area. Developments within this district are designed so that each residential dwelling unit generally consumes between about 3.34 and 5.89 acres (including lot and open space acreage).

• Suburban Estate land is primarily land zoned R-1-A and R-2 land that is not intended to receive sewer service in the future. Developments within this district are designed so that each residential dwelling unit generally consumes between about 2.44 and 2.28 acres (including lot and open space acreage).

• Suburban land is that which is designated as growth areas in the Comprehensive Development Plan. Developments within this district are designed so that each residential dwelling unit generally consumes between about 1.50 and 0.65 acres (including lot and open space acreage).

• Suburban Transition is land is largely former R-3 & R-4 zoned land as well as land seen as a transition from higher density or intensity residential or nonresidential uses to a lower density suburban character. Developments within this district are designed so that each residential dwelling unit generally consumes between about 0.27 and 0.125 acres (including lot and open space acreage).

The County also replaced cluster development option¹ with performance zoning.² Prior to the adoption of the Unified Development Code (December 31, 1997), most of the County was zoned a variation of R-1 or R-2 (SNCC residential land was exclusively zoned R-2). R-2 land was permitted to develop as a cluster development, provided infrastructure was present, and that the property was not encumbered by protected resources at a density of 1.60 du/acre.³ Cluster developments, regardless of size could develop using any or all the following housing types:

• Single family detached homes,

• One-family semidetached dwelling located on its own individual lot,

• One-family attached dwelling (row or townhouse) located on its own individual lot within a building group.⁴

The Suburban District

• Reduced maximum density for developments, without a bonus, to 1.30 dwelling units/acre (1.56 for Age Restricted Open Space Planned Developments).

• Set a threshold of 50 acres to develop single family attached dwelling units or apartments (Open Space Planned). These developments require a mix of single family detached and attached units.

• Established provisions for Smart Code development (Hamlets and Villages) allowing for a mix of uses and increased density in appropriate areas.

While the principles described above are easy for a planner or engineer to understand, the concepts and jargon are not accessible for folks who have occupations outside of the planning profession. Moving forward we should seek out opportunities to educate the public as to the density and intensity of uses permitted in districts throughout the county. Two efforts that we initiated in the past few years are the Planning 101 Course⁵ and New Castle County Resident Toolbox.⁶

Additionally, changes to the zone should be explored

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that make the best use of open space requirements, review allowable uses and densities, and expand Hamlet and Village type developments where

appropriate.

Flexibility, Form Based Code

The 2022 Future Land Use Map/Element was constructed with the knowledge that the Unified Development Code will need to be amended to meet the needs of the county moving forward. To achieve the vision of this plan we need to seek to expand the

utilization of Smart Code provisions, evaluate the potential for Form Based Zoning (where appropriate) and employ innovative planning approaches to addressing land use challenges. These tools as well as others such as DRACs and other community based opportunities for residents to impact and guide future development especially in the Community Development Areas Districts will be essential for responsible redevelopment. While we see the need for these tools, we will seek consultation and coordination New Castle County residents, experts in the field and consideration of parking, market and housing studies.

To achieve the vision of this plan we need to seek to expand the utilization of Smart Code provisions, and evaluate the potential for Form Based Zoning.

Changing our Current

Practices

As discussed earlier in this element, 37 properties, roughly 565 acres of land, have had their future land use designation changed since the adoption of the 2012 Update to the New Castle County Comprehensive Development Plan. While the Future Land Use Map as proposed has been designed to minimize such occurrences, inevitably there will instances where a change or an amendment is merited. This should not be a common practice, but one that in rare instances permits the County to be nimble, adjusting to unforeseen economic and housing conditions. The Future Land Use Map, as conceived by Delaware State Code, drives zoning and any change to the future land map should be the product of careful consideration.

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Published 2022 ncc2050.newcastlede.gov

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ELEMENT D

Conservation

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D. Conservation Element

Element Defined

The natural environment is a distinguishing characteristic of the county, and our natural resources (air, water, land, plants, and ecosystems) should be protected for the use of current and future generations. A healthy ecosystem will support biodiversity, which is key to maintaining critical environmental features, but there are many potential threats, including climate change and the increased loss of natural habitat. Increased development for housing, retail, industrial, and other uses threaten or remove valuable space necessary for plants and animals to flourish and maintain our ecosystem. Farmland, which contributes to New Castle County’s economy, is another critical resource that is under threat, especially in the areas south of the Chesapeake and Delaware (C&D) Canal. This element incorporates the natural world into NCC2050: wetlands and watersheds; coastal zones, sea level rise, and floodplains; erosion prone soils; forest cover, and farmland. The elements of our natural world combine to form the ecosystems in which we live. From urban treescapes to rural pastures, the Conservation element works to provide integration and enhancement to the ecosystems that comprise New Castle County. Recognizing the codependency of our natural systems, NCC2050 strives to holistically approach the element Conservation.

What We Heard

Conservation was one of the top priorities throughout the NCC2050 public process. Here is what we heard:

“There are many factors when looking at open space: creating green space and nature for humans is important but also important for biodiversity. So, there are times when you need to preserve land to create access for people but sometimes you also need to preserve land just to create habitat, not for humans. Biodiversity enhances resilience, which is important for humans too; we need to utilize land for both.” -- Panelist Jeff Downing, Mt. Cuba Center, Deep Dive Session 1: Open Space, Conservation, Recreation, Environment

“Standard practices include regenerative farming, native landscaping, pollinator gardens, community composting, creative stormwater management, equal access to healthy foods/produce, increased tree canopy, species diversity, AND integration of innovations in Fantastic Fungi/mycelial systems resources.” – Participant, Our Places and Spaces Let’s Talk Workshop

“Climate change, environmental protection, hazard mitigation, stormwater runoff, [and] water pollution” – Stakeholder Challenge Top Priorities Respondent

“The Sierra Club has recently launched a national campaign to preserve 30% of land by 2030. Seems like a good goal and challenging but achievable.” – Public Participant, Deep Dive Session 1: Open Space, Conservation, Recreation, Environment

New Castle County Today

According to New Castle County’s spatial data, approximately 27% of the approximately 250,000 acres of land (including incorporated municipalities) within New Castle County is preserved.¹ This percentage was comprised of land classified public lands (including parks and other public land) (15%), private open space (4%), agricultural easements (5%), and conservation easements (3%), as seen in Figure D-1. Map D-1 shows the locations of these lands in the County. New Castle County hopes to continue to increase the number of acres preserved in the County.

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Figure D-1: Distribution of Land Use and Preserved Lands (Source: New Castle County November 2021)

Map D-1: Protected Lands

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Wetlands and Watersheds

Wetlands provide critical habitat to many plant and animal species. Any area that has wetland plants, soils, and water at or near the land surface, particularly during the growing season, is considered a wetland. As more frequent extreme weather events occur due to climate change, wetlands play a vital role in protecting community members from flooding and improving water quality through water retention and wave attenuation. New Castle County currently protects all State and Federal wetlands so that that these ecosystems are preserved and continue to offer many valuable ecosystem services to wildlife and the community.

The resiliency of tidal and coastal wetlands is threatened by mainly two factors: 1) low sediment loads to build marsh elevation and 2) Sea Level Rise. As these two threats continue, tidal and coastal wetlands will naturally migrate inland. Preservation of inland open space and agricultural lands help provide buffering for wetland migration and help reduce flooding vulnerability of coastal communities. Therefore, it is not only important to protect existing tidal wetlands but also the land surrounding them from development.

New Castle County wetlands are most densely concentrated along the eastern edge of the county and in the southern part of the county, as mapped by the state and shown in Map D-2. Today, wetlands comprise 53,504 acres, or 17%, of land in New Castle County. In the southern portion of the county (south of the C & D Canal), wetlands account for 27% of the land area. This percentage has remained unchanged since the 2012 Comprehensive Plan.

Wetlands play a key role in watershed health, as do many of the other elements of conservation, like tree coverage, responsible agricultural practices, and stormwater management. There are 20 watersheds in New Castle County, with three major drainage basins, as shown in Map D-3. The Piedmont Basin (green) is in the northern part of the county, the Delaware Bay and Estuary (yellow) drains the eastern half of the county, and the Chesapeake Bay (red) drains western New Castle County. New Castle County has one federally designated Wild and Scenic River: White Clay Creek in northwest New Castle County. All land cover including plants, structures, infrastructure, and natural habitat within a watershed play an important role in the overall system. Today, the state of Delaware, New Castle County, and other community partners are working hard to create awareness around watershed protection and restoration.

When monitoring reveals that waterways do not meet Delaware’s water quality standards, the Federal Clean Water Act (CWA) requires states to develop Total Maximum Daily Loads (TMDL) for the pollutants of concern. These pollutants could be chemicals, bacteria, sediments, or heat that could injure a waterway’s natural health. Delaware has been establishing TMDLs since 1998 using monitoring and other types of data to develop models that predict how water quality will change under a variety of pollutant loading scenarios. TMDLs are just one step in improving water quality in Delaware. DNREC identifies voluntary and regulatory actions, or pollution control strategies, for these waterways and other types of watershed plans are developed to achieve water quality standards.

Map D-2: State Wetlands

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State Wetlands

Source: Delaware Department of Natural Resources and Environmental Control (DNREC), New Castle County GIS

0 1.25 2.5 5 Miles

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Map D-3: Watersheds

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Source: USGS National Hydrography Dataset (NHD) Hydrologic Units, New Castle County GIS

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Coastal Zones, Sea Level Rise, and Floodplains

New Castle County is found on the edge of the Delaware River, which flows into the Atlantic Ocean. As such, the entire eastern edge of the County is comprised of coastal habitats, as is much of the land found along the C & D Canal. Map D-4 highlights the Coastal Zones within New Castle County.

The State of Delaware passed the Title 7, Chapter 70 Coastal Zone Act (CZA) of 1971 to control development within coastal zones and promote restoration. The act identifies legally defined areas called Coastal Zones as “the most critical areas for the future of the State in terms of the quality of life in the State” and therefore, the act enables State control over industrial development and uses within the Coastal Zones. The New Castle County Unified Development Code allows Heavy Industrial districts in coastal zones so long as they were previously zoned M-3 under former New Castle County zoning maps and uses prohibited by the Coastal Zone Act shall remain prohibited. No new Heavy Industrial districts shall be created in coastal zones. New Castle County, having a significant amount of coastline, works directly with the State in maintaining the vitality of its coast.

These critical habitats that feature unique wildlife and plants must continue to be protected; they also serve as a barrier between the Delaware Bay and inland development. Proper management and restoration of coastal land will be a strong force against continued sea level rise, particularly in the large coastal areas found in southern New Castle County. Coastal zones provide for economic viability as well, though some industries are regulated or prohibited in costal zones as regulated by the Delaware Department of Natural Resources and Environmental Control. The Coastal Zone Act controls the location, extent, and type of industrial development in the State's coastal zone, including lands contiguous to the Delaware River and Bay and Delaware Canal. This act prohibits the construction of new heavy industries in the coastal zone, such as oil refineries and steel manufacturing plants. New bulk product transfer facilities for the movement of materials from vessel to shore or vessel to vessel are also prohibited. New non-manufacturing business uses, such as commercial, residential, warehouse, and distribution facilities, are not covered by the Act. 2

Map D-4: Coastal Zone

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The Delaware Bay shoreline, an important and ecologically significant coastal area, extends from Pea Patch Island in New Castle County to the City of Lewes in Sussex County. DNREC’s Delaware Bayshore Initiative collaboratively helps to improve the shoreline economy by encouraging recreational activities like fishing, hunting, boating, and ecotourism. The initiative focuses on three major areas for improvement: land conservation, recreation and education, and community engagement.

In July 2012, DNREC performed a sea level vulnerability assessment. The published document, Preparing for Tomorrow’s High Tide, revealed that there would be a significant amount of acreage affected by sea level rise in New Castle County:

• 0.5 meters (~1.6 feet) of sea level rise (25,179 acres would be inundated)
• 1.0 meters (~3.2 feet) of sea level rise

Particularly concerning is that a large portion of Delaware’s heavy industry and railroad system are found within New Castle County’s coastal zones (See Map D-5 for updated Coastal Inundation Areas at 2- and 5-foot levels).¹. Equally concerning, the report notes that many of the dikes in the County are protecting people and property so should they fail, the results will negatively affect New Castle County residents.² As effects of sea level rise will continue to worsen, coastal restoration and smart development is at the forefront of coastal planning in New Castle County and the State today.

In addition to rising sea levels along New Castle County’s coastline, there is an observed increase in flooding events. Map D-6 shows the existing floodplains within New Castle County. Floodplains are expected to be impacted more frequently along with an increase in storm events. New Castle County regulates development in these flood-prone areas to protect people from flooding. Many of the flood zones are located along the coast, however, there are significant flood zones in southern New Castle County. Also of note are the floodplains found in the northernmost region of New Castle County, where almost all of the County’s erosion prone soils are found. Understanding the effects of climate change and increasing frequency of large storm events in relation to current and future development in New Castle County should be a prime focus to ensure safe and healthy communities and ecosystems.

Map D-5: Coastal Inundation Areas

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Source: Delaware Department of Natural Resources and Environmental Control (DNREC), New Castle County GIS

Map D-6: Floodplains

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Floodplains

• Floodplain (100% protected)
• Municipalities
• Major Roads
• State and County Boundaries
• Water
• State and County Boundaries

Source: Federal Emergency Management Agency (FEMA), New Castle County GIS

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Erosion Prone Soils and Steep Slopes

Soil erosion generally takes place any time the ground is disturbed. In New Castle County, a majority of erosion prone soils¹ are found in the Piedmont Region. According to the National Resource Defense Council, when erosion prone soils are disturbed and washed away, nearly half of the time it ends up in a body of water.² Climate change has accelerated erosion with heavier storm events washing away more topsoil. This not only threatens the health of wetlands and watersheds, it may also interfere with drinking water and impact water quality. Understanding where the County’s soil is most vulnerable to erosion is the first step in preventing it. Identifying the locations of erosion-prone soil, the County should take measures to slow erosion significantly in those areas, shown in Map D-7. One of those measures is preventing development in areas with high deposits of erosion-prone soil through which New Castle County is not only planning for the safety of residents but also avoiding disturbances that could increase the chance of erosion. The County’s publication of GreeNCC points to the Delaware Erosion and Sediment Control Handbook as a guide for controlling erosion for various planting, grading, drainage conveyance, and other development activities.

Map D-7: Erosion Prone Soils and Steep Slopes

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Erosion Prone Soils & Steep Slopes

• Precautionary (15-25%)
• Prohibitive (>25%)
• Erosion Prone Soils
• Municipalities
• Major Roads
• State and County Boundaries
• Water

Source: United States Department of Agriculture Soil Conservation Service New Castle County GIS

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0 1.25 2.5 5 Miles

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Tree Canopy and Forest Cover

Forest cover is found throughout the New Castle County though most notably in preserved areas, such as local, state, and federally owned lands or land that has been preserved through development-based protections. Tree canopy covers 33.96% of New Castle County’s total land area. This percentage was calculated by the Delaware Department of Agriculture using the Chesapeake Conservancy Innovation Center’s 2013/2014 data with a 1-meter resolution. Forest Cover is mapped by the State of Delaware where the predominate land use is forest in Map D-8. Tree canopy includes trees that are within forested areas and developed land uses.

Tree coverage provides much needed cooling effects, creates riparian buffers along water bodies, and prevents potential erosion. Forests provide habitat for a wide variety of native species and are generally areas of recreation for residents and visitors. The disparity of coverage throughout the county today is the result of development and other land uses. It is important for the County to prioritize the protection and conservation of forests to promote native species habitats and improve groundwater infiltration with a focus in areas of environmental justice (See Map D-9).

Map D-8: Forest Cover

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Map D-9: Tree Canopy

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Forest Habitat Preservation and Integration

Forest fragmentation is a critical issue for forest habitats. Promoting and reforesting areas to create contiguous forest cover not only provides a better habitat for wildlife but better opportunities for greenway access and trails for recreation. Forest preservation and integration is a piece of DNREC’s Landscape-Scale Green Infrastructure efforts, linking large ecologically significant natural areas with natural corridors that protect water quality, provide habitat for resident and migratory species, and increase landscape resilience to storms and flooding.

Areas protected for forest cover and other natural habitats helps provide alternative transportation and recreational activities through trail connectivity. In Decmber 2021, County Ordinance 21-009 was adopted, which updated standards for increased forest resource preservation, conservation design standards, subdivision standards, site design, and resource protection definitions.

Farmland and Agriculture

Agriculture in New Castle County provides economic benefits, fresh food and food security, historic connections, and a current way of life for many New Castle County residents, especially in southern New Castle County. In 1991, the Delaware State Department of Agriculture began the Agricultural Lands Preservation Program (Aglands). This program allowed property to be placed in two types agreements: an agricultural preservation district where landowners agree to use the land for agricultural purposes only or an agricultural conservation easement where the owner sells the land development rights and preserves the property permanently.¹ New Castle County established a volunteer farmland preservation program in 2003 to purchase easements that restrict subdivision of the land, and in 2006 began a partnership with Aglands by donating County funds for farmland preservation on a one-to-one matching basis. All interested landowners apply to the Aglands program, and if not chosen, are then eligible for the County/State match program. Today, New Castle County has approximately 14,100 acres of land in agricultural easements in unincorporated New Castle County, which includes State and County easements.

There are approximately 97,000 acres of prime agricultural soils in unincorporated New Castle County. Per the 2017 United States Agricultural Census, there are 361 farms in New Castle County, which represent about 16% of all farms found in the State. In the same Census, 67,455 acres of land were used for farming, which is about 13% of all farmland in the state of Delaware. Farmland distribution in New Castle County is shown in Map D-10. Notably, the majority is located in the southern part of the county. However, numerous sizeable farms also continue to operate in the northern part of the county, including some smaller scale urban farms and gardens. The farms in the northern part of the county tend to be smaller and oriented toward local produce and value-added food products. Many also include community-oriented activities.

Map D-10: Agricultural Land

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The average farm size is 187 acres and median farm size is 22 acres, meaning most are small, likely family-owned farms, rather than large-scale corporate crop productions. The total income from farm-related sources in New Castle County was $2,677,000, making farming a valuable part of the economy.

The number of acres in farmland has decreased since 1987, though there was a small increase between 2010 and 2017. Map D-11 shows the current easements and prime agricultural soils within New Castle County. Of the total acreage of prime agricultural soils, eight percent of prime agricultural soils are protected by Agricultural Easements, 19% fall under Other Protected Land, 30% of prime agricultural soils have been developed, and 43% of prime agricultural soils remain undeveloped and unprotected. The remaining undeveloped and unprotected prime agricultural soil areas should be a core focus for future protections.

As New Castle County moves into the future, our agricultural land will face challenges such as development pressure and sea level rise, among others, and efforts are being made to mitigate those challenges. The land development process should continue to encourage development that does not further diminish agricultural lands, especially in the southern part of the county. Continuing to evaluate and place highly valuable farmland into agricultural easements, protecting it from development in the future, should be a tool the County uses continuously. A second tool to achieve agricultural land preservation is to continue to incentivize growth and higher-density development to areas north of the canal, which may slow demand for housing south of the canal.

Map D-11: Agricultural Easements and Prime Agricultural Soils

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Agricultural Preservation Easements & Prime Agricultural Soils

Unprotected Undeveloped Prime Agricultural Soils Agricultural Easements State and County Boundaries Major Roads Municipalities Water

Source: National Cooperative Soil Survey, Delaware Department of Agriculture, New Castle County GIS

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Protected/Non-developable Land

The UDC sets regulations regarding where and what kind of development is permitted and where it cannot occur in New Castle County. Article 5 of the UDC requires developers conduct various analyses to determine the maximum intensity of development of a site, based on existing infrastructure and natural resources within the property. These analyses are designed to ensure that the public health, safety, welfare, and quality of life are protected. One calculation that must be conducted is related to “site resource capacity,” which requires measuring the important natural resources on the site to determine how much of a property is developable. Any development must comply with the protection standards as established in Article 10 of the UDC including those for floodplains, wetlands, steep slopes, rare species, forests, Critical Natural Areas (CNA), Water Resource Protection Areas (WRPA), etc. as described in Table D-1.

Table D-2: Existing Resource Protection Levels (Source: New Castle County Unified Development Code, Article 10)

As part of the development plan process, protected resources are protected by a conservation easement to ensure their future viability.

New Castle County established a Land Preservation Task Force in August 2019, to study open space conservation strategies and make planning recommendations to the county. The Land Preservation Task Force report vision specifically cites critical natural areas as a piece of the unique combination of natural resources found in our region that require conservation and preservation. New Castle County contains several types of natural resources that contribute to the County’s environmental health, sustainability, and biodiversity. The protection of these resources is vital to the health and wellbeing of the environment and wellbeing of New Castle County¹ residents. The UDC offers protections of natural resources such as wetlands, floodplain, Water Resource Protection areas, forests, and critical natural areas. Map D-12 shows critical natural areas identified in New Castle County and Map D-13 shows Water Resource Protection areas in New Castle County.

Map D-12: Critical Natural Areas

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Critical Natural Areas

• Critical Natural Areas
• Municipalities
• Major Roads
• Water

Source: Delaware Department of Natural Resources and Environmental Control (DNREC), New Castle County GIS

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Map D-13: Water Resource Protection Areas

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Conserving and preserving our natural environment is a key theme for NCC2050. Strategies in this plan will help us to ensure that our environment continues to be a distinguishing feature of our county. It is imperative that we protect our natural resources and ensure that all New Castle County residents have access to clean air and water by coordinating with environmental agencies and other partners to protect water sources and maintain and extend effective sanitary sewer service. Efforts to conserve and protect our natural environment should include consideration of climate change mitigation, resiliency, and adaptation to protect both the natural and built environment from impacts of climate change.

Related Goals, Objectives, and Strategies

2. Goal: The natural environment of the county continues to be a distinguishing characteristic of our community, and the quality of our natural resources—air, water, land, ecosystems (plants and animals)—are continually improving and meeting the needs of present and future generations. Development/redevelopment patterns that consume less unbuilt “greenfields” and resource lands support conservation of our important natural resources.

2.1. Objective: The County shall set an example and evaluate ways to address the impact of development on micro- (e.g. local air quality) and macro-climate conditions (e.g. greenhouse gases) and achievement of State/Federal air quality standards.

2.1.1. Strategy: Engage the full breadth of sectors and communities across the county in a sustainability action agenda/working group. (Refer to Environmental Justice, Climate Change, and Emergency Preparedness/Hazard Mitigation/Resiliency goals and objectives)

2.2. Objective: Improve surface water quality and reduce stormwater runoff from developed lands, with recognition that community revitalization and stream/ecosystem restoration are linked.

2.2.1. Strategy: Eliminate parking minimums for certain smaller buildings and in town centers; establish parking caps.

2.2.2. Strategy: Discourage development in areas that lack water and/or sewer service

2.2.3. Strategy: Conduct watershed-based planning with associated policies and programs, including incentives that focus on improved stormwater management facilities on existing sites, application of ecosystem services, and retrofitting with green stormwater infrastructure.

2.2.4. Strategy: Establish a stormwater utility to fund and optimize stormwater BMP implementation and ongoing maintenance.

2.3. Objective: Improve ecosystem health by reducing sprawl and fragmentation, reconnecting open space, enhancing ecosystems, and applying green stormwater infrastructure strategies (while our economy and population continues to grow).

2.3.1. Strategy: Encourage more compact growth patterns, focusing development in areas that are already served by infrastructure (water, sewer service, road network, etc.)

2.3.2. Strategy: Continue to review and update development and property management code requirements to ensure flexibility in landscaping materials (e.g. native vegetation, pollinator gardens, and ecologically friendly landscaping).

2.3.3. Strategy: Encourage/incentivize use of native species and habitat-oriented landscapes through innovative conservation strategies, including homeowner education and incentive programs (e.g. cost-share program to convert lawn or non-natives to native pollinator gardens and meadows). Consider evaluation of County owned properties for existing native and invasive species.

2.3.4. Strategy: Collaborate with DNREC and other organization to further protect Critical Natural Areas and Key Wildlife Habitats (See Appendix I). Offer full support to DNREC in reevaluation of natural areas.

2.3.5. Strategy: Promote farming practices that protect the natural environment

2.3.6. Strategy: Continue to partner with the State, Federal government, and other nonprofit agencies on agricultural preservation with a targeted approach to select land to be preserved

2.3.7. Strategy: Support youth agriculture education programs

2.3.8. Strategy: Consider an amendment to the Unified Development Code to address forest fragmentation placing an emphasis on contiguous forest habitats.

2.3.9. Strategy: Promote and encourage the participation in the Natural Areas Preservation Program with the DNREC Division of Parks and Recreation, Office of Nature Preserves.

2.3.10 Strategy: Work with New Castle County Department of Public Works and DNREC Division of Parks and Recreation’s Office of Nature Preserves to assess habitat conditions in public parks for wildlife, invasive species, and signs of degraded habitat such as litter, water pollution, and loss of ecosystem function, then developstrategies to restore or enhance public natural resources.

2.4. Objective: Increase tree-canopy to 40%, prioritizing areas with the lowest canopy cover and greatest potential benefits (e.g. urban heat island, flooding, etc.)

2.4.1. Strategy: Establish an incentive-based program with private and non-profit partners to support property owners planting and maintaining healthy tree cover (e.g. subsidize cost of trees for property owners, Pennsylvania Horticultural Society’s TreeTender program)

2.4.2 Strategy: Implement effective reforestation regulations that ensure trees are planted with new development and redevelopment and are sustained over the long term. Evaluate effectiveness and opportunities to increase effectiveness, such as through incentives. Consider including a tree-bank/fee-in-lieu of program.

2.4.3. Strategy: Evaluate and incentivize forest protection standards to maximize tree canopies for heat abatement and ensure that high-quality forest habitat is preserved, particularly mature forests and “heritage” trees.

2.4.4. 2.4.4. Strategy: Work to advance the Delaware Forest Service’s 1 million Trees initiative, Urban and Community Forestry Program, and Tree for Every Delawarean Initiative (TEDI) by coordinating with national, state, and local partners.

7. Goal: Farming continues to be a viable way of life and contributes to economic resiliency and healthy communities (for its provision of food access and security, its preservation of farmland, and contribution toward community character).

7.1. Objective: Increase the amount of preserved contiguous farmland and amount of prime soil protected from development.

7.1.1. Strategy: Establish the New Castle County Agricultural Preservation Committee and develop methodology and criteria to prioritize County funding for agricultural land preservation based on best practices and implement the 2020 Land Preservation Task Force Report recommendations.

7.1.2. Strategy: Support agricultural economic development opportunities such as farm to table and urban agriculture connecting local customers to farmers directly.

7.1.3 Strategy: Establish/revise land use regulations to permit farmers to not only develop their property but retain a portion required for passive open space as farmland under an agricultural preservation easement.

See Also: Recreation and Open Space Element, Goal 1 Climate Change and Hazard Mitigation Element, Goal 13 Utilities, Water, and Sewer, Goal 3

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ELEMENT E

Open Space & Recreation

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E. Open Space and Recreation Element

Element Defined

When residents hear the term open space it conjures up different meanings for each individual. Open space encompasses undeveloped land or land with very limited infrastructure/development. Open space may include parks, greenways and natural places such as forests, upland habitat, soils, streams, floodplains, and/or wetlands This land is targeted for preservation to accomplish a number of important goals including agricultural, historical and environmental preservation as well as for recreational opportunities.

In the context of this Comprehensive Plan, the term Protected Open Space refers to privately or publicly held land protected from future development. This land has been targeted for preservation to accomplish several important goals including agricultural, historical and environmental preservation as well as for recreational opportunities. Important tools in open space preservation include conservation/preservation easements (agricultural & environmental) as well as open space areas associated with residential development plans (environmental, historical, and recreational).

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Figure E-1: Delcastle Recreational Park

“Conservation of open space is critical to preserving biodiversity and healthy, resilient ecosystems. It provides habitat for a wide range of plants, animals, fungi, and beneficial microorganisms in the soil. Open space also influences human health and well-being, contributing to clean waterways, healthy air quality, and carbon sequestration that helps mitigate climate change. Once open space is developed into shopping centers, parking lots, highways, and subdivisions, it is generally gone for good. The U.S. Forest Service estimates that approximately 6,000 acres of open space are converted to other uses every day.¹ Therefore, the actions we take (or don’t take) now in terms of valuing and protecting open space are destined to have long-lasting implications far into the future.”

Open space protects a community's natural green infrastructure, providing places for recreation, preserving important environmental and ecological functions, and enhancing quality of life. It also benefits public health by reducing exposure to pollution and improving quality of life by greening urban areas, planting trees, and converting appropriate land to greenfields. Protecting buffer areas and wetlands have numerous benefits and access to healthy waters/clean waters (rivers, streams) vibrant economy is important to the vibrancy of the community.

Having access to natural lands, for active recreation like ballfields and kayaking as well as passive recreation, such as trails and birdwatching, are key to a robust and thriving community. Many of the uses are low or no cost to community members, like walking, jogging, or utilizing playground equipment, and provide numerous health benefits by promoting healthy lifestyles and encouraging a love of nature. Ensuring that all communities have equal access to open space and recreation is key, especially in more urbanized areas where there are fewer trees and parks. Equity and environmental justice are important

components of open space and recreation. Open space and parkland also provide opportunities toward overall sustainability for the community. Effective planning and design support stormwater management, heat island mitigation, habitat protection and expansion, and other resiliency strategies.

What We Heard

During NCC2050’s development, a public survey was released asking a variety of questions regarding priorities. The survey asked respondents “What are the top three (3) areas you see the greatest potential or opportunity for New Castle County?” The question was answered by 242 people and “Access to Parks, Trails, & Open Space” was selected as the greatest potential or opportunity within the county. Similarly, New Castle County residents frequently mentioned open space and recreation during the NCC2050 process. Here is what we heard:

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“Open spaces mean a lot of different things depending on what kind of community you live in. We have to have conversations around open spaces in our smaller communities because for communities in Greenville or other places, open spaces are going to be different for that area than maybe between Rogers Road and Cherry Lane. So, in some of our communities, we have open spaces, but I think they need to be cleaned up and enhanced, and I would hope that is part of the conversation as well. Sometimes when we look at the bigger picture, we do not see the details so I would think with smaller communities this would be the detail of open space.” —Dora Williams; Community Representative, Route 9 Monitoring

“Utilize existing open spaces (city and state parks, vacant lots) in urban and suburban locations as a place to engage youth and teenagers, in the form of green schoolyards and outdoor learning environments to combat plant blindness/ nature deficit disorder.” — Deep Dive Session 1: Open Space, Conservation, Recreation, Environment Public Participant

“Promote a convenient, but active lifestyle by increasing park accessibility.” — Goal established by the New Castle County Youth Planning Board (YPB)

New Castle County Today

Existing Open Space and Recreation Analysis

Within the unincorporated and incorporated areas of New Castle County, there is a wide dispersion of recreational facilities and open space. Map E-1 shows the total distribution of public lands and open space within the County today. County public land (shown in light green) is significantly concentrated above the canal, while Federal, State and Private conservation-oriented land is more abundant in the southern part of the county. South of the C&D Canal, the majority of open space is referred to as “private open space” due to its association with subdivisions and the fact that it may not be readily accessible for use by the public.

There are approximately 52,000 acres of parks and open space in New Castle County (approximately 48,000 acres in unincorporated New Castle County). Parks and open space include public lands (owned by federal, state, county or municipalities) and private open space (open space associated with development). The type of open space by percentage is shown in Table E-1. Over the last two decades, New Castle County has averaged approximately 170 acres of open space being added to preserved status per year because of new subdivisions. Open space created through the land development is provisioned for passive or active recreation (useable open space).² The Unified Development Code requires environmental resources be protected under conservation easements during the land development process.³ This does not include agricultural or private conservation easements, are also important when looking at land preservation goals, however not examined the context of recreation and active open space. Based on these numbers, there are 0.09 acres per person (3,920.4 ft²) in New Castle County. The World Health Organization recommends that there be at least 50m² of green space per person, which is one of many service standards defined in the literature. The County does not have an official policy for quantitative service standard for open space, but for purposes of general benchmarking, green space available countywide is well ahead of the WHO recommendation. A more localized evaluation of green space availability is recommended to better understand accessibility and level of service to local communities and sub-populations.

Expanding our public parkland, private open space, conservation easement, and other creative mechanisms and partnerships will continue to help attain the NCC2050 future goal of 7,100 acres of protected open space. It is critical that ensuring the quality of the existing protected open space and parks is also maintained and enhanced to realize the full benefits to the community.

Map E-1: Parks and Open Space

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Map E-2: Parks and Trails

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Table E-1: Open Space by Type in New Castle County (includes incorporated and unincorporated areas)

Looking specifically at active and passive recreation distribution throughout the County, New Castle County estimates that approximately 30% of the acreage in County owned parks is active recreation and 70% of the acreage is passive recreation. Map E-2 shows County parks and trails, including the East Coast Greenway—a 3,000-mile rail trail linking the major cities of the Atlantic coast from Calais, Maine, to Key West, Florida—that traverses the County both via trails and on-road facilities. Again, this map demonstrates that there are areas with a good distribution of parks and outdoor amenities, and these features are found throughout the County; however, continuing to make sure that there are County-provided open space and recreation opportunities for all residents will be a key strategy moving forward.

The Delaware Division of Parks and Recreation published the most recent Statewide Comprehensive Outdoor Recreation Plan (SCORP) in 2018 which included an inventory of outdoor recreation facilities throughout the state. (Regions 1 and 2 cover New Castle County.) Resulting from the previous SCORP, the Division maintains an interactive web application which should be used to locate outdoor recreation facilities throughout the state.

Increasing the percentage of residents that have access to recreation and open spaces without a car is an objective of NCC2050. Access to parks and open space is an important part of overall community health and wellness. New Castle County has many parks that are available to the public. Development patterns and the transportation network impacts a community’s ability to safely and easily access parks and open space. Based on an analysis developed by the Delaware Department of Transportation, approximately 55% of households within the County currently have easy and safe access to parks and open space (one mile or less with a low level of traffic stress). Approximately 75% of housing units within New Castle County are located within one mile of parks and open space. A portion of these households do not have safe access to these parks and open spaces (higher level of traffic stress). See Figure E-2 to view how this was mapped.

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Figure E-2: Park Accessibility by Bicycle

Parks and Recreation in Unincorporated New Castle County

Park Planning, Acquisition, and Development

Over the life of the 2012 Comprehensive Plan, New Castle County has been very proactive in planning for both open space and recreation uses. In 2017, the New Castle County Department of Public Works completed an update to its 1984 Long-Range Park Acquisition and Development Plan. Within the plan, NCC analyzed the status of parks and recreation facilities and future need. Utilizing the National Recreational and Park Association (NRPA) definitions for recreational facilities and parks, the study identified four types of parks within New Castle County and utilized the NRPA’s standards for number of facilities per population and travel time. See Table E-1 for the existing conditions of County-owned parks and recreation facilities. The NRPA defined each of these facility types, as shown in Table E-2.

Table E-2: NRPA Facility Type Definitions

Source: 2017 Long-Range Park Acquisition and Development Plan, pages 8-10

The national standards were used to analyze existing conditions within the plan. New Castle County’s Department of Public Works found that there is a need for new parks, particularly smaller parks with neighborhood access. An updated plan containing more robust and nuanced analysis, factoring in non-motorized access, equity, and other measures of need and opportunities is recommended.

Most significantly, there is the need for smaller, community facilities with 14 new neighborhood parks and three new district parks recommended. Specifically, the plan identifies the following Planning Districts (PD), as shown in the Map in Section A of this plan, as needing additional facilities:

• Piedmont PD: About 1 1/2 additional Neighborhood Parks and about 1/3 of an additional District Park.
• New Castle PD: About 2 additional Neighborhood Parks and about 1/2 of an additional District Park.
• Red Lion PD: About 1/2 of an additional Neighborhood Park.
• Central Pencader PD: About 2 1/2 additional Neighborhood Parks and about 1/2 of an additional District Park.
• MOT PD: About 8 additional Neighborhood Parks and about 1 3/4 additional District Parks.

As defined, both facility types should be located within a 2-mile radius from the home. As heard in many of the public meetings, creating safe, walkable linkages between neighborhoods and neighborhood/district parks is a critical need within NCC.

Concurrently, the County assembled a New Castle County Parks Task Force comprised of community members and stakeholders. From this taskforce, the Final Report of the New Castle County Parks Task Force was produced. Found within the report are 15 priority recommendations. The recommendations were prioritized by a timeline ranging from immediate to long-term. The recommendations included organizational structure suggestions for the County, specific park projects to commence, key developments that should include recreation and open space facilities, and key equitable community identification to keep an open and ongoing dialogue.

Map E-3: New Castle County Planning Districts

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Figure E-3 Aerial View of Woodshaven Kruse Park

Currently, New Castle County has a priority pathways list, created in 2019, for key linkages between communities. Many of these priorities are planned to connect major trail networks and transportation facilities. Improving smaller neighborhood paths to link communities is an extension of environmental justice for communities that are underrepresented, or where facilities are inadequate for the needs of the community. While pedestrian and bicycle linkages are discussed in the Mobility Element, the following priority pathway gaps specifically address linkages to open space and recreation:

1. Commons Boulevard Provides a connection from the Markel Trail at the I-295 tunnel to the Churchmans Road Pathway, thereby providing direct pathway access for the numerous residential, commercial, office, and institutional uses in-between.

2. Augustine Cut Off Provides a connection from the greater Blue Ball/US 202 Pathway system, located in the County, to the east side of the Trolley Square neighborhood, as well as the Brandywine Park trail network, both located in the City of Wilmington. Links the two largest population centers in the State, Wilmington and Brandywine Hundred, with a pathway.

3. Newport Connector A connection from the Wilmington to New Castle Pathway near the north side of the Christina River Bridge, routing beneath I-95 and along Amtrak right-of-way, to the Town of Newport’s industrial park. This potential pathway alignment was identified on DelDOT’s 2014 Newark-to-Wilmington Pathway Study.

4. Newark to Castle Trail Connects the City of Newark and the Castle Trail along the C&D Canal. It was identified in DelDOT’s 2014 Newark-to-Wilmington Pathway Study. Alternative alignments may also be feasible.

5. North St. Georges Short connection through Army Corps’ land from Castle Trail to DelDOT ROW that will provide direct access to North St. Georges’ commercial area.

6. Mill Creek Greenway Segment 1 – Mendenhall Village entrance to Stoney Batter Road and Segment 2 – Stoney Batter Road to Delcastle Park pathway system

7. Churchman’s Crossing Pathway System A plan to connect the Churchman’s Crossing area of the County, which includes a train station, with a network of shared-use pathways. These potential pathway alignments were identified on DelDOT’s 2014 Newark-to-Wilmington Pathway Study.

8. New Castle to Delaware City A plan, originating from the Trustees of the New Castle Common and Public Works, to connect the City of New Castle to Delaware City with a pathway utilizing both SR 9 and alignments through privately-held parcels. When completed, this pathway would constitute an 8-mile portion of a 40-mile continuous series of pathways connecting the City of Newark and Chesapeake City to the City of Wilmington. May be presented to Delaware Bike Council (DBC) for future feasibility study grant funding.

9. Middletown to South St. Georges This pathway, which leverages previous pathway implementation along its alignment, will connect the northside of Middletown at North Broad Street to South St. Georges at the St. Georges Bridge (US 13), which has the only dedicated bicycle/pedestrian crossing of the C&D Canal. It will generally serve as the main north-south pathway spine for the central part of southern New Castle County north of Middletown.

10. South Bank C&D Canal This pathway would be placed generally along the Tier 1 road (lowest tier) directly along the South Bank of the C&D Canal from the Delaware/Maryland Stateline to South St. Georges. A western extension into Maryland could bring the pathway to South Chesapeake City, while an eastern extension beyond South St. Georges could bring the pathway to Biggs Lane and back to South St. George along Biggs Lane. Additional connections along the South Bank of the C&D Canal to various existing and planned neighborhoods, roadways, trailheads, and protected open space are also feasible.

11. Claymont and Governor Printz Pathway A plan to implement the far northern portion of the East Coast Greenway in Delaware as a separated pathway and/or cycle-track facility. Governor Printz Boulevard is currently a 4-lane

divided highway that is paralleled by both Philadelphia Pike and I-495; hence its current configuration is well over-capacity for projected traffic volumes. A road diet resulting in a reallocation of space within the Governor Printz right-of-way to implement a shared-use pathway from Bellevue State Park at Cauffiel Parkway to the existing Claymont Train Station would be part of the conceptual plan. The existing Claymont Train Station is slated to move northward to a site formerly occupied by the Claymont Steel Mill. The conceptual plan will analyze pathway routing from the existing station location to the new station location and through the Pennsylvania state line along Philadelphia Pike, which is where the Pennsylvania portion of the East Coast Greenway begins. Coordination with the North Claymont Area Master Plan and potential development activity will be necessary.

12. Pike Creek - Three Little Bakers Golf Course Area

Various pathways through future open space areas that may utilize, in part, existing golf cart pathways and other connecting alignments.

Many of these pathways will connect key community linkages but as priorities are identified, equity should continue to be at the forefront of these conversations not only for pathway linkages but for the entire Open Space and Recreation element.

Land Preservation

As development continues in New Castle County, there is a need for more intentional land preservation. Beginning in 2019, the County convened a Land Preservation Task Force to recommend goals and strategies to increase the County’s role in identification, protection and management of certain land uses for the County and its residents. One goal of the resulting plan was: Establish a structured and sustainable open space preservation program. Recommendations to support this goal included development of an Open Space Preservation Council and Land Preservation Master Plan, updating the County Park Master Plan, evaluation of County regulations and possibly strengthen regulations to preserve passive open space, and hiring a land preservation specialist/planner. These efforts would formalize the preservation of open space within County land use planning and polices to work toward the overall goal to preserve a minimum of 7,100 acres of land as protected open space in the county for open space in 30 years. Element D, Conservation, includes additional information and maps of areas important as part of a land preservation strategy including Map D-12 Critical Natural Areas.¹

Effective planning related to recreation and open space influences nearly all aspects of life in our county. Recreation facilities, whether active or passive, are key to mental and physical health. Open space and parkland facilities support environmental conservation efforts, stormwater management, heat island mitigation, habitat protection and expansion, and resiliency and adaptation strategies. Safe and comfortable access to natural lands and recreational resources should be available to all residents to encourage healthy lifestyles and an appreciation of nature.

Related Goals, Objectives, and Strategies

1. Goal: New Castle County has a connected, well-maintained and well-loved network of open space (natural lands and recreational resources) that benefits all residents.

   1.1. Objective: Preserve at least a minimum of 7,100 acres land as protected open space in the county, within 30 years.

1.1.1. Strategy: Establish the New Castle County Open Space Advisory Board in partnership with the state Open Space Preservation Council and implement the 2020 Land Preservation Task Force Report recommendations, including funding sources and public private partnerships.

1.1.2. Strategy: Develop a Land Preservation and Stewardship Master Plan with weighted project selection criteria.

1.1.3. Strategy: Develop policies and initiatives that coordinate/integrate open space across adjacent developments.

1.1.4. Strategy: Strategically create open space in developed areas to equitably increase green infrastructure, resiliency, and access to open space/recreation, such as the south Wilmington wetland park. Place emphasis on greening in underserved areas and coordinate with regional planning initiatives, such as the Brandywine-Struble Greenway Plan, Delaware River Program, Christina and Brandywine River Remediation, Restoration and Resilience Plan, and Chesapeake Bay Program.

1.1.5. Strategy: Link agricultural land preservation, open space, and land use strategies, including strategic programs that leverage diverse partnerships to preserve open space, resource and agricultural lands. For example: Where appropriate, permit passive open space, which is required by residential land development plans, to be preserved by a permanent agricultural land preservation easement and leased for agricultural use.

1.1.6 Strategy: Consider adding a preservation zoning category (greater than 5 acre minimum lot size).

1.2. Objective: Increase the percentage of residents that have safe, comfortable access (within 1 mile using a low-stress, accessible route) to a variety of recreational opportunities and natural spaces without the requirement of a personal automobile.

1.2.1. Strategy: Implement the NCC Bike Plan, track progress, and keep the plan up to date. Coordinate with local, regional and state initiatives, such as Blueprint for a Bicycle-friendly Delaware, the Brandywine-Struble Greenway Plan, East Coast Greenway Plan, Connecting Communities Plan, and Mill Creek Neighbors for Safer Pathways.

1.2.2. Strategy: Ensure safe, comfortable non-motorized facilities, particularly key connections in the network, are included in development and redevelopment plans.

1.2.3. Strategy: Develop a countywide long-range Parks Master Plan that includes assessment of multi-modal and equitable access to parks and clean water recreational opportunities, as well as monitoring and tracking progress.

1.2.4. Strategy: Identify communities, especially in dense residential areas, that have inadequate access to open space and recreational opportunities and prioritize preservation and design of open space areas adjacent to these communities. The County should use the vacant property list to evaluate park expansions in Environmental Justice Communities.

1.2.5. Strategy: Ensure that existing parks and open space are sufficient to serve the population through updating equipment, maintaining existing infrastructure, and ensuring a safe and clean park experience for all.

See Also:

Mobility, Goal 8 & 11

Community Planning and Design, Goal 10

ELEMENT F

Mobility

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F. Mobility Element

Element Defined

The transportation system impacts the day-to-day life of residents in a variety of ways, from commuting to and from work to recreational opportunities. New Castle County residents, regardless of income, age, ability, or race, rightly expect safe and efficient access to a multimodal transportation system that supports existing forms of transportation including automotive, pedestrian, biking, and transit and is adaptable to accommodate future innovations, such as autonomous vehicles and renewable energy. The system should equitably and reliably connect residents to occupational, housing, shopping, healthcare, educational, and religious opportunities. Reducing single occupancy vehicle trips will help alleviate congestion while also reducing carbon emissions, resulting in an overall healthier New Castle County.

Transportation needs and demands are constantly changing. Transportation planning is looking forward and working to determine what transportation will look like decades from now. Funding priorities have been focused on roadway improvements, but projects related to other modes are gaining more attention. In recent years, e-commerce and the associated delivery needs have increased, putting more delivery vehicles on the roads and requiring more curb space for pickups and drop-offs. Related to e-commerce, warehousing has emerged as a new industry in our region, which will have implications on our transportation system and our land use policies. Additionally, technology in all aspects of transportation—from electric vehicles to smart traffic signals to automated and connected vehicles—will continue to change, and our transportation and land use policies will have to be adaptable to ensure we take advantage of the benefits of these technologies while being proactive to avoid negative impacts on New Castle County.

Transportation networks are complex, connected systems that require coordination among many governments, agencies, and organizations. While New Castle County is empowered to regulate land use, the Delaware Department of Transportation (DelDOT) regulates and maintains the transportation system. The federal government further charges the Wilmington Area Planning Council (WILMAPCO), the Metropolitan Planning Organization for New Castle County and Cecil County (MD), to coordinate transportation investments for the region based on federal policy, local input, technical analysis, and best practices. At various points within the planning and project development processes, the County, DelDOT, WILMAPCO and other regulatory agencies must be involved and collaborate. The planning documents and funding priorities at all levels must be coordinated to ensure that all stakeholders are working in the same direction to achieve the same goals.

What We Heard

New Castle County residents frequently mentioned transportation during the NCC2050 process, including comments such as:

“I’d like to see more sidewalks, bike paths/lanes, and walkable areas!” – Public Participant, NCC2050 Public Forum #1, 11/18/20

“There is a deep connection between density and transit. You can’t get transit without high density. Once you have density, it becomes financially practical for transit companies to provide services. If not, you have auto-dependent communities. This is the danger. If everything is low density, as we have mostly developed to date, transportation discussions are all about automobile traffic and congestion.” – James Wilson, Bike Delaware Executive Director, 3/17/21 Deep Dive Session on Infrastructure

“There are many benefits to mixed-use design. Walkability and bikeability are important, but there are also safety and congestion components. Shortening trips and keeping trips to the interior of the development helps with these aspects. Interconnections are good, so that you have choices for pedestrians and bikes. Sometimes people might want to use transit but don’t have a good path to get to the station, so these connections are good since eliminating barriers opens up options to more people.” – Marc Cote, fmr. DelDOT Director of Planning, 3/17/21 Deep Dive Session on Infrastructure

New Castle County Today

The following maps and graphics illustrate the current conditions of New Castle County’s transportation and mobility network. They lay the foundation for demonstrating why mobility matters, and the evaluation of these current conditions helped to shape the Goals, Objectives, and Strategies of NCC2050.

Existing Modal Analysis

According to 2019 American Community Survey data, nearly 90% of New Castle County residents traveled to work by car: 79.7% drove alone and 8.5% carpooled. Nearly four percent used transit and 2.5% walked to work. Bike and other modes of travel made up just over 1% of trips, and 4.5% of people worked from home. (See Figure F-1; Please note: percentages are rounded to the nearest percent.)

The COVID-19 Pandemic has had a dramatic impact on New Castle County resulting in an increase in the number of residents working from home and a corresponding decrease in the number of people commuting to work. While more people are expected to either permanently work from home or in a hybrid work from home/in-person arrangement, thereby reducing other “travel modes to work,” we will not know the true impact of the pandemic for several years.

Travel Mode to Work (2019)

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• ■ Drive Alone
• ■ Carpool
• ■ Public Transit
• ■ Walk
• ■ Other
• ■ Work from Home

Figure F-1: Travel Mode to Work; Source: 2019 American Community Survey

Roadways

Roadways connect homes, workplaces, stores, recreation sites, and more in New Castle County. Ensuring that the infrastructure not only meets today's needs but also future needs is critical. Today, New Castle County contains approximately 5,700 lane miles of roadway, with 90% of those miles owned by the Delaware Department of Transportation (DelDOT). Knowing that DelDOT is the owner of many of the transportation routes available to residents and visitors, New Castle County continues to maintain a close relationship with DelDOT.

In addition to roads, there are 875 bridges and 850 traffic signals in the County. Figure F-2 shows the percentage of each type of roadway by classification found in New Castle County. Interstates only make up 4% of the roadway network, but they represent almost 25% of vehicle miles traveled by people traveling within the County.

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Figure F-2: New Castle County Roads by Functional Class, Source: Delaware First Map

Map F-1 illustrates the functional classifications of roadways within the County. The functional classifications are the system for classifying roadways according to the character of service they are intended to provide. Higher class roads provide more mobility for through traffic (with little or no local access), while the lower-class roads provide less mobility and more access. On this map, the teal color shows Interstates I-95, I-295 and I-495. Dark red indicates Other Freeways, such as Route 1 and the 301 Bypass near Middletown. The brighter red is Other Principal Arterials like Kirkwood Highway, and Routes 4, 40, 13, and 202. Orange is for Local Roads, which is the most common type of road in the County, especially in older residentials areas north of the Route 40 corridor.

Existing average daily traffic (ADT) volumes are a good indicator of future need for roadway maintenance and capacity assessment. Map F-2 shows annual average daily traffic volumes on all roads in the County. Note that these are 2019 volumes, meaning they represent conditions before COVID-19. The highest-volume roads are shown in red, which—as expected—are the interstates along with Routes 1, 13, 202, and parts of Kirkwood Highway, Route 40, and a few other arterials. Generally, the highest volume roads are the ones that run between Newark and Wilmington, and there are not many high-volume roads south of the canal. Due to COVID-19, daily volumes did drop off in mid-2020 to about 40% of these levels but are now back up to about 90% of these levels, as of summer 2021.

Map F-1: Functional Classification

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Map F-2: Annual Average Daily Traffic Volumes (2020)

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ADT relates to roadway Level of Service (LOS). LOS is reported through a series of grades: “A” shows that existing roadways meet travel demand, while “F” represents roadways that are failing to meet traffic demand. Map F-3 highlights existing grades E and F, the lowest scoring “failing” roads, in correlation to land use categories, and indicates the most congested corridors and intersections. The LOS calculated for this map was generated from data gathered during the afternoon peak hour (or “rush hour”) and identifies corridors where peak period travel times are much higher than off-peak with red and orange lines, as well as the highest-volume intersections with red and orange dots. It also shows Congestion Management System (CMS) corridors, as identified by WILMAPCO, in green. Not surprisingly, most of the congested areas are in the north-central part of the county, primarily between Newark and Wilmington.

The map also shows the color-coded Transportation Investment Area (TIA) boundaries, which have been established by WILMAPCO to help guide where funds for transportation improvements should be spent. The greatest transportation investments should be primarily targeted to the “Center” and “Core” areas to maintain and expand existing systems. Rural areas with less development should see more limited project funding, and the other TIA types should receive varying levels of funding as needed. The TIAs were developed by reviewing and consolidating state and local land use plans into a single map. This also provides for more efficient coordination between land use and transportation investments. Poor coordination in the past has led to a “Cycle of Sprawl,” which threatens lasting economic growth, leads to social inequity and poor health outcomes, and endangers our environment.

While ADT and LOS are the most prevalent methods for measuring roadway use and performance, other methods and metrics such as Quality/Level Of Service (Q/LOS) compliments these measurements by providing a qualitative measure of the roadway users’ (drivers, passengers, etc.) perception of how the roadway performs. As the letter grade associated with auto LOS is technically a qualitative measure (typically thought of as A=good and F=bad), it is determined quantitatively by the relationship between auto demand and roadway capacity. The concept of Q/LOS has emerged in part to recognize that the desirability of discretionary travel by non-auto modes is much more sensitive to the qualitative experience than auto travel (assuming that a discretionary user has access to both a car and other modes of travel). Pedestrians and bicyclists are often described as vulnerable roadway users based on the physics involved in crashes between motorized and non-motorized roadway users. The perception of safety is a key component of quality of service for these modes; physically separating vulnerable users from motor vehicle traffic is a common element in Q/LOS considerations for walking and bicycling. Quality of LOS came into consideration during the creation and adoption of the Southern New Castle County Master Plan. Review of intersections using a variety of factors resulted in the creation of project recommendations beyond what was currently programmed. Additionally, DelDOT has developed modeling regarding Bicycle LOS (which was used to evaluate connectivity of open space in Element E) and is developing modeling for Pedestrian LOS. These both evaluate key components of Q/LOS and will be instrumental in promoting multimodal transportation opportunities and achieving other goals in this plan. Considering the quality of service, beyond the quantitative LOS evaluation method, will enable us to ensure sound transportation and mobility enhancements are being provided to the County in its entirety.

An emerging metric in considering the relationship between land use and transportation system effectiveness is Vehicle Miles Traveled (VMT). VMT considers both the number of auto trips and their length, and is commonly expressed either as:

• VMT generated, which is the amount of auto mileage generated by all the land uses in each area (regardless of where the VMT accrues), or
• VMT accrued, which is the amount of auto mileage accrued on roadways in each area (regardless of where the VMT is generated).

VMT is often expressed as a “per capita” measure, such as is the total annual miles of vehicle travel generated within a community divided by the population of that community.

According to the U.S. Department of Transportation and Federal Highway Administration, per-capita VMT generation levels are lower in communities that are more walkable, more compact, with robust multimodal transportation systems and denser levels of both residential and commercial activities. Likewise, compact, and mixed-use development patterns, in addition to reducing VMT, also result in higher fiscal impact and accessed land values.¹ These elements define the planning context of a community, and these contexts help evaluate policies and strategies related to public transit expansion, active transportation infrastructure, and changes in parking requirements. Looking at data from FHWA on daily VMT for the state of Delaware in December 2019 – January 2020 and again in December 2020 – January 2021 there was a 38% decrease in miles driven between the two years. This decrease of 38% of mileage per driver will have implications in the future and will shape transportation by 2050.²

Currently, VMT correlates well with estimates of fuel consumption, emissions, and crashes; all environmental variables that are secondary to the objective of travel but exert societal costs. Moving forward, an evaluation of DMV vehicle age distribution data, by model year and engine type can provide more fine grain information regarding vehicular emissions and safety resulting from technological advances (alternative fuels and safety advancements). Vehicular trips could be reduced through a variety of methods, including compact development allowing for a greater proportion of trips to be made by walking or bicycling, and shorter trip lengths for trips made by motor vehicle. The New Castle County Bicycle Plan created by WILMAPCO and endorsed on May 9, 2020, discusses many ways to decrease VMT through creating safe, accessible, and interconnected bicycle routes throughout the County. Results from this plan are discussed later in this section.

Transportation system approaches to reducing VMT are generally be grouped under the overarching term Transportation Demand Management (TDM). TDM describes a suite of policies, programs, and services designed to reduce reliance on single-occupant auto travel, particularly during peak commuting periods and are organized in three general categories

• Policies (e.g., financial incentives to live near your work, pricing for auto use via parking charges, tolls, or other fees/taxes)
• Projects (e.g., non-motorized facilities like sidewalks and bike paths, ensuring complete streets designs for new and reconstructed roadways, improving roadway safety through Vision Zero initiatives that focus on better quality of service for vulnerable users using non-motorized travel modes)
• Services (e.g., expanded transit services, access to information on transportation options, organized activities to promote ridesharing)

Map F-3: Travel Time Reliability, Intersection Volume, Key Congestion Corridors, and WILMAPCO Transportation Investment Areas

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Source: WILMAPCO

Roadways like Route 202 (Concord Pike), Route 40 (Pulaski Highway), and Route 13 (DuPont Highway) with low LOS grades have been identified as Key Congested Corridors by WILMAPCO. However, LOS grades should not be the only criteria used to evaluate roadways; safety is also an important concern. The pandemic has shown that when traffic volumes drop, driver speed increases, which has led to a national spike in bicycle and pedestrian fatalities during the pandemic.

Figure F-3 shows that the number of reportable crashes has increased within the county over the last 17 years. Map F-4 represents crash hotspots based on the reportable crashes on County roadways throughout the county. Armed with knowledge of the locations of roadway challenges, New Castle County must work with DelDOT to continue to enhance existing roadways and plan for strategic multimodal transportation choices in the future.

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Figure F-3 Total Crashes in New Castle County by Year

Map F-4: Crash Hotspots

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Source: WILMAPCO

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Transit, Ride Share, and Train Service

New Castle County is home 39 DART bus routes, 30 park-and-ride locations, and four SEPTA rail stations (with the Wilmington and Newark stations also served by Amtrak). Along the 39 DART bus routes are more than 1,700 bus stops, 98% of which are located north of the C & D Canal. University of Delaware Transit operates 5 bus routes that provide services throughout its campus in Newark. Additionally, the City of Newark provides the Unicity public bus service. While the Delaware Transit Corporation (DTC) is the primary transit provider in the State, New Castle County is also served by Amtrak and SEPTA. Figure F-4 shows the annual ridership numbers for Delaware Authority for Regional Transit (DART) fixed-route bus service¹ and paratransit service ² (a Demand Response Service³). Figure F-5 illustrates transit ridership by race, using means of transportation to work as a metric. It shows that, in New Castle County, a higher percentage of the Black/African American population uses transit to get to jobs than other races or ethnicities.

Figure F-4: Transit Ridership, 2000-2021

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Figure F-5: Means of Transportation to Work – Public Transportation Source: Source: U.S. Census Bureau, 2016-2020 American Community Survey 5-Year Estimates

Park-and-ride facilities provide a convenient way for travelers heading to the same destination to connect to transit options or meet and travel together thus reducing the number of single-occupancy vehicles on the roadways. Today in New Castle County, there are 39 park-and-ride facilities totaling 4,329 individual parking spaces available in 2019 (Map F-5). New Castle County also has six “Park and Pool” locations which are available to individuals meeting up for a ride share or carpooling option. Park and Pool lots do not link users to other transit options like a bus route, differentiating this type of lot from a Park-and-Ride lot. In 2019 there were 1,022 spots available within the County. This was a decrease in the number of spots by 39 spaces from 2018. Combining both Park-and-Ride and Park and Pool totals, there were 5,351 spots available for residents to ride share. This number represented an overall increase in spots available by 414 spots, despite the slight decrease in Park and Pool spots between 2018 and 2019.

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Map F-5: Transit and Park & Rides

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Source: WILMAPCO

Much of the transit infrastructure is found in the northern part of the county. Map F-5 depicts the locations of transportation alternatives for New Castle County residents and visitors. Delaware Authority for Regional Transit (DART) bus routes are indicated by the blue lines, and park-and-ride locations and passenger train stations are also shown. Adding transit opportunities to high-demand locations like town centers, employment hubs, and medical facilities will expand service to more communities in our County.

As these additional transit opportunities are developed, they present opportunities for associated Transit-Oriented Development (TOD). The Federal Transit Administration explains TOD as follows: “Transit-oriented development, or TOD, includes a mix of commercial, residential, office and entertainment centered around or located near a transit station. Dense, walkable, mixed-use development near transit attracts people and adds to vibrant, connected communities.” New and planned train stations, such as the prospective Newport Station, as well as existing transit stations, such as Churchman’s Crossing, are prime locations for this type of development to provide convenient access to both transit services and the housing, community resources and businesses nearby. When people live near transit, they are more likely to use transit, and when businesses and community facilities are near transit, people are more likely to patronize them when they get on and off transit.

Pedestrian and Bicycle Network

Currently, the county contains an extensive network of trails and pathways. However, many of the county’s trails are used primarily for recreation, as they are not well connected to transportation network making it not feasible to use for commuting. Map F-6 depicts the current trail network within the county.

Map F-6: Parks and Trails

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In addition to the parks and trails network, the larger non-motorized network, which includes sidewalks, crosswalks, and footpaths are located mostly in the northern part of the county, as shown on Map F-7. As expected, much of the network is clustered in areas with higher population. Additionally, the network is not always interconnected. Key aspects to address in the Comprehensive Plan include sidewalk connectivity and Americans with Disabilities Act (ADA) compliance. During the public outreach process, residents noted that sidewalks were built within developments, but they do not connect to amenities outside of developments, so residents can't safely walk to school, stores, work, or the nearest bus stop. This creates “islands” of disconnected walkways and disconnected communities. Establishing continuous sidewalks and pathways or encouraging affordable transit solutions from neighborhoods to outside destinations, along the corridors abutting these neighborhoods, and between the neighborhoods should help to reconnect these islands to resources and other communities. In addition, many older areas do not have ADA-compliant infrastructure so people with disabilities may be unable to safely reach their destination even if there is some form of sidewalk. Understanding the existing network will help inform connectivity decisions for the County’s future.

Map F-7: Non-Motorized Network

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Level of Traffic Stress (LTS) is a measurement used by DelDOT to better understand how comfortable streets are for bicyclists. The LTS level is determined by looking at elements of the existing roadway network including, roadway lane width, traffic speed, traffic volume, the availability of shoulders and/or separate cycling facilities, etc.

The system is defined in Table F-1. Map F-8 shows New Castle County roads as ranked within the LTS system.

Table F-1: Level of Traffic Stress Definitions

Source: DelDOT

Map F-8: Bicycle Level of Traffic Stress

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Source: WILMAPCO, DelDOT

In conjunction with LTS, Figure F-6 shows the number of reportable crashes in the county involving vehicles and bicyclists or pedestrians over a 15-year period, according to the Delaware State Police. The crashes have generally decreased since 2012, but as of 2018 there were still nearly 300. The 2020 New Castle County Bicycle Plan states that only 0.3% of commute trips are by bicycle and 2.8% of trips are walking. Both mode shares are growing, but still account for very small portions of trips. In order for the County to achieve zero traffic fatalities (a policy known as “Vision Zero”), more work remains to be done.

Map F-9 represents existing bicycle infrastructure, as well as future improvements and expansions of the County bicycle network, which was carefully developed and presented in the recently completed New Castle County Bicycle Plan (endorsed May 7, 2020). This plan was written with the goal of encouraging safe, accessible, and connected bicycle routes. New Castle County currently has 93 miles of bicycle lanes and 85 miles of multi-use pathways. Many of these routes are on high stress roadways or do not connect in a meaningful way to allow for mode of transportation choice. The plan recommended 323 miles of new, low-stress bicycle paths to better connect New Castle County through bicycle usage, a major goal of the document.

Crashes Involving Bicycles and Pedestrians

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Figure F-6: Crashes Involving Pedestrians. Source: Delaware State Police

Map F-9: New Castle County Bike Plan Recommendations

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Source: WILMAPCO

Transit Oriented Development

Transit Oriented Development (TOD) is an approach to planning with the focus on locating and developing compact walkable, pedestrian-oriented, mixed-use communities in conjunction with high quality public transit facilities. While the uses are important so too is careful consideration of the built form and its relationship with adjacent communities. TODs offer the potential to address important problems facing the county including traffic congestion, affordable housing, air pollution, and sprawl.¹ Successful Transit Oriented Development takes a variety of different forms having a diversity of uses complimentary to its context.

Urban Center Plaza

Portland State University’s Urban Center Plaza (See Figure F-7) incorporates an anchor institution, the university with Portland Streetcar stop, commercial uses and public art including 3 fountains, a clock tower, and sculptures near residential uses into the fabric of the city.² Areas in New Castle County including Newark and Churchmans Crossing, while not the scale of downtown Portland, are home to large and important institutions (University of Delaware and Christiana Care Hospital) in proximity to existing train stations, which could benefit from an appropriately scaled TOD.

Figure F-7: Urban Center Plaza

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Metro Centre at Owings Mills

The Metro Center at Owings Mills (formerly Owings Mills Town Center, see Figure F-8) is a Transit Oriented Development that establishes a town center at the Owings Mills station and providing a logical connection to the former Owings Mills Mall area (demolished and redeveloped 2017). The TOD includes entertainments venues, retail, restaurants, office space, more than 1,700 residential units, public space, and art as well as a satellite campus of the Community College of Baltimore County, and the Largest Branch of Baltimore County Public Library.¹ Locations such as North Claymont, with its new train station, and potentially downtown Newport (should a new train station be constructed) could benefit from including some of the elements at the Owings Mills TOD.

Figure F-8: Metro Center at Owings Mills

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New Castle County has many of the essential pieces of the puzzle required to have successful Transit Oriented Developments, however assembling these to form a complete picture will require a public planning process in partnership with DelDOT as well as amendments to the County and State Codes to both provide needed incentives, while also requiring affordable housing opportunities.

Complete Streets

Streets should be designed with the needs of pedestrians, cyclists, and public transit, in addition to cars. This approach to street design is known as complete streets. The U.S. Department of Transportation defines complete streets as “streets designed and operated to enable safe use and support mobility for all users. Those include people of all ages and abilities, regardless of whether they are travelling as drivers, pedestrians, bicyclists, or public transportation riders.”² There is no single approach to creating complete streets and should be informed by the context and needs of the surrounding of the area. While many roads in New Castle County may have sidewalks or bike lanes, the network is incomplete or designed in a way such that users may not feel safe using these facilities. Complete streets is an approach that better integrate these sometimes competing elements. Complete streets contain a variety of elements such as

sidewalks, dedicated bike lanes, and bus lanes. Complete streets may also be designed in a way to calm traffic, which is not only safer for pedestrians and cyclists, but safer for drivers as well. Elements such as landscaping and street trees can improve the streetscape design and buffering of traffic lanes from sidewalks. These elements are not only aesthetic, they can also incorporate stormwater management. Figure F-9 illustrates an example of a complete street design. The benefits of complete street also benefit the surrounding land uses. For example a commercial corridor where people feel safe to walk or bike can improve the local economy.

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Figure F-9: Example of a complete street. Source: New York State Department of Transportation

Freight Movement

Freight is an important part of New Castle County’s economy and transportation network. This includes the Port of Wilmington, where upwards of around 6.8 million tons of cargo is handled annually. The majority of this cargo is time-sensitive refrigerated food products and therefore departs the Port via truck. Multiple Amazon distribution centers are located in and near the county generate significant additional truck traffic, along interstates in the county each day.

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Figure F-10: Amazon Fulfillment Center in Middletown, DE

The rail freight system is also significant, with two major rail lines, CSX and Norfolk Southern notably serving the refinery and other industrial uses in the county. A significant amount of pass-through rail traffic occurs as well adding to the rail traffic that the County experiences. DelDOT’s Shellpot Bridge Rehabilitation reopened the freight train bypass of the Wilmington Station in return for payment of tolls by the railroad.

Integrating the freight industry while also maintaining livable communities within the county is an important piece of the Comprehensive Plan. New Castle County is working to promote and support emerging industries such as warehousing, logistics, and startups with the growing market demand to complement traditional industries and businesses. The County will coordinate with partners to focus investment in ways that support and attract business and achieve a diverse business ecosystem that benefits all aspects of our communities, including corridor reinvestment, streetscape enhancement, and technology infrastructure. (See Map F-10 and Economic and Community Development element for more details). From an economic standpoint, New Castle County has roughly 40% of its employment is comprised of “freight intensive” job sectors of Food Services, Trade Transportation and Utilities, Manufacturing, Construction & Mining and Natural Resources.

Modern supply chains rely on complex networks of warehouses and distribution centers (DCs) to support the efficient, fast, and affordable movement of freight. However, their operations and their corresponding traffic generation can also have negative impacts on adjacent land uses. As part of the planning process, added consideration for freight-related development will be explored. The Delaware Statewide Freight Plan is a comprehensive freight plan produced to provide updated, relevant information to assist DelDOT, WILMAPCO, and other local freight stakeholders to make informed decisions on freight investments and freight-related policies. The plan includes components from recently completed freight studies dealing with truck parking, first/final mile freight deliveries and better access of truck traffic in and around the Port of Wilmington. The Delaware Statewide Freight Plan is required by the federal government to be updated every four years and can be found at: https://deldot.gov/Business/freight/index.shtml.

Map F-10: National Freight Network

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Additional Mobility Considerations:

One goal of this Comprehensive Plan is to establish safe, efficient access to employment, retail services, parks, and other resources with modes outside of a personal vehicle. Listed below are some ongoing initiatives to provide additional mobility opportunities to county residents:

• Passenger rail projects are underway to extend more SEPTA trains from Wilmington to Newark. Projects included renovating the Biden Train Station in Wilmington, and adding a third track south of Wilmington to increase capacity. A new train station was built at Newark, and construction is underway to build a new center platform, and to expand track capacity. Also, a new station and parking garage will replace a smaller rail station at Claymont . WILMAPCO has studied potential additional SEPTA rail stations at Newport and Edgemoor. (The Newport station was found to be feasible, while the Edgemoor was not.) These efforts require significant investment and coordination among many agencies and stakeholders but are important in providing connectivity to residents and the resources they need.
• Electric vehicles and autonomous vehicles will become more prevalent in the coming years. These technologies will have significant impacts on travel habits and transportation infrastructure. The County will study and plan to understand how to best design for emerging transportation technology and leverage the benefits while minimizing potential negative effects.
• The New Castle County Airport has had on-and-off passenger service over the years, and the Comprehensive Plan supports increased passenger air service.

State and Regional Transportation Planning

State, regional, and local transportation plans serve as guides to help the County shape future land development around planned and future transportation investments. WILMAPCO's Regional Transportation Plan (RTP) serves as the County's transportation plan. Additionally, the County partners with DelDOT to evaluate transportation facilities and ensure a safe, efficient, and environmentally sound transportation network to move people and goods throughout the county. DelDOT prepares both a Long-Range Transportation Plan (LRTP) and a six-year Capital Transportation Program (CTP) to implement the long-range plan and is responsible for road construction in line with the LRTP and the CTP.

State-level Transportation Planning

The DelDOT LRTP envisions a statewide transportation network that reflects the ideas and strategies outlined in the adopted State Strategies for Policies and Spending. The purpose of Strategies for State Policies and Spending is to coordinate land use decision-making with the provision of infrastructure and services in a manner that makes the best use of natural and fiscal resources. It is DelDOT's intent to develop smart transportation systems, consistent with the State's smart growth strategies.

DelDOT's current LRTP was adopted in 2019 and looks out 20 years to outline ways that transportation should be used to enhance the economy, our communities, and the environment into the future. It evaluates several key challenges and opportunities affecting transportation decisions. These challenges are characteristic of both the State as well as New Castle County and include:

• Aging infrastructure requiring more maintenance
• Increasing population and Vehicle Miles Traveled (VMT)
• Decreasing public transit ridership
• Sprawling growth patterns resulting in longer commuting times to work and commercial centers
• Increasing aging population in need of costly specialized transportation services and facilities
• Changing economic conditions

• Impacts of extreme weather events and sea level rise
• Ensuring safe and efficient emergency evacuation routes
• Providing and maintaining safe and accessible routes for pedestrians and bicyclists
• Managing increasing traffic generated by special events and seasonal fluctuations
• Funding constraints

The LRTP planning process included the comparison of planning scenarios integrated with traditional travel demand modeling to help establish a framework for transportation policy development, objectives, and implementation strategies. DelDOT’s scenario planning for their LRTP considered projects outlined by Metropolitan Planning Organizations (MPO) from across Delaware, which provided additional highway and transit capacity and considered land use shifts to preserve natural landscape and reduce sprawl. Study analysis and scenario planning results suggested that DelDOT will not successfully meet transportation needs to improve mobility applying any one scenario; instead, transportation needs will be best met applying a combination of highway, transit, and land use shifts to yield some relief to congestion within the transportation network.

DelDOT’s transportation priorities as listed in the LRTP are focused in the areas included below. Many of the topics and priorities are shared among this plan and others referenced within it.

• LAND USE AND TRANSPORTATION PLANNING Collaborative planning between transportation and land use agencies is critical for sustainable patterns of development. DelDOT’s Transportation Improvement District (TID) mechanism focuses transportation investments in high priority growth areas identified as appropriate for development in local comprehensive plans.

• TRANSPORTATION CORRIDOR STRATEGIES DelDOT is developing a set of strategies to address the existing and future needs of transportation corridors throughout the state. These strategies will result in a comprehensive vision in the areas of safety, access, and multimodal mobility for each corridor. Plans developed through this new approach will prioritize investments and phasing of projects over time. The plans will support statewide economic growth objectives and will streamline project development and environmental review processes. Partnerships with local land use agencies and stakeholder input will be valuable components in this effort.

• CRITICAL FREIGHT NETWORK INVESTMENTS Delaware’s economic growth is dependent on a reliable freight network, which includes roads, railroads, ports, waterways, and airports. DelDOT will continue to support operational efficiencies, investments in designated growth areas and infrastructure improvements that promote freight-related business growth. Maintaining reliable roadway connections to freight facilities and mitigating hazard impacts, such as increased roadway flooding, are important parts of DelDOT’s asset management program.

• TECHNOLOGY INTEGRATION DelDOT is continually looking for new ways to support and integrate new technology to improve our transportation system. Freight trucking and transit are ideal modes for testing and expanding new systems, such as autonomous vehicle technology that should improve the efficiency of moving goods and people. In anticipation of this new technology, innovative travel forecasting methods and traffic management techniques are being developed.

• PUBLIC EDUCATION AND SAFETY CAMPAIGNS

To improve driver, bicyclist, and pedestrian understanding of safety, DelDOT will continue to provide comprehensive education and outreach programs at the statewide and local levels.

• ADVANCED STREETSCAPE DESIGN Ongoing changes in technology and DelDOT’s priorities in the areas of pedestrian and bicycle safety may change how we interact with our streetscape environment and may necessitate new roadway design guides. Connected Vehicle (CV) technology, for example, allows vehicles to communicate with other vehicles, connected devices and the world around them. This technology may require reallocation of space within the existing right-of-way to accommodate related infrastructure. The testing of new street designs, infrastructure elements, and programs in a Living Laboratory Research Program will enable DelDOT to balance advancing technology with the needs of all transportation modes.

• PEDESTRIAN NETWORK PLAN AND PRIORITY AREA PROGRAM Pedestrian safety improvements are a critical need in Delaware, and DelDOT is working towards a more comprehensive assessment of pedestrian routes, missing connections, barriers and priority connections. The goal of the Network Plan is to utilize existing and new facilities to improve network connectivity, enhance recreation, economic development and pedestrian safety. In support of Delaware’s Complete Communities Initiative, DelDOT is establishing a Priority Area Program that will designate targeted areas where pedestrian safety and accessibility improvements are prioritized. Targeted areas would include those with high pedestrian activity, high accident locations and low income/at-risk neighborhoods. Complete Community Enterprise Districts (CCEDs) are a planning tool designed to facilitate development that prioritizes multimodal, walkability while discouraging automobile dominate transportation systems.

• BICYCLE NETWORK OF STATEWIDE IMPORTANCE AND BICYCLE DESIGN GUIDE A comprehensive plan for bicycle transportation would designate major bicycling corridors and connections. This plan would identify preferred routes and prioritize improvements for a regional, well-connected and low-stress bicycle network. Designated routes are typically at a regional scale and span multiple jurisdictions, and they may include trails as well as on-street facilities. A return-on-investment analysis will help to gauge the effectiveness of bicycle network funding in the areas of bicycle ridership, economic development and other public benefits. A bicycle design guide will provide guidance and recommendations using best practices for integrating bicycle facilities into the road network. The guide will include recommendations for various facility types, lighting, wayfinding and maintenance of traffic flow during construction.

• IMPROVED TRANSIT SERVICE A multifaceted approach to improving transit service and access will include providing additional transit centers and routes/express service, expanded service areas and increasing use of dedicated transit lanes. Geolocation technology in transit vehicles will improve the reliability of arrival times and other information for our customers. Automation technology will increase the efficiency of boarding and fare collection processes.

• HOMELAND SECURITY Some cargo moving through Delaware originates from international sources, and our freight network has nationally important connections. Interagency coordination is important for managing border security, cargo screening and tracking, protecting assets and developing contingency plans. Partnerships are needed to anticipate, screen, monitor and track movement of hazardous materials, and to have contingency plans in place for addressing emergency situations.

• IMPROVED PUBLIC INPUT SYSTEM The public has a number of mechanisms to provide DelDOT input for project ideas, maintenance needs and general inquiries or requests. To improve our interaction with the public, DelDOT is exploring new outreach methods, including crowdsourcing technology and other communication techniques.

• HAZARD MITIGATION AND FLOOD RESILIENCY PREPARATION DelDOT has developed a Strategic Implementation Plan for Climate Change, Sustainability, and Resilience for Transportation to help prepare for emerging climate impacts and coordinate efforts across various state agencies. Further planning is needed to identify community-specific threats and a ranking program to identify which of DelDOT’s assets are most at-risk. These at-risk assets must either be upgraded to maintain transportation connectivity, relocated outside of flood prone areas, left in place with anticipated periodic closures and detours, or abandoned.

• CONNECTED DATABASE MANAGEMENT SYSTEMS DelDOT has a variety of systems to assess and manage the state’s transportation network. DelDOT is integrating many of the databases that support these systems in a connected manner that will increase efficiency in decision-making and project design. Continued investments in database technology will enhance our ability to leverage information for the benefit of our customers.

The DelDOT Capital Transportation Program (CTP) is the State Transportation Improvement Program (STIP). It is a project scheduling and funding document to guide activities and identify transportation priorities. The projects listed in the document are also listed in adopted transportation plans involving local and regional governments, other agencies and the public. They have been reviewed for consistency with state and local land use plans and policies and to ensure that they meet special program eligibility and prioritization criteria, and they include only projects which have committed funding available.

Regional Transportation Planning

The Wilmington Area Planning Council (WILMAPCO) is the Metropolitan Planning Organization (MPO) for Cecil County, Maryland and New Castle County, Delaware. WILMAPCO plans and coordinates transportation investments in the region. One representative from New Castle County government sits on WILMAPCO’s Council. The Council’s responsibility is to adopt transportation plans and studies, set policy, and approve transportation funding in our region. WILMAPCO oversees the planning processes that help to prioritize and allocate the available funding. The general process begins with a planning study, which includes potential projects and recommendations which should be incorporated into the four-year Transportation Improvement Plan (TIP) and 20-year Regional Transportation Plan (RTP). WILMAPCO also develops the Unified Planning Work Program (UPWP) which outlines the planning activities for the coming year. As noted in the WILMAPCO Planning Guide, “the RTP establishes regional transportation goals. Studies and initiatives at the regional and sub-regional level are pursued through the UPWP. Recommendations from these studies can then be included as part of the TIP for funding.”

WILMAPCO’s recently adopted 2050 Regional Transportation Plan (RTP) identifies the long-term transportation needs in the region and outlines the projects and activities needed to address those needs. It contains a wide array of demographic and transportation data to describe both current and projected conditions. The plan identifies regional challenges, goals and transportation investments to meet mobility, accessibility and safety needs. The Key Challenges outlined in the 2050 RTP include continuing urban sprawl, high vehicle crash rates, and social inequities. The RTP goals are:

• Support sustainable economic development and goods movement
• Efficiently transport people

• Improve quality of life

Transportation Investment Areas

Transportation Investment Areas (TIAs) are used to track progress of the RTP and were developed by reviewing adopted state, county, and local land use plans. These areas are used to help make the decisions on where to focus transportation dollars, and which investments are appropriate for specific areas, in recognition of transportation’s close relationship with land use and development. Map F-11 shows the TIAs within New Castle County. The geographic boundaries of the TIAs are subject to change based upon this plan update. There are five types of TIAs. Descriptions of each and the associated transportation objectives are listed below:

• Center: High existing and planned concentrations of people and jobs with opportunities for significant re-development.

  • Transportation Objectives: Intensive transportation investment with an emphasis on public transportation (including rail and the most frequent bus service) and walking and bicycling improvements. New highway interchanges should be discouraged. High frequency bus service is appropriate.

• Core: Established places with a mixture of people and jobs, often along and nearby suburban highways.

  • Transportation Objectives: Maintain and manage the existing infrastructure while allowing for system expansion for all modes of transportation, except train stations and the addition of public transit centers. Moderate frequency bus service is appropriate here.

• Developing: Quickly developing places with unsettled land use and transportation patterns.

  • Transportation Objectives: Maintain and manage the existing and emerging infrastructure. Some system expansion will be necessary, but major capacity road expansions and interchanges should be discouraged. Infrequent bus service is appropriate.

• Community: Established places home to mostly single-family residential communities.

  • Transportation Objectives: Maintain and manage the existing infrastructure while allowing for some periodic system expansions. Infrequent bus service is appropriate.

• Rural: Agricultural and natural areas where urban development is not expected.

  • Transportation Objectives: preserve the existing infrastructure with an aim of protecting existing agriculture and natural resources. All system expansions apart from bicycling and walking paths should be actively discouraged. No fixed-route bus service is appropriate. Scenic byway easement purchases should be pursued where applicable.

Map F-101: Transportation Investment Areas

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Source: WILMAPCO

Other Transportation Planning Initiatives:

Since the adoption of the 2012 Comprehensive Plan, WILMAPCO has completed several transportation plans related to New Castle County, including:

• Ardentown Paths Plan (November 2017)
• Concord Pike Master Plan (November 2020)
• Governor Printz Corridor Study (January 2021)
• Churchmans Crossing Land Use and Transportation Plan (January 2022)
• Newport Train Station Feasibility Study (July 2013)
• Newport Transportation Plan (January 2021)
• Marshallton (March 2014)
• Route 40 (September 2014)
• Red Clay Valley Scenic Byway Design Standards Overlay (Nov 2016)
• Route 9 Corridor Master Plan (May 2017)
• Route 9 Paths Plan (September 2021)
• Southern New Castle County Master Plan (September 2020)
• SR 141 Transportation and Landuse Plan (Aug 2017)
• Glasgow Avenue Planning Study (Sept 2017)
• New Castle County Bicycle Plan (May 2020)

These plans, as well as others completed by WILMAPCO, provide specific information and guidance, to improve and enhance these areas to achieve local goals and objectives.

2019 Transportation Justice Plan: A Title VI, Environmental Justice, Americans with Disability Act, and Language Assistance Plan for the WILMAPCO Region

In the 2019 Transportation Justice Plan, WILMAPCO and the University of Delaware analyzed the WILMAPCO region for transportation connectivity. It considered how various areas and populations, like racial and ethnic minorities, low-income residents, disabilities and seniors, are served by transportation facilities and services.

The plan identified key destinations that are important for populations identified above to reach, like medical centers, grocery stores, libraries, etc. The plan demonstrated that in the WILMAPCO region homes are disproportionately automobile dependent. Figure F-11 shows that 95% of homes are connected to the key destinations by car while bike connectivity (23%) from homes to key destinations outpaced average

transit connectivity (19%) and walking connectivity (7%). While car travel has provided an unprecedented level of independent travel for most families, people without cars often experience isolation. They are unable to travel to work, run errands, or visit friends in a reasonable walking, bicycling, or bus trip.

Average Percentage of Households Connected to Destinations (Combined), by Mode WILMAPCO Region

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Figure F-11: Average Percentage of Households Connected to Destinations (Combined), by Mode Source: WILMAPCO Transportation Justice Plan

The 2019 Transportation Justice Plan also analyzed the placement of suburban age-restricted communities and their connectivity to bus and pedestrian infrastructure. Age-restricted communities are developments where all or most residents must be over 55 years. In the WILMAPCO region, suburban existing and planned age-restricted communities are poorly linked to public transit. In New Castle County, only 17% of communities had a good connection to a good frequency bus route. These places are found along major highways linking Wilmington to the Greater Newark area. In the report, “Good frequency” is defined as a route that is operating every half-hour or better around mid-day. Only 9% of suburban age-restricted communities had solid sidewalk connections to surrounding destinations.

Underserved areas and populations must be better served by access to frequent, reliable, convenient, and affordable public transit and well-connected pedestrian infrastructure in the future, which is something the Comprehensive Plan strives to achieve through better planning strategies, including improved connected pedestrian/bicycle infrastructure; targeting public and private investment to improve multi-modal accessibility; and requirements of interconnection of streets within developments with existing streets and transportation networks.

Sea-level Rise Vulnerability Assessment

In 2011, WILMAPCO produced a Sea-level Rise Vulnerability Assessment to identify at-risk transportation infrastructure in the region using locally developed inundation scenarios. It advanced larger sea-level rise (SLR) adaptation planning efforts already underway in the region and addressed a key aspect of climate change.

According to the report, geologic differences between the Chesapeake Bay and the Delaware River result in greater SLR impacts in New Castle County. Some 12% of land there may be exposed to inundation at a 1.5-meter rise; a shade over 1% of Cecil County’s land would be tested in the same circumstance.

These SLR challenges include major population centers, home to crucial infrastructure, such as the region’s principal city, Wilmington, as well as the City of New Castle. More than 1,600 residential and commercial properties risk inundation at a 1.5 meter rise regionally. The report also found that neighborhoods with above average concentrations of Black/African American and low-income residents were more likely to face inundation.

SLR presents challenges to key facets of our transportation network. Segments of highways, such as Route 9 and US 13 along the Delaware River, risk increased flooding or complete inundation.

Segments of near-river railways such as the New Castle County Secondary and Norfolk Southern’s Port Road Branch could be at risk. Wilmington’s train station risks inundation with a one-meter rise. Structures at the Port of Wilmington may be inundated with a rise of as little as 0.5 meters. Additionally, at the time of the report, 60 funded and unfunded regional transportation projects at-risk of inundation were flagged in the report, along with impacted fixed-route bus routes, evacuation routes, bridges and marinas.

A “Critical Roadway Impact Index” was developed to help identify the most crucial of the key roadway segments challenged by SLR. The index considers a road segment’s inundation level, traffic characteristics and the local demographics to begin to understand the segment’s comparative importance within the regional system. Inundated stretches of US 40 in Elkton and Walnut Street in Wilmington received the highest scores.

Top Priority Pedestrian Segments

WILMAPCO developed a Top Priority Pedestrian Segments study in January 2021 to identify a process to more efficiently allocate non-motorized funding. It identifies 20 top regional pedestrian corridors and the main walkability concerns in those locations. As suburban areas developed and sprawl increased in the region, transportation became and remains most influenced by land development and highway interests, instead of interests in public transit or pedestrian/bicycle infrastructure.

Pedestrian Priority Areas helped to focus future pedestrian facility studies and investments and were defined as those areas within a municipality, one-mile of a school and one-quarter mile of a bus stop.

The study evaluated the region’s 33,000 individual roadway segments on an index. To determine the segment’s ability to generate pedestrian activity and its need for pedestrian safety enhancements, the index considered measures such as surrounding population and employment density, the pedestrian crash rate, and proximity to shops, libraries and community centers. The resulting Prioritized Pedestrian Network (PPN) was then further updated by reviewing more closely at the 20 highest-scoring corridors, on which walkability assessments were conducted to identify poor infrastructure and broken pedestrian connections.

The highest-scoring segments are generally found in communities along the I-95/US 40 belt in the north of the region. Wilmington has the heaviest concentration of high-scoring segments, especially the Central Business District and adjoining neighborhoods. Stretches of highway (namely SR 2, SR 4, US 40 and US

13. and nearby communities and towns (Elsmere and Newport) also scored high in the index in New Castle County, as do downtown Newark, New Castle and Middletown.

Sub-area Plans and Corridor Studies

New Castle County Department of Land Use partners with other agencies, organizations, and non-profits to identify corridors or designated areas on which to develop sub-area or corridor plans for reaching shared objectives. These sub-area studies support planning at a more local scale where specific community ideas and concerns should be more fully vetted, which is important in a County as large and diverse as New Castle County. The identified areas are good opportunities to localize planning and focus investments so that improvements and enhancements meet local and regional needs.

In recent years, these studies and plans have included park surveys and plans; corridor studies and master plans; a county-wide bicycle plan, and flood and stormwater studies. Current and recently completed plans are listed below. Additional information about these additional planning efforts are found in the Community Planning and Design element.

• Churchman’s Crossing
• Eden Park and Hamilton Park Community Survey
• Glasgow Avenue
• North Claymont Area Master Plan
• Route 9 Corridor Master Plan
• Southern New Castle County Master Plan
• US 202 Corridor Master Plan
• Port Penn Flood Study
• Route 141 Study

Looking forward

New Castle County residents, regardless of income, age, ability, or race, should have safe and efficient access to a multimodal transportation system, and it is important that the system is adaptable to accommodate future innovations. Transportation needs and demands are constantly changing, and we must be always looking forward and working to determine what transportation will look like decades from now. Transportation and land use must be coordinated to create livable, vibrant places and ensure that all New Castle County residents have safe access to employment, community services, retail, and other daily needs. Our strategies will seek to reduce traffic-related fatalities, encourage development and improvement of transit, bicycle and pedestrian networks to improve access to resources and encourage physical activities, preserve existing transportation networks and prepare for emerging transportation technologies to ensure that they have positive impacts on our communities. Achieving this will require important changes in land use regulations and policies as well as having strong partnerships and coordination with DelDOT and WILMAPCO. As a voting member of WILMAPCO Council, and an active partner in transportation and land use plans such as the Sub-area Plans and Corridor Studies, it is imperative that we champion efforts such as Complete Streets¹ when crafting these studies and in

subsequent land use policies and regulations. This will ensure that we better coordinate land use and our transportation system thus accommodating for present and future challenges and best serving our communities.

Related Goals, Objectives, and Strategies:

8. Goal: All New Castle County residents will have safe, efficient access to employment, retail services, parks, and other daily needs including by walking, bicycling, public transit, and emerging modes. The transportation and land use systems are integrated and support each other to create livable places and a vibrant county.

   8.1. Objective: Establish a Vision Zero policy and coordinate with DelDOT and WILMAPCO toward reaching zero traffic fatalities by 2050.

    8.1.1. Strategy: Support DelDOT & WILMAPCO’s efforts to address crash hot spots (including pedestrians, bicyclists, and motorcyclists) through safety improvements, such as traffic calming features and roundabouts
   
    8.1.2. Strategy: Encourage DelDOT to utilize Intelligent Transportation System (ITS) infrastructure/services and associated technology to improve traffic operations, transit services, and safety
   

   8.2. Objective: Enhance and increase accessibility by all modes to/between local and regional destinations, including diverse housing, jobs, and goods/services.

    8.2.1. Strategy: Implement the County's Bike Master Plan to Increase the miles of safe, convenient, connected pedestrian/bicycle transportation network; monitor and update the plan at 5 years.
   
    8.2.2. Strategy: Create pedestrian- and bicycle-friendly streetscapes.
   
    8.2.3. Strategy: Adopt best-suited metrics of accessibility with regulations and policies (VMT per capita, trip-based delay, etc.)
   
    8.2.4. Strategy: Prioritize target areas and facilitate public and private investment to improve multi-modal accessibility (community area master plans, CCEDs, TIDs, around transit stations)
   
    8.2.5. Strategy: Require interconnection of streets within developments and existing streets and transportation networks
   
    8.2.6. Strategy: Incentivize mixed-use and transit oriented/supportive development areas that balance mix of jobs, housing, and other uses that support access to daily needs. (See Economic Development and Housing elements)
   

and local levels and are frequently supported by roadway design guidelines.” Additional information can be found at: https://www.transportation.gov/mission/health/complete-streets

8.2.7. Strategy: Reevaluate standards and threshold requirements linking transit provision and development

8.2.8. Strategy: When reviewing age-restricted developments, work with DelDOT and DTC to evaluate paratransit needs and opportunities for fixed route connectivity rather than exclusively expanding paratransit.

9. Goal: Transportation of people and goods is efficient and fair. The transportation system and land use/development are coordinated; development occurs in areas with ample existing or planned transportation infrastructure (and other infrastructure) and decisions are fiscally sound and fair for present and future generations.

9.1. Objective: Preserve existing roads and transportation infrastructure, while limiting widening and creation of new multi-lane roadways. Make the best use of our past investments and their capacity through innovation and collaboration.

9.1.1. Strategy: Prioritize multimodal transportation connection opportunities when reviewing rezoning applications for residential transition zones (ST) and regional non-residential districts (CR, OR, BP, I, and HI).

9.1.2. Strategy: Work with DelDOT to mitigate the impacts of e-commerce expansion and related demands on the road network, final-mile network, and around new distribution facilities, and where possible prevent/eliminate heavy truck travel through existing residential communities.

9.1.3. Strategy: Foster an understanding that infrastructure costs not only to build or install, but there is also an obligation and expense to maintain.

9.1.4. Strategy: Work with DelDOT and WILMAPCO to account for final mile networks in plan reviews by integrating the checklist developed in the Statewide First/Final Mile Network Study to help land use agencies in accounting for final mile freight provisions.

9.1.5. Strategy: Prioritize freight connectivity for areas/industries in Freight Intensive Sectors (FIS) (40% of all employment in Delaware) that are highly dependent on goods movement for marketplace competitiveness.

9.1.6. Strategy: Support the implementation of the WILMAPCO 2021 Delaware Statewide Truck Parking Study.

9.1.7. Strategy: Work with WILMAPCO and DelDOT to plan for connected and automated vehicle (CAV) technology, including infrastructure development to facilitate Level 4 autonomy (i.e., trucks operating without a human driver under limited conditions)

9.2. Objective: Plan for emerging transportation modes and technologies (e.g. renewable energy-based, autonomous, e-bikes/scooters, etc.) to leverage benefits and minimize potential negative externalities; embrace technology designed to address existing infrastructure issues, benefit the environment, and improve how people experience travel.

9.2.1. Strategy: Support transition to electric and other renewable and efficient vehicles

9.2.2. Strategy: Require/incentivize accommodations for electric vehicles

9.2.3. Strategy: Partner with DelDOT, DTC, and others in the public and private sector to foster opportunities for applying emerging technologies in transportation/accessibility. (For example: a collaboration between a car-sharing non-profit, local government, and energy company are launching a fleet of 150 shared electric vehicles (EVs) and install 70 EV charging stations in Minnesota.)

9.2.4. Strategy: Conduct study to understand how to best design and regulate for new retail and distribution

9.2.5. Strategy: Conduct study to understand how to best design and regulate for Connected and Automated Vehicles (CAVs) and other emerging transportation technology

9.3. Objective: “Right-size” traffic/congestion and reduce its associated pollution burdens (both local and macroclimate).

9.3.1. Strategy: work with transportation-focused agencies to evaluate and adopt traffic metrics that sustain mobility and support reductions in congestion related emissions, such as Vehicle Miles Traveled (VMT).

11. Goal: The built environment and streetscapes promote physical activity and healthy lifestyles including options for walking and biking. All residents have safe access to physically active and healthy lifestyles.

11.1. Objective: Increase the percentage of people who walk, bike, and take transit to work (from 6% in 2018).

11.1.1. Strategy: Increase trees and landscaping to promote safer, more comfortable spaces (See Conservation element)

11.1.2. Strategy: Increase use of varied, pedestrian-scaled building form and frontage, with streetscapes that are physically and visually connected, providing a safe, low-stress experience

11.1.3. Strategy: Connect the low-stress bike and walking network

11.2. Objective: Increase access to healthy food retailers, medical care, and other daily needs.

11.2.1. Strategy: Establish incentives and flexibility in regulations to encourage these types of development

11.2.2. Strategy: Work with transportation partners to support improved accessibility

11.2.3. Strategy: Seek and support other emerging solutions for affordable provision of daily needs

11.2.4. Strategy: Direct funds for affordable housing to connected, accessible, and walkable locations close to transit, schools, daycare, jobs, shops, and services

See Also: Economic and Community Development Element, Goal 5 Community Planning and Design, Goal 10 Climate Change and Hazard Mitigation Element, Goal 14

ELEMENT G

Utilities, Water & Sewer

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G. Utilities, Water, and Sewer Element

Element Defined

Safe, adequate, and sustainable water and sewer infrastructure is critical to guiding New Castle County’s planned growth and development, as well as supporting its residents, businesses, and natural environment. This chapter summarizes how water and sewer utilities are provided in New Castle County in 2020, challenges and opportunities currently faced or anticipated in the future, and projections of future supply and demand. At the end of the chapter are goals, objectives, and strategies for how the County and its partners should best provide these vital services for a sustainable future.

Access to safe, clean, affordable drinking water is critical to quality of life in New Castle County. Our drinking water comes from watersheds, which are areas of land that drain all the streams and rainfall to a single point, such as the outflow of a reservoir, mouth of a bay, or any point along a stream channel. Watersheds consists of surface water, like lakes, streams, reservoirs, and wetlands, and all the underlying groundwater. The New Castle County Unified Development Code defines groundwater as the portion of subsurface water that occurs beneath the water table in soils and geologic formations that are fully saturated. To provide drinking water, groundwater is drawn up from aquifers by public and private wells.

A healthy watershed provides clean drinking water, irrigation and healthy soil for crop production, protection from flooding, and adequate wildlife habitat in addition to providing enjoyment and outdoor recreation opportunities. Unfortunately various forms of pollution, including runoff and erosion, interferes with the health of the watershed. According to the Delaware Water Resouce Center, the major causes of Delaware’s surface water quality problems are pathogenic bacteria, nutrient over-enrichment, toxic compounds, and the physical degradation of stream habitats. Delaware’s ground waters have also been impacted by nutrients from fertilizers, animal manure, and septic systems; by leakage of contaminants such as petroleum from underground storage tanks; and by salt water intrusion. Protection of the natural resources in our watershed is essential to maintain the health and well being of all living things, both now and in the future.

What We Heard

During the NCC2050 public involvement process, residents expressed that access to safe, clean, affordable drinking water and wastewater services is important as is maintaining and repairing aging water and sewer infrastructure. Additionally, water pollution, failing retention basins, and flooding were cited as important issues. Green infrastructure and riparian buffers were suggested strategies to address these issues.

"Water resources are also important for recreation and biodiversity in addition to drinking water and flooding." –Let's Talk Workshop: Places and Spaces (November 9, 2020) participant

New Castle County Today

Water Supply

According to the Delaware Department of Natural Resources and Environmental Control (DNREC), in New Castle County, 75% of the drinking water is obtained from surface water sources (rivers, creeks, and streams) and 25% from groundwater, sourced from aquifers supplied by rainfall. The Delaware River Basin and a sub-basin, the Christina River Basin, are the primary sources of all drinking water for New Castle County. This watershed is shared with parts of Pennsylvania and Maryland. New Castle County is downstream of these areas and any impacts to those regions will affect our county.

The Delaware River is the longest un-dammed river in the United States east of the Mississippi, extending 330 miles from the confluence of its East and West branches at Hancock, New York to the mouth of the Delaware Bay where it meets the Atlantic Ocean. The Delaware River Basin provides drinking water to New York, New Jersey, Pennsylvania, and Delaware. Figure G-1 displays the Delaware River Basin.

The Christina River Basin provides 75% of the drinking for northern New Castle County. The Christina River Basin is a watershed that drains portions of Pennsylvania, Delaware, and Maryland, and includes the Christina River, Brandywine Creek, White Clay Creek, and Red Clay Creek.¹ Figure G-2 displays the Christina Basin and its sub-watersheds.

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Figure G-1: Delaware River Basin; Source:

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Figure G-2: Christina River Basin; Source: University of Delaware Water Resource Center

In general, water use in New Castle County is fairly consistent; however, southern New Castle County (south of the Chesapeake & Delaware Canal) uses significantly more water for agricultural irrigation while the northern portions of the county tend to have more commercial and industrial users.

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Northern New Castle County

North of the Chesapeake and Delaware (C&D) Canal, 80% of water users receive their drinking water from one of the eight water providers (five are public and three are private). These water providers are responsible for collecting, treating, and distributing water, according to state and federal rules and regulations.¹ Public and private wells provide drinking water to the remaining residents. Map G-1 displays New Castle County’s water supply areas.

Northern New Castle County Water Providers

Public:

• City of Newark
• City of Wilmington
• Town of Middletown
• Delaware City
• City of New Castle Municipal Services Commission (NCC Water and Light Co.)

Private:

• Artesian Water Company
• Veolia (Formally SUEZ Delaware)
• Tidewater Utilities

Map G-1: Water Supply Areas

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Water Demand

According to Water Supply and Demand Projections in Northern New Castle County through 2050 from the University of Delaware Water Resources Center (DWRC), 2020 water demand as recorded by the water providers in northern New Castle County was below normal and ranged between 49 and 66 million gallons per day (mgd). Looking forward to 2021, base demands are selected as the maximum monthly water demand recorded for each provider for the five-year period from 2016 through 2020. Water demands (Table G-1) are projected from 60.8 mgd recorded in 2020 to 65.0 mgd in 2021, 66.3 mgd in 2025, 68.0 mgd in 2030 and 75.1 mgd by 2050. Projected 2024 demands based on 0.5% annual population growth for New Castle County as reported by the Delaware Population Consortium in October 2020.

Table G-1: Maximum Monthly Water Demand in Northern New Castle County

Source: Water Supply and Demand Projections in Northern New Castle County through 2050

Data from 2001-2016 shows that per capita water demand in northern New Castle County has declined from a high of 165 gallons per capita per day (gpcd) in 2001 to 125 gpcd by 2015 and is projected to decline and level off to near 120 gpcd by 2030. The decline in per capita water demand is thought to be based on a variety of factors including growing water conservation by consumers, conservation water rates, rehabilitation of leaking water mains, and maturation of neighborhoods that require less lawn watering. Since per capita water demand is declining and population is projected to level off and slightly decline, the projected water demands in northern New Castle County through 2050 are conservative.

Southern New Castle County

Groundwater drawn from aquifers is the sole source of drinking water in Southern New Castle County. South of the C&D Canal, where there are approximately fourteen major aquifers, all of the water is drawn from public and private wells. According to the Water Supply and Demand in Southern New Castle County through 2050 report, there are over 4,600 individual wells in southern New Castle County, with the majority located in the areas north of Middletown, Odessa, and Townsend. Other wells include community wells, such as the Mount Pleasant Trailer Park and Cantwell Water Company, and non-community wells to serve area businesses, farms, golf courses, and nurseries.

Public Community Wells

• Artesian Water Company (26 wells)
• Artesian Water Company, Delaware Correctional Center (4 wells)
• Tidewater Utilities (24 wells)
• Town of Middletown (4 wells)
• Mount Pleasant Trailer Park (2 wells)
• Cantwell Water Company (2 wells)

Self-Supplied Non-Community Wells (20 wells)

• Transient: Restaurants, stores, hotels, parks
• Non-Transient: Schools, daycare centers, office, factories

Irrigation Water Supplies

• Farms (26 wells)
• Golf courses, nurseries (1 well)

Water Demand

The anticipated demand for individual wells is low due to the trend of development towards larger subdivisions (greater than 25 units), which are required by the Unified Development Code (UDC) to be served by public water. The number of individual wells is anticipated to only increase by 0.5 percent through 2050. The anticipated increase in demand for public water corresponds with the projected increase in population over time. The increase in demand for public water is anticipated to peak in 2020 and decrease into 2050. Based on the population projections, there is adequate groundwater available to service the increase in population and associated households. Table G-2 projects public water demands through 2050 assuming increases in demands coincide with population growth.

Table G-2: Public Water Demand in Southern New Castle County

Source: Water Supply and Demand in Southern New Castle County through 2050

The Water Supply and Demand in Southern New Castle County in 2050 report from (DWRC) shows that water demand for farm irrigation is projected to continue to rise slightly in southern New Castle County. From 2012 to 2017, the number of farms has declined from 374 to 361 and farmland has increased slightly from 64,169 to 67,455 acres in southern New Castle County while irrigated farmland has increased by 510 acres. Since farm irrigation draws mostly from shallow aquifers and public water supplies pump from deeper aquifers, conflicts between the users should be minimized.

Table G-3 compares water supply and demand for public water providers for 2010 and 2050 population conditions. In 2010, public water suppliers had existing supplies (15.7 mgd) that exceeded peak daily demands (8.2 mgd) thus accounting for a healthy surplus (+7.5 mgd). By 2050, the public water providers are projected to have supplies (15.7 mgd) that exceed the forecasted peak daily demand (13.6 mgd) for a surplus of 2.1 mgd. Surplus/deficit calculations are based upon peak daily supplies in accordance with current DNREC water allocation permits.

Table G-3: Water Supply and Demand in Southern New Castle County (2020-2050)

Source: Water Supply and Demand in Southern New Castle County through 2050

Water Supply and Demand in Southern New Castle County through 2050 also found that there will be sufficient groundwater availability to meet peak demands from public water supply uses based on population growth estimates provided that:

• Public water supply and irrigation wells are pumped in accordance with DNREC water allocation limits. DNREC should continue to monitor demands and water levels from allocated public water supply and irrigation wells so as not to diminish the capacity of irrigation wells for producers that wish to sustain farming in southern New Castle County.
• Water providers interconnect between and within systems, add new finished water storage and aquifer storage and recovery, and transport water from aquifers with excess availability south of Townsend to growth areas between Middletown/Odessa and the Chesapeake & Delaware Canal

The DWRC also recommends, to protect the quantity and quality of aquifers that provide sole source drinking water, subdivisions should be served by public water systems rather than by individual wells. As a result, the New Castle County Unified Development Code (UDC)¹ requires that new subdivisions with more than 25 lots be served by public water systems. For purposes of water quantity, quality and security, New Castle County should work with the water purveyors/utilities, and public service commission to look for opportunities for interconnectedness of the system as a whole and to connect to public water supply as part of a strategy to prevent water supply disruptions in those communities of 25+ units that were developed on private well systems prior to the code requirement being added.

Climate Change and Saltwater Intrusion in Southern New Castle County

Water Supply and Demand in Southern New Castle County through 2050 outlined possible impacts of climate change on water in southern New Castle County. A comparison of air temperature data and water demand data in New Castle County showed that water demand increases by 3% for every 1% increase in maximum air temperature. If summer maximum air temperatures are projected to increase by 3°F by 2020-2039 (or 3.3%), then peak water demand may increase 9.9% to 10.1 mgd by 2020-2039 due to warming. By 2050, projected water demands in southern New Castle County will increase 52% due to population growth and 59% if climate change is accounted for.

As sea levels rise as a result of climate change, salt water will make its way further inland and into the underground aquifers that supply water for drinking and agricultural uses. This is called saltwater

intrusion, or the process of saltwater moving underground into areas of freshwater in an aquifer where water is present, as defined by DNREC. Shallow coastal groundwater aquifers and drinking water sources could be penetrated by salt water and become saline. DNREC has conducted regular monitoring of saltwater intrusion for multiple decades. Data has not indicated any reason for concern. With changes that climate change will bring, a review of adequacy of monitoring program should be considered. More information about intrusion is found in the Climate Change & Resiliency element.

Source Water Protection

Source water, including rivers, streams, lakes, reservoirs, springs, and groundwater, provide water to public drinking water supplies and private wells. These areas also include wellhead areas, excellent ground-water recharge potential areas, and surface water supply areas within watersheds. Source water protection is the wise use of land around drinking water sources to reduce risks associated with exposure to contaminated water.

The Source Water Assessment and Protection Program (SWAPP), created as part of the Safe Drinking Water Act Amendments of 1996, has the expressed goal of achieving better protected public drinking water resources by providing local and state governments and the public more information about those resources. DNREC has the lead role in the development and implementation of the Delaware SWAPP. The Delaware Division of Public Health and the Water Resources Agency, Institute for Public Administration at the University of Delaware, closely supports its work.

The State of Delaware Source Water Protection Law of 2001 (7 Del. C. 6081, 6082, 6083) requires local governments with year-round populations of 2,000 or greater to implement measures to protect the quality and quantity of public water supplies within delineated surface water, wellhead, and ground-water recharge areas by 2007. Since 1987, the University of Delaware has administered the Water Resource Protection Area Program for New Castle County. The purpose of the WRPA protection standards in the New Castle County Unified Development Code is to protect the quality and quantity of surface water and groundwater supplies. Under the Unified Development Code, all development within recharge, wellhead, Cockeysville formation, and reservoir water resource protection areas are not permitted to exceed 20% of impervious cover or disturb more than 50%. Applications that propose exceeding either of these thresholds must provide an Environmental Impact Analysis (EIA) and may be subject to Resource Protection Areas Technical Advisory Committee (RPATAC) and Board of Adjustment (BOA) for recommendation and approval which would include conditions to recharge and monitor. Presently, over 20% of New Castle County land area is protected by the WRPA provision of the Unified Development Code.

Map G-2 shows the Water Resource Protection Areas within New Castle County, including wellhead protection areas and recharge areas. A wellhead protection area is the surface and subsurface area surrounding a public water supply well through which contaminants could reach the well. Groundwater recharge areas are defined as areas with very permeable soils where recharge occurs quickly.

Water Quality

Delaware has established pollution reduction targets for watersheds that do not meet water quality standards set to protect waterways for drinking, fishing, swimming, boating, or to support aquatic life. These targets, or Total Maximum Daily Loads (TMDLs), have also been established for the Chesapeake Bay and its tributaries through the Chesapeake Bay Program under the United States Environmental Protection Agency (EPA), in cooperation with member states and for tributaries of the Delaware Estuary. All major watersheds within southern New Castle County experience impairment due to excess nitrogen and phosphorous. Nitrogen and phosphorus pollution frequently come from wastewater, animal feed lots, and polluted runoff from fertilized crop land and lawns. Vehicle exhaust and industrial sources, such as power plants, also contributes to nitrogen pollution.

Several governmental agencies and organizations have a role in regulating water supply in Delaware:

DNREC’s Water Supply Section is charged with managing and issuing well construction and use permits for wells withdrawing 50,000 gallons per day (gpd) or less and with permitting water withdrawals of over 50,000 gpd. Withdrawals of over 100,000 gpd within the jurisdictional area of the Delaware River Basin Commission (DRBC) must also receive approval from the DRBC. In addition, the Water Supply Section conducts long-term water supply planning, water conservation efforts, and coordinates with other organizations in these pursuits.

The Delaware Water Supply Coordinating Council (WSCC) is charged with developing new water supplies in New Castle County and working cooperatively to manage water supplies more efficiently. The Council includes representatives from the Office of the Governor, several state agencies, the Delaware Geological Survey, the Water Resources Agency at the University of Delaware, the Delaware River Basin Commission, all three county governments, public and private water utilities, local governments, the Delaware Rural Water Association, businesses, community groups, and more. The group is chaired by the Secretary of the Department of Natural Resources and Environmental Control (DNREC).

The Water Resources Agency (WRA) at the University of Delaware provides services to Delaware's governments as the State Water Coordinator, as a voting member of New Castle County Resource Protection Area Technical Advisory Committee (RPATAC), as a local Christina Basin watershed coordinator, and as the lead agency in charge of implementing a Source Water Protection Plan for Delaware's four drinking water intakes.

According to the City of Wilmington Water Supply Intake story map, Source Water Assessment Plans identify source water areas and determine the vulnerability and susceptibility of the source water to contamination. The procedures used in local Source Water Assessment Plans are based on the Delaware Source Water Assessment Plan which was established in 1999 after the passage of the Safe Drinking Water Act. Source Water Assessments are publicly available from the Delaware Source Water Protection Program.

Water utilities are subject to regulation by the Delaware Public Service Commission (PSC). Most aspects of water distribution, including maximum rates, are regulated by the PSC, which is also charged with granting Certificates of Public Convenience and Necessity as appropriate when water utilities wish to expand their service territory.

Surface water quality has improved significantly over the past decade. As a result of increased water quality, fisheries are returning. However, high nitrogen and polychlorinated biphenyls (PCB) levels, which come from industrial chemicals, remain to be addressed. DNREC’s Surface Water Discharges Section (SWDS) works to improve surface water quality. The SWDS regulates point sources of pollution including municipal and industrial wastewater treatment systems and their construction, biosolids applications, and stormwater discharges associated with industrial activities. The SWDS is also responsible for issuing regulatory permits under the National Pollutant Discharge Elimination System (NPDES), which require

permittees to establish Water Quality Improvement Plans to achieve TMDLs. New Castle County is a NPDES Permittee and has two approved Water Quality Improvement Plans (WQIPs)—Christina River and Dragon Run. The DNREC program tasked with protecting groundwater is the Groundwater Discharges Section (GWDS). The GWDS oversees all aspects of the siting, design, and installation of onsite wastewater treatment and disposal systems (known as septic systems)⁴

Map G-2: Water Resources Protection Areas

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Stormwater Management

One of the key functions of the New Castle County Department of Land Use, Engineering Division is to control erosion and flooding within the county. Stormwater is the result of rainwater and snow melt that cannot be absorbed into the ground and often causes flooding of roads or buildings. Increased stormwater runoff is found in areas with impervious surfaces, like roads, parking lots, and building roofs; therefore, more building and development leads to increased stormwater and the increased need for stormwater management facilities.

The Department of Public Works maintains 60 stormwater management facilities and monitors over 3,000 privately maintained stormwater management facilities post-construction. Public Works also assists maintenance organizations to ensure their facilities are properly maintained to meet environmental standards. These activities are regulated through the County's MS4 permit, in which the County is a joint permittee with DelDOT. Public Works is also responsible to perform major maintenance on privately owned stormwater facilities in accordance with NCC Code

In the County's Fiscal Year 2022-2027 capital budget, approximately $17 million of capital funds are projected for use on stormwater infrastructure improvements. The projects range from small scale stormwater facility repairs and replacement to Water Quality Improvement Plans (WQIP), which aim to improve water quality in an entire watershed. major basin rehabilitations to reduce wet-weather overflows.

Water Quality Improvement Plans (WQIP) have been under development with DelDOT and submitted to DNREC in 2020. The Christina River Watershed WQIP and Dragon Run Creek Watershed WQIP present a combination project-based implementation of traditional best management practices (BMPs), such as stormwater facility retrofits, as well as non-traditional BMPs, such as tree plantings and stream restoration to address stormwater concerns in the watersheds. More details are available in the Capital Improvements element.

Wastewater

New Castle County is responsible for the installation and management of the sewer systems throughout most of the County. New Castle County's Public Works Department, Environmental Operations and Engineering Divisions, manages over 1,760 miles of sewer, providing service to more 122,000 customers, handling 50 million gallons of water every day. The system includes four wastewater treatment plants and 175 pump stations. The County is roughly divided into 11 Sanitary Sewer Basins, which mirror most watersheds. New Castle County is primarily responsible for all sewer lines outside the incorporated municipalities. Map G-3 displays New Castle County's existing and planned sewer service areas.

In April 2020, the Delaware Department of Natural Resources and Environmental Control (DNREC) produced a Statewide Assessment of Wastewater Facilities outlining details related to all wastewater facilities in Delaware. At the time of this assessment, DNREC noted that New Castle County is in the early stages of establishing a risk-based asset management program, entering all sewer system evaluation study results into a computerized maintenance management software (CMMS), and analyzed by a custom application which provides Operations and Engineering recommendations and prioritization. The analysis is performed by a program called SCREAM that factors use, risk, maintenance and life-cycle to prescriptively manage sanitary sewer assets. Public Works is dedicated implementing state of the art technology and practices which has already reduced overflows by 60% since 2012. DNREC is also responsible for issuing National Pollutant Discharge Elimination System (NPDES) permits, which regulates point sources that

discharge pollutants into waterways. National Pollutant Discharge Elimination System (NPDES) permits, which regulates point sources that discharge pollutants into waterways.

Northern New Castle County

North of the C&D Canal, most dwellings are connected to the public sewer system. The generated sewage within this area is conveyed through a network of sanitary sewer pipes and pump stations via nine major interceptor lines to the Wilmington Wastewater Treatment Plant. On-lot septic systems are largely confined to the northwest portion of the Brandywine Hundred on land zoned Suburban Estate.

Southern New Castle County

South of the C&D Canal, there are four sewer service providers.

• New Castle County
• Middletown
• Smyrna
• Clayton

Sewer infrastructure is largely limited to the central core area of the Southern New Castle County Master Plan. The Department of Public Works provides sewer service to unincorporated New Castle County as well as the municipalities of Odessa and Townsend. The Lea Eara Farms subdivision, which is located in the west, was provided sewer service by the County upon failure of the subdivision’s private treatment plant. Middletown, Smyrna, and Clayton have constructed and manage their own sewer infrastructure. There is currently a small portion of the Town of Middletown that is connected to the County’s sewer infrastructure. In areas of New Castle County where sewer service is not available, onsite wastewater facilities, more commonly known as septic systems, are constructed. In reviewing both DNREC Septic permits and property that receives public sewer service (Public Works data), we estimate that there are roughly 13,000 active septic systems in the unincorporated areas of New Castle County.¹

When comparing a typical lot developed on septic to one on public sewer, the University of Delaware has found that the septic lot potentially delivers 95% more nitrogen (typically in the form of nitrates) contamination to ground water than the sewered lot.² Prolonged nitrate exposure, through drinking water exceeding regulatory limits potentially leads to infant methemoglobinemia (blood disorder), colorectal cancer, thyroid disease, and neural tube defects.³ Averting unnecessary health risks resulting from potential contamination of drinking water has been an important element in New Castle County land use policy and regulations dating back about 30 years. Incentives to develop on sewer and limitations for developing with on-site wastewater treatment have been adopted by New Castle County Council including acreage requirements in the Suburban and Estate Suburban Reserve zoning districts (2 and 5 acres respectively) and a 5-lot subdivision limitation on Suburban zoned land without sewer service to protecting existing and future residents.⁴

As New Castle County looks to the future, it must continue to protect our water resources, take deliberate actions to improve ground water quality by providing an efficient and effective public sanitary sewer service. In instances where public sanitary sewer service is not an option, the County must work with DNREC to assure that the systems installed are high quality systems that are inspected at a regular basis.

development in this area is essential to avert inefficient use of County infrastructure and potential overall environmental impacts.

Map G-3: Existing and Planned Sewer Service Areas

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Sewer Service Area Map Developed by the Departments of Land Use and Public Works

Approved Sewer Projects

Wastewater projects approved under the 2022 New Castle County Capital Budget includes:

1. Brandywine Interceptor Renovation: Project includes rehabilitation, repair and replacement of the existing Brandywine Interceptor to convey existing wastewater flows. This is a phased project commencing with the Alopocas Portion of the interceptor.
2. Christina River Force Main (CRFM): 20% Design of a new CRFM asset to provide redundancy and support to the existing CRFM. The project consists of both a parallel pipe design and assessment, protection, and rehabilitation measures to the existing CRFM.
3. Delaware City Industrial Expansion: Design and construct a regional wastewater system to serve commercial and industrial development within and around the Delaware City Industrial Refinery. The southern portion of the system was completed in September 2021. The northern portion of the system, serving the areas along Governor Lea Road are currently under design.
4. Edgemoor System Rehabilitation: Wastewater asset rehabilitation in Phase 2 of Brandywine Hundred Rehabilitation communities, including excavated repairs focusing on limited capacity sub-basins and operational needs.
5. Lea Eara Farms Wastewater Treatment Plant Closure: This project consists of the decommissioning and closure of the Lea Farms WWTP. The Lea Eara Farms force main was previously completed and was placed in operation. Restoration of the WWTP will occur subsequent to the decommission phase.
6. North Delaware Interceptor: The project consists of the continued assessment of existing interceptor system serving the North Delaware sanitary system located along Governor Printz Boulevard. The project also includes planning, design and construction for trunkline replacement through the Claymont Transit Center Redevelopment project and the future Naaman’s Interceptor Realignment
7. Southern Sewer Service Area: Design and construction of the wastewater system supporting Southern New Castle County including treatment and disposal upgrades serving planned growth through 2050. Regional system construction as required by growth rate and Land Use planning efforts.
8. White Clay System Rehabilitation: Includes the investigation, rehabilitation and/or replacement sanitary sewer assets.

Looking Forward

New Castle County has been blessed with clean water supply sources that adequately supplies the needs of our residents into the future. It is of utmost importance that we protect these assets to protect the public health. We should achieve this by encouraging development where sewer infrastructure is present with ample protections for our water resource protection areas, while dissuading development in areas without sewer infrastructure. The County has developed the following Goals, Objectives and Strategies based on the analysis and conditions above, the Deed Dive Session on infrastructure¹ as well as other public input received during the NCC2050 planning process.

Related Goals, Objectives, and Strategies

3.Goal: Clean water is available to all residents now and in the future.

3.1. Objective: Continue to ensure water services and potable water supply is sufficient to meet demand.

3.1.1 Strategy: Continue to work with the Water Supply Coordinating Council, DNREC and the Water Resources Center at the University of Delaware to monitor the water supply, evaluate changing demands and influences, and ensure availability now and for future generations.

3.1.2 Strategy: Consider additional safeguards for Water Resource Protection Areas (WRPAs) and the public water supply.

3.1.3 Strategy: New Castle County government leads by example and community partnerships, implementing water-saving techniques and best practices, such as low-water landscaping, water-saving technology in buildings, rain barrel program, etc.

3.1.4 Strategy: Work with water purveyors, utilities, and public service commission to look for opportunities to connect to public water supply as part of a strategy to prevent water supply disruptions in those communities of 25+ units that were developed on private well system prior to the code requirement being added.

3.1.5 Strategy: Work with water purveyors interconnect between and within systems, add new finished water storage and aquifer storage and recovery, and transport water from aquifers with excess availability south of Townsend to growth areas between Middletown/Odessa and the Chesapeake & Delaware Canal.

3.1.6 Strategy: Work with DNREC to monitor demands and water levels from allocated public water supply wells and irrigation wells so as not to diminish the capacity of irrigation wells for producers that wish to sustain farming in southern New Castle County.

3.2. Objective: Continue to maintain efficient and effective sanitary sewer service in existing areas served by sewer and extend service to new areas, as planned, to meet growth demands in a sustainable manner.

3.2.1 Strategy: Encourage new development within Sewer Service Areas and regulate septic use for low-density development consistent with County Septic Policy.

3.2.2. Strategy: Delineate a Growth Area Boundary and amend the Sewer Service Area Map to include areas planned and not planned for sewer service (including definitions that provide clarity and predictability).

3.2.3. Strategy: Designate areas for growth and areas for preservation, working collaboratively with the Office of State Planning Coordination

3.2.4. Strategy: New Castle County and incorporated towns should continue coordination and collaboration on development, infrastructure, and policies to support efficient/effective provision of sewer and water, including using joint planning areas.

3.2.5 Strategy: Update Chapter 38 (which covers sewers and sewage disposal) and Public Works policies to achieve consistency with the UDC and the NCC2050 Comprehensive Plan.

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ELEMENT H

Housing

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H. Housing Element

Element Defined

For well over the last 10 years, the gap between the highest earners and the average wage group has grown, according to the Delaware State Housing Authority (DSHA). Compounded with wages not increasing proportionally to housing costs, many residents have been experiencing housing insecurity. The onset of the COVID-19 pandemic exposed the inequity of those hardest hit, increased the number of residents experiencing housing insecurity, and placed those already struggling into dire housing circumstances.

Changes in population demographics are occurring, including an increase in the proportion of people 65 and older (and households of retirees) and an increase in non-white people, especially persons of Hispanic descent. The makeup of households is changing, too. According to the DSHA’s 2015-2020 Statewide Housing Needs Assessment, families are smaller on average. There is a growing trend of multi-generational families and “doubling up” of families in a household unit. There are also fewer homeowners and more renters than in the 2000s. New Castle County also continues to see concentrations of minority families living in poverty, most notably in Wilmington, where the percentage of affordable housing is significantly greater than in the rest of the county.

While a variety of federal, state, and local measures are taking shape to keep residents housed for the short term, the county’s land use policy is critical in providing many long-term housing solutions. With the COVID-19 pandemic, it is critical that all levels of government bring their resources and abilities to the table to work collectively to keep people safely and affordably housed. This Comprehensive Plan will allow the County to review and revise land use regulations, policies and programs, and to enable and expand housing options for New Castle County residents regardless of income, race, age, or ability.

What We Heard

“I would like strategic planning to increase the supply of affordable housing throughout the state.” – Public Participant, Housing Deep Dive Session

“We should foster connectivity for better access to jobs and create “inclusionary zoning.” We should promote increased use of accessory housing units or accessory dwelling units (ADU) in our ordinances. There are many best practices that can allow/encourage accessory housing units. Much of NCC’s two-acre minimum zoning is restrictive and does not allow flexibility in housing development. The elderly and seniors can benefit greatly from more flexible housing and development regulations. This flexibility also serves the needs of students.” – Karen Horton, Principal Planner, Delaware State Housing Authority

“NCC has a unique opportunity for inclusionary housing and land use. It can foster land use patterns that place jobs near housing to reduce commuting and auto use. Create equity in housing through policies that create affordable housing development incentives.” – Charuni “Char” Patibanda, Director of Office of Economic Development, New Castle County

“I think it is a worthwhile challenge to provide affordable housing that is equitable and energy-efficient. That would solve several issues we have discussed—inequality, climate-change and mixed type developments” – Public Survey Participant

NCC Today

Housing Stock

The housing stock in New Castle County is dominated by single-family detached units, which account for over 50% of the overall housing stock. The second largest group is single family attached units, leaving only a quarter of the housing stock to multifamily units. Single family detached homes traditionally have larger lots and contribute to sprawl. If New Castle County wants to plan for affordable, walkable communities in the future, adding a variety of housing types in designated growth areas is key. See Figure H-1 for the Housing Stock breakdown in New Castle County.

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Figure H-1 Type of Housing Stock in New Castle County, 2019 ACS

The 2015-2020 Statewide Housing Needs Assessment examined housing trends and issues related to housing policy through 2020. The assessment and its associated Executive Summary showed differences in housing in the northern and southern portion of the County.

In northern New Castle County, housing stock is much older than the state average, with more than 60% of the homes built before 1970. Alternately, housing in the southern portion of the county is significantly newer, with 80% of the housing developed after 1980 and 40% built in the last 10-15 years. See Figure H-2. Age of Housing Units. Since the housing bubble burst in 2009, there has been slow growth in new homes being built, around 5% of the entire housing stock. Reinvestment into the older housing stock and strategic placement of new, planned housing with greater density will be explored in more detail in the following pages.

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Figure H-2 Age of Housing Units; Source: DSHA Delaware Housing Needs Assessment Executive Summary

DSHA’s 2015-2020 Statewide Housing Needs Assessment found there was a significant need for more rental housing and physically smaller, more affordable housing. This is due in part to trends of a growing

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senior population, aging family members living with younger generations, and smaller family sizes in general.

Housing Costs and Income

DSHA’s 2020 Delaware Statewide Analysis of Impediments to Fair Housing Choice addressed housing options related to income and ethnicity. This analysis highlighted that New Castle County is the most populous and most diverse of Delaware’s three counties. The City of Wilmington is home to a higher proportion of the minority population and displays high levels of segregation. The housing stock in Wilmington is more likely to be older, multifamily units, while homes in the suburbs tend to be newer, single family detached homes. Outside of the city, 2.1% of housing is publicly supported (i.e., Section 8), while 16% of the housing in the city is subsidized.

Tables H-1 and H-2 illustrate rental and owner-occupied housing affordability related to income for a single person and a four person household. These tables illustrate affordability ranges for rental and owner housing costs at various income limits relative to Area Median Income. The affordability ranges are calculated based on the assumption that rental housing costs should not exceed 30% of gross income and that owner costs should not exceed 3.5 times annual income in order to be considered affordable.

Table H-1 - Housing Affordability by Income

1 person household*

$66,200

*Philadelphia-Camden-Wilmington, PA-NJ-DE-MD MSA ** Rent, utilities affordable at 30% of gross household income *** Mortgage affordable at 3.5 times gross household income Source: 2021 HUD Income Limits, Novogradac Income and Rent Calculator

Table H-2 - Housing Affordability by Income

Family of 4*

$94,500

*Philadelphia-Camden-Wilmington, PA-NJ-DE-MD MSA

** Rent, utilities affordable at 30% of gross household income

*** Mortgage affordable at 3.5 times gross household income

Source: 2021 HUD Income Limits, Novogradac Income and Rent Calculator

Map H-1 demonstrates the distribution of renters spending more than 30% of their income on housing costs. Thirty percent (30%) is the threshold where households are considered cost burdened. As shown in the darker blue shades, much of the highest concentration of rent disparities are found north of the C&D Canal, though almost all of the county has a percentage of renters experiencing rent burdens. Further, an estimated 14% (27,000) of households in New Castle County are extremely cost burdened, meaning they spend 50% or more of their household income on housing.¹

Map H-2 displays similar data for homeowners. There are fewer areas with homeowners spending 30% or more of their income on housing, but areas with homeowners spending between 17 and 30% of their income on housing are widespread in the county.

Map H-1 Percent of Renters Spending 30% or More of Income on Rent

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Map H-2 Median Owner Costs as a Percentage of Household Income

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According to the 2019 ACS, 152,974 units, or 67.9%, of the housing stock was owner-occupied. The median mortgage was $1,657 per month and the median value of a home was $272,800.

Some of Delaware’s strongest industries—particularly health care, tourism, and retail—have many low- and moderate-wage workers, creating a significant demand for workforce housing. See Figure H-3 Housing Costs by Occupation; Source: 2015-2020 Delaware Housing Needs Assessment for a breakdown of housing costs by occupation in New Castle County.

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Figure H-3 Housing Costs by Occupation; Source: 2015-2020 Delaware Housing Needs Assessment

Minority households are less likely to become homeowners than White, non-Hispanic households, and when they do become homeowners, have a higher chance of experiencing housing challenges than White, non-Hispanic homeowners. The 2019 ACS Survey reported that 72,303 units, or 32.1%, of the housing stock was renter-occupied. The National Low Income Housing Coalition estimates that the rent affordable at mean renter wage in New Castle County is $954. However, Housing and Urban Development (HUD) Fair Market Rents for New Castle County in 2017 were $1,003 for a one-bedroom unit, $1,211 for a two-bedroom unit, and $1,515 for a three-bedroom unit.¹ The average renter wage was $8.35, and the wage needed to afford a fair market rate two-bedroom unit in New Castle County was $23.29, meaning a person

working at minimum wage would need almost three full-time jobs to afford a two-bedroom apartment.¹ The Fair Market Rent value of even a one-bedroom unit is outpacing average renter wages. In New Castle County, almost half of all renters and one-third of all homeowners have housing challenges, which is defined as paying more than 30% of their income on housing costs, living in overcrowded conditions, or substandard living condition (See Figure H-4). Since the COVID-19 pandemic, this number has increased dramatically, based on the trends observed across the country.

The State of Housing and Homelessness in the First State from the Housing Alliance Delaware noted that there is still a significant population of residents experiencing homelessness or housing hardship.

Gross Rent as a Percentage of Income (American Community Survey, 2019)

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Figure H-4 Gross Rent as a Percentage of Income

New Castle County had the highest amount of people experiencing homelessness on the Point in Time Count (PIT)² conducted in accordance with the Housing and Urban Development (HUD) federal mandate. On that night in January 2020, 654 people were counted as experiencing homelessness (or 64% of the state’s total homeless population).

In order to help address the urgent need for emergency housing, New Castle County created the New Castle County Hope Center. The Hope Center is a 192-room former hotel which was acquired by the County using CARES Act funding and opened in December 2020. The New Castle County Hope Center is an emergency shelter with the goal to reduce the homeless population in the County by providing safe and

stable temporary housing to those experiencing homelessness. The Hope Center also provides on-site health and social services as well as resources that help residents locate and transition into a permanent housing solution, breaking the cycle of homelessness.

Housing and Aging

Seniors will have different housing needs as they age, such as homes that feature universal design (zero step entrances, hallways wide enough for a wheelchair, and bathrooms on the main level). Since most are homeowners, solutions to age within their homes will be increasingly important. In addition, a variety of housing types provide opportunities for seniors to age in place, including apartments, age-restricted communities, or accessory dwelling units (ADUs). An ADU allows for seniors to maintain independent living while still being close to family members or caretakers.

Housing and Transportation

Along with housing costs, transportation costs make up a significant portion of household spending as transportation is necessary for household members to access jobs, goods, and services. Therefore it is important to look at housing and transportations costs together. The Housing and Transportation Index looks at the combined spending per household on housing and transportation. As seen in Map H-3, there are several regions in New Castle County where households are spending over 45% of their income on combined housing and transportation costs¹ As expected, areas of more dense population have more alternative transportation choices. Many of those areas have housing costs that exceed the 30% threshold, so while transportation costs appear to be less of a burden, a majority of the costs are taken up by rent. Housing recommendations need to be planned in coordination with transportation to minimize cost burdens on households and ensure access to opportunity.

Map H-3 Housing and Transportation Index

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Addressing Housing Challenges

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The Housing Pipeline

As outlined in the 2015-2020 Statewide Housing Needs Assessment, families are getting smaller, but there tends to be more “doubling up,” multiple families living in one home or multigenerational families living in one home. The housing crisis and recession has resulted in fewer households of all ages being homeowners, and demand for new housing has shifted to smaller, more affordable homes and rental housing. However, the development pipeline and new home construction in New Castle County is dominated by single family detached dwellings, as shown in DSHA’s Housing Production Report, creating a mismatch between available housing and the needs of the community (See Figure H-5).

New Castle County Single Family vs. Multi-Family Building Permits (%), 2000-2020

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Figure H-5 Single Family vs. Multi-family Building Permits, 2000-2020, Source: DSHA Housing Production Report

Affordable Housing Programs

New Castle County Department of Community Services administers initiatives to address some of the challenges noted in this element and provide an opportunity for low to moderate income households to purchase homes in the County.

They coordinate with federal housing programs and administer the Workforce Housing Program, which is designed to provide an opportunity for middle income households to purchase or rent affordable new construction housing units in New Castle County. There are certain lots within select developments that are specifically available for income-qualified buyers. These federal programs include the Neighborhood Stabilization Program (NSP)¹ and the HOME Investment Partnership Program.²

The county uses the NSP funding to improve neighborhoods with large numbers of vacant or abandoned properties. The county has the ability to purchase vacant or abandoned properties which can be subsequently rehabilitated and sold to income qualified home buyers. Prioritized zip codes in New Castle County are: 19720, 19702, 19709, 19802, 19805, & 19701. HOME funds are distributed to the county directly from HUD. The county provides a plan to HUD outlining how the funds will be used and a performance plan is submitted annually to HUD. The county utilizes HOME funding for 1st time homebuyers or other individuals at 80% or below of Area Median Income.

In addition to these assistance programs and to eliminate government redundancies, New Castle County consolidated the previously established Housing Advisory Board and the Rental Housing Advisory Committee. The consolidated board, which retained the Housing Advisory Board name, not only continues to focus on rental housing matters but also engages in a broader focus on housing development, services, and Housing Trust Fund distributions to address the housing needs of very low-income households (those earning less than 65% of median income), and low-income households (those earning less than 80% of median income) in New Castle County. This ensures all residents, regardless of economic challenges, are able to obtain safe, quality housing.

Traditional Neighborhood Housing and Moderately Priced Dwelling Units

Traditional Neighborhood Housing is an inclusionary zoning program with a mandatory and voluntary component. Moderately Priced Dwelling Units (MPDUs) are required for all major residential subdivisions proposing a rezoning application or variance applications with density increases proposing twenty-five (25) or more dwelling units except for mixed-use developments. Major residential subdivisions that do not require a rezoning may receive a density bonus if a portion of the proposed units are voluntarily designated as MPUDs. The Traditional Neighborhood Housing Program is designed for people who make less than 90% of area median income as determined by the U.S. Department of Housing and Urban Development (HUD) for New Castle County.

The County’s Housing Trust Fund is part of the broader affordable housing program. per Section 40.07.530 of the UDC: “A contribution shall be made for all dwelling units that are not designated as MPDUs on all Traditional Neighborhood Housing Program plans. The contribution shall be twelve ($12.00) dollars per one thousand ($1,000) dollars of permit construction valuation and shall be payable at the time of issuance of a Certificate of Occupancy. All monies shall be deposited in the Housing Trust Fund.”

Accessory Dwelling Units

One solution that New Castle County currently allows in residential zoning districts are Accessory Dwelling Units (ADU), which was added to the County code in 2007. It is defined as: “a second, subordinate dwelling unit added to or created within a single-family detached dwelling, which provides independent living, sleeping, eating, cooking and sanitation facilities.” ADUs are currently permitted on any residential property. However, an ADU must be attached to the main dwelling unit on properties less than two acres. On properties two acres or larger, ADUs may be detached from the primary dwelling unit. In all cases, the

homebuyers; and new construction of housing. HOME funding may also be used for site acquisition, site improvements, demolition, relocation, and other necessary and reasonable activities related to the development of non-luxury housing. Funds may not be used for public housing development, public housing operating costs, or for Section 8 tenant-based assistance, nor may they be used to provide non-federal matching contributions for other federal programs, for operating subsidies for rental housing, or for activities under the Low-Income Housing Preservation Act.

property owner is required to live in one of the units. However, the County placed a cap on ADU permits, allowing only 0.2% of single-family detached homes in the County which was reached in 2016.

As a result, the County added an additional 0.2% for a total 0.4% ADU permitted. Over half of the permitted ADUs are on lands that are connected to septic, not sewer, and on average 20 to 25 units have been permitted per year. This use could become part of a solution to many of the existing housing issues within the County. ADUs create opportunities for aging in place by providing space near family members for older residents. ADUs may serve as rental homes to provide affordable housing for low-income residents and an additional revenue source for owners. ADUs also provide an opportunity to meet housing needs while not sacrificing green fields. Enhancing ADU provisions would increase their use and effectiveness for fulfilling housing needs.

New Castle County population demographics are changing and so are the housing needs of our residents. This Comprehensive Plan will allow the county to review and revise land use regulations, policies, and programs, and to encourage the availability of the right housing options for New Castle County residents regardless of income, race, age, or ability. Housing stock in the county should provide diverse options to meet the many needs of our residents and integrate with our existing communities. Our strategies also will help us to create a better balance of employment centers, housing, shopping and other resources, along with access to our transportation network. This plan proposes to improve existing housing stock, expand access to homeownership, and other initiatives to ensure that more residents thrive where they live.

Home Repair

The New Castle County Department of Community Services administers a variety of federally funded programs which provide funding for home repairs to low-income households.¹

Emergency Repair Loan Program:

An affordable program designed to assist qualified homeowners repair one critical need in their home. Types of eligible repairs include heater repair, plumbing leaks, unsafe electrical system, severe roof leaks, replacement of sewer or water lines. Funding availability per loan ranges from $500 to $5,000.

Senior Minor Home Repair Program:

This grant program for eligible senior homeowners (homeowners over the age of 60 and meet the income requirements) addresses home repair needs that focus on health, safety, and security conditions of the home. Qualified repairs include minor carpentry, plumbing, or electrical repairs, as well as smoke detectors. Funding availability per home is from $500 to $2,500.

Architectural Accessibility Program:

This is a grant program designed to enhance the ability of a qualified household member to safely function in their home and enter and exit the home safely. Qualified work includes installation of an access ramp, widening of doorways, re-plumbing of kitchen or bath facilities, lowering electrical switches, stair lifts, walkways to ramps.

Vacant Properties

The county created the Vacant Spaces to Livable Places program to address vacant properties throughout the county. Over1,300 vacant properties in the County, with most of these vacant properties being maintained by the County at taxpayer expense. The program encourages vacant properties to transition to

new homeowners or be redeveloped without the need for a long foreclosure process or significant financial investment by taxpayers. Between 2017 to 2022 there has been a 59% reduction in vacant properties (from 1350 to 553). The program is a five-step process:

1. Register Vacant Properties: The New Castle County Property Maintenance Code requires vacant property owners to register with the county after the property has been vacant for 90 consecutive days. The county is also able to register vacant properties which have been identified and meet the criteria for vacancy. Annual registration fees are assessed for each year that a property remains vacant.

2. Prioritize Monitions: The County Monitions Review Team makes recommendations for properties for monition, the legal process to bring a property to Sheriff’s Sale. These vacant properties generally have considerable code enforcement violations and associated fees, have been the subject of constituent complaints, have received numerous calls for police services, and owe back property taxes. The Team includes representatives from the Departments of Land Use, Community Services, Police and Finance

3. Notify Property Owners: The Office of Law sends a 10-day demand letter to property owners and interested parties to notify them of a potential monition action if delinquent fees are not paid. In many cases, these letters have resulted in payoffs, either from the property owner or financial institution, without having to file a monition.

4. File Monitions & Conduct Sheriff’s Sale: The County’s Office of Law oversees the filing of monitions to bring the recommended properties to Sheriff’s Sale. The County implemented an additional screening at Sheriff’s Sale in 2018, to prevent already delinquent property owners from acquiring additional properties. This Bidder Prequalification process has identified multiple tax delinquent property owners since 2018 who were successful bidders but not in compliance with prequalification requirements. These bidders were required to pay their outstanding fees before the properties were transferred.

5. Acquisition & Disposition: When there are no qualified bidders on a property at Sheriff’s Sale, the property reverts to the County ownership. Between 2017 and 2021, 25 properties did not receive a third-party bid. The County Acquisition and Disposition Team reviews these properties to decide the best method to return the properties to productive use, including: Soliciting a bid for redevelopment, selling on the open market, or retaining ownership. The Team includes representatives from the Departments of Land Use, Community Services, Law, Finance, and Administrative Services.

Demolition by Neglect

The County’s Property Maintenance Code and Unified Development Code address “demolition by neglect.” This term refers to allowing a property to deteriorate by lack of care and maintenance to a point that demolition is the only safe or financially feasible option. This is often done by owners of historic properties who do not want or are unable afford maintaining the property to meet historic guidelines. (See Historic Preservation Element)

Related Goals, Objectives, and Strategies

4. Goal: Healthy, safe housing options throughout the County are diverse, meeting needs of people of all incomes, ages, abilities, and races, while maintaining design and form of the built environment that integrates with existing communities.

4.1. Objective: Increase variety and range of price-points of safe, quality housing options, in a diversity of locations.

4.1.1. Strategy: Enable/encourage greater range of housing types in residential zones, including Accessory Dwelling Units (ADUs), duplexes, and multiplexes.

4.1.2. Strategy: Modify existing ADU provisions by removing regulatory barriers. Eliminate the limit on the percentage of permitted ADUs in the county, as well as assess current lot size requirements for detached ADUs.

4.1.3. Strategy: Enable and pursue innovative housing types to help meet demand now and in the future.

4.1.4. Strategy: Require moderately-priced dwelling units (MPDUs) in by-right residential developments of 15 units or more. Model after Montgomery County, MD, and their MPDU program.

4.1.5. Strategy: Using the market value analysis (MVA) and other data, identify priority areas and areas of opportunity and implement affordable and moderately priced housing efforts there to achieve better distribution of housing types and price points along with accessibility to daily needs (jobs, transit, school, etc.). Consider establishing sliding scale for MPDU requirements. For example, in parts of the county better served by affordable housing fewer MPDUs are required, and in areas with fewer affordable units more MPDUs are required.

4.2. Objective: Increase proximity of quality housing to other daily needs throughout the county, especially jobs, to support overall cost of living affordability. Better balance of jobs and housing to support residents and their access to both quality/affordable living and living-wage jobs as well as employers and their workforce.

4.2.1. Strategy: Incentivize mixed-use development areas that balance jobs, housing, shopping and services at varying income levels.

4.2.2. Strategy: Support the creation and enhancement of transit-oriented development and mixed income development, such as by allowing multi-family housing within a distance of all transit centers/stations and specific transit lines.

4.2.3. Strategy: Advance Universal Design to support aging in place by allowing for by-right Accessory Dwelling Units (ADU) and evaluate current development bonuses for age-restricted housing.

4.2.4. Strategy: Designate target growth areas and encourage development in those places where transit, water, and sewer infrastructure already exists. Also ensure there is consistency as the transportation investment area map (part of the regional transportation plan) to include areas in the county where transit and transit supportive infrastructure exists (e.g. Newport, Churchman’s Crossing, Claymont).

4.2.5. Strategy: Update Chapter 38 and Public Works policies to achieve consistency with the UDC and Comprehensive Development Plan updates.

4.2.6. Strategy: Update the Unified Development Code to clearly differentiate between zoning districts intended to receive sewer service and districts that will not.

4.2.7. Strategy: Work with the Neighborhoods and Fair Housing Association to promote and support the Fair Housing Law to guide fair housing practices.

4.3. Objective: Expand access to homeownership, especially among low-income residents and people of color.

4.3.1 Reduce regulatory barriers and processes that unnecessarily increase the cost of housing or delay/prevent its development.

4.4. Objective: Upgrade the condition of substandard housing stock—including integration of green energy—throughout the County, without causing displacement.

4.4.1. Strategy: Work with local communities to create partnerships to help communities establish and advance a neighborhood vision, including supporting and funding the upgrade and installation of environmentally friendly design elements and energy conservation in existing homes.

4.4.2. Strategy: Work with housing agencies to identify and monitor for displacement/gentrification and proactively implement strategies to prevent it from happening.

4.4.3. Strategy: Work with residential real estate industry to establish energy disclosure reporting (e.g. Truth in Sale of Housing and Time of Rent energy disclosure) to provide homeowners, prospective buyers, and renters with the general energy performance of a home/unit and provide recommendations on what could be done to improve the energy efficiency.

4.4.4. Strategy: Provide support and funding for home repairs for low- and middle-income households while providing protections from foreclosures or sheriff’s sale for homeowners whose residence has code violations.

4.4.5 Strategy: Ensure that Housing Trust Funds are distributed equitably.

See Also: Economic and Community Development Element, Goal 6

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ELEMENT I

Historic

Preservation

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I. Historic Preservation Element

Element Defined

Long before Delaware became the “First State,” Delaware was inhabited by members of the Lenni Lenape, also called the Delaware Tribe, and Lenape Nanticoke nations. Settling throughout the Delmarva peninsula, the tribes utilized the rich resources found along the Delaware Bay to sustain life for centuries. New Castle County’s European history begins in the early seventeenth century, when Dutch and Swedish explorers established military forts and trading posts along the Delaware Bay and Delaware River. In 1651, the Dutch constructed Fort Casimir on land which is now the Town of New Castle. England gained control of Dutch territory along the Delaware River in the 1660s and by the 1670s, Delaware was placed under the control of the Duke of York and became one of the original thirteen colonies.

Since its incorporation, New Castle County has played a vital role in American history. Colonial settlers in Delaware would become leading members of the American Revolution; Delaware was the first of the original 13 colonies to ratify the Constitution that formed the United States government. By the early nineteenth century, the economy in New Castle County was characterized by a mix of agriculture and industry, including the establishment of the DuPont powder mills in 1802. The Chesapeake and Delaware Canal was completed in 1829 and established an important trade network through Delaware and Maryland which spurred the establishment of small towns such as St. Georges. The Piedmont region of Delaware was characterized by mills and mushroom farms while south of the canal saw important technological advances in farming practices led by the rural elite. In the years leading up to and during the Civil War, New Castle County was an important stop on the Underground Railroad and home to many abolitionists. The Industrial Revolution took off within New Castle County as it did in many eastern states. By the early twentieth century, the suburbanization of New Castle County saw its early beginnings after the years of the Industrial Revolution. Today, New Castle County’s landscape is largely characterized by suburban development that boomed in the mid-twentieth century and continues to grow even today. New Castle County is home to several cultural institutions, including Winterthur and Hagley Museum, that continue to tell the story of the county’s history for the benefit of residents and visitors.

New Castle County has a long history of historic preservation policy dating back to the 1970s. In 1966 with the passage of the National Historic Preservation Act, the nation saw a push to preserve historic resources. New Castle County was quick to establish Historic overlay zoning districts in the early 1970’s. The first established Historic overlay zoning district was Holly Oak, which was rezoned in 1976. Today, New Castle County participates in the Certified Local Government (CLG) program, which is a federal program that helps state and local governments participate in historic preservation initiatives. By having an historic resources code and active Historic Review Board, New Castle County meets the requirements to participate in the CLG program and is able to receive preservation benefits in the form of an annual grant.

As New Castle County continues to identify, evaluate, and target areas where growth should occur, it should also target the preservation of historic resources and districts. Historic resources play an important role in ‘placemaking’; therefore, the county should identify opportunities to preserve these historic resources for the benefit of residents and visitors. The continued preservation and protection of resources (buildings, structures, sites, objects, districts and landscape features) that have architectural, cultural, archaeological, educational and aesthetic value are critical to the character of the county. In addition, preservation of historic, cultural, and scenic resources creates important opportunities for the county including education, economic development, and tourism (heritage & agrotourism). Most importantly, preservation plays an important role in the health, prosperity and welfare of all residents of the county and enhances the quality of life for all.

What We Heard

“What do you think the biggest challenge is for historic preservation in New Castle County?

• Development pressure
• Big business
• Perceived cost
• Need more code protections
• Lack of cultural interpretation
• Retail development
• Need incentives
• Planning
• Lack of solid planning
• Developers
• People not aware of what properties and areas are historic
• Too expensive to make historic buildings fit modern needs”

– Public Poll Responses, Deep Dive Session 4

“As part of the comprehensive planning process, we have to look at these resources and identify viable ways to encourage and ensure their preservation. To preserve historic resources and promote their value and significance through the comprehensive plan’s goals and strategies, we should identify opportunities for historic preservation and placemaking and pair them together.”

– Betsy Hatch, Historic Preservation Planner NCC Department of Land Use, Deep Dive Session 4¹

New Castle County Today

Historic preservation practices in New Castle County continue to evolve over time as historic resources are continually identified. New Castle County’s Unified Development Code states that in order to be evaluated for historic designation, a resource should generally be a minimum of 50 years in age. In order to achieve its goals and encourage historic preservation, the county has several key tools on the local, state, and national level. In November of 2020, New Castle County adopted an ordinance that enhanced and modernized the Historic Review process and achieved several key goals including incentives for Historic overlay zoning, preservation of historic resources on major land development plans, and new powers to the Historic Review Board pertaining to demolition permits. In order to understand historic preservation in New Castle County, it is important for residents to understand the current tools at the county’s disposal.

New Castle County Historic Review Board

The New Castle County Historic Review Board (HRB) is established under the County’s Unified Development Code and is charged with making recommendations and decisions on land use applications that impact the County’s historic resources. The Historic Review Board is one of the primary authorities for historic resources in the unincorporated portions of the County. These applications include, but are not

limited to, building and demolition permits, land development plans, Historic Overlay rezonings, and nominations to the National Register of Historic Places.¹ The Historic Review Board also plays a pivotal role in the Demolition by Neglect regulations, which require that the cCounty’s historic resources within the bounds of an Historic Overlay zone are maintained to a certain standard to avoid deterioration due to lack of maintenance.

The Historic Review Board consists of nine members that are appointed by the County Executive and County Council. The Board members are comprised of preservation professionals including an architect and archaeologist, as well as individuals who have demonstrated a concern in the field of historic preservation and have knowledge of the county’s history.

New Castle County Historic Overlay Zoning Districts

New Castle County developed Historic Overlay zoning in the 1970s as a tool to assist property owners with the protection of the integrity of their historic properties. It was intended to identify properties where renovations or other changes should be carefully considered and planned. Only exterior alteration and new development of land within the overlay zoning districts require historic review. The general philosophy behind the Historic Overlay zoning districts is to respect the original character of the historic property by making repairs and renovations as seamless as possible. Historic Overlay zoning districts are distinct from other historic designations, such as the National Register of Historic Places.

Today, New Castle County has 49 Historic Overlay zoning districts, which are districts designated by the Historic Review Board and County Council. In order to qualify, each district must be at least 50 years in age, or exceptionally significant to New Castle County, in addition to meeting one or more of 14 criteria outlined in the Historic Resources code. These districts have a unique set of regulations as established by the county to preserve the character of the resources while also supporting adaptive reuse and prevention of demolition by neglect. The 49 Historic overlay zoning districts span 335 parcels that include historic resources, vacant land that contribute to the character of an area, and even a major subdivision.

In addition to designated regulations, Historic Overlay zoning districts offer other incentives for owners, including development incentives and tax credits. Historic Overlay zoning has remained an important planning tool that ensures enhanced community character and design, as well as a creates economic development opportunity. Properties with Historic Overlay zoning have the opportunity to utilize the adaptive reuse provisions, which promotes economic development through the continued utilization of existing structures that have historic value. The adaptive reuse provisions permit commercial uses that are appropriate on a neighborhood scale, such as hair salons, antique stores, bakeries, small restaurants, and offices and allow historic structures to remain a viable asset to the community. Examples of successful adaptive reuse sites in New Castle County include the Institute Collegiate Studies Institute located near the Hoopes Reservoir and the Holladay-Harrington House located on Kennett Pike.

See Map I-1 displaying the current Historic Overlay Zoning Districts within New Castle County.

New Castle County Historic and Cultural Resource Design Guidelines

The county established Historic and Cultural Resource Guidelines in 2006 to assist in the review of applications for modifications and new developments within the Historic Overlay zoning districts. Similar to the Secretary of the Interior Standards for the Treatment of Historic Properties, the New Castle County Historic and Cultural Resource Design Guidelines is a helpful tool for all projects that may impact an historic resource. Because Historic Overlay zoning districts are not concentrated in one area of the county, there was an identified need for flexible and diverse guidelines on the local level. The resources included

in the county’s Historic overlay zoning districts span more than 200 years and include more than 15 historic architectural styles. Therefore the guidelines provide the flexibility for property owners to make changes that are appropriate to each building’s particular style. The design guidelines provide the principles of the county’s preservation approach, but do not dictate required styles, regulate the interior use of the properties (beyond the existing base zoning of the area), or require a single treatment that should be applied to all buildings in a district. When making determinations on proposals in Historic overlay zoning districts, the Historic Review Board consults the design guidelines.

Demolition By Neglect Provisions

The County’s Property Maintenance Code and Unified Development Code address “demolition by neglect.” This term refers to allowing a property to deteriorate by lack of care and maintenance to a point that demolition is the only safe or financially feasible option. This is often done by owners of historic properties who do not want or are unable afford maintaining the property to meet historic guidelines. New Castle County is required to inspect properties within the Historic Overlay zoning districts annually to ensure that this does not occur. These inspections are reported to the HRB, and County Council and any property owners found to be neglecting their property will be notified and given an opportunity to respond to the claim.

New Castle County Historic Marker Program

As a way of celebrating New Castle County’s historic resources and appreciation of the stewards of the county’s historic buildings, the Historic Marker Program was implemented in the winter of 2020. The program allows owners of properties located within a Historic Overlay zoning districts to place a marker identifying that a structure is an officially designated New Castle County historic resource. So far, three historic markers have been placed on County historic resources since the program’s implementation (See Figure I-1).

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Figure I-1: Example of County historic marker

Map I-1: Historic Overlay Zoning Districts

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Certified Local Government Program

The State of Delaware’s Certified Local Government Program (CLG) provides technical and financial assistance while encouraging preservation programs and practices at the local level. The CLG Program is a federal program administered in Delaware by the State Historic Preservation Office (SHPO) in partnership with the National Park Service. Local governments pursue CLG status to be eligible to receive this technical assistance and eligibility for grants to enhance the local government’s historic preservation activities. CLG status requires the local government to enforce a preservation ordinance, establish a preservation committee, provide adequate public participation, review local National Register of Historic Places (NRHP) nominations, and maintain a publicly available list and map of local historic properties.

As a participant in the CLG program, New Castle County has the opportunity to apply for annual grant funds to promote various preservation activities in the county. In recent years, the county has partnered with the University of Delaware Center for Historic Architecture and Design (CHAD) to complete various documentation projects and nominations to the NRHP. Of those recent projects, New Castle County recently saw four resources added to the NRHP through participation in the CLG Program:

Parkers Dairy Palace

Listed October 15, 2019, Parker’s Dairy Palace (See Figure I-2) is the best-known surviving example of a 1950s drive-in/walk-up soft serve ice cream stand remaining in New Castle County, Delaware.

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Figure I-2: Historical photos of Parkers Dairy Palace

Florence and Isaac Budovitch House

Listed on January 30, 2020, the Florence and Isaac Budovitch House was constructed between 1955 and 1956 (See Figure I-3). This Contemporary style dwelling was designed by New York architect Edgar Tafel, an apprentice of Frank Lloyd Wright, and features distinctive Prairie School/Wrightian influences. The Budovitch House is significant at the local level as the only known Tafel-designed commission in the State of Delaware and as an excellent example of well-preserved mid-20th century Contemporary residential architecture.

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Figure I-3: Florence and Isaac Budovitch House

Newark Union Church and Cemetery

Listed on February 6, 2020, Newark Union Church and Cemetery (See Figure I-4) served a wide range of religious groups for a total of nearly 300 years including Quakers, Methodists, Presbyterians, Anglicans and non-denominational Christians. Both the cemetery (founded in the late-17th century and still accepting burials) and the surviving Newark Union Church (built in 1845 and remodeled in 1906) represent the evolving religious demographics of residents north of Wilmington.

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Figure I-4: Newark Union Church and Cemetery

(St. Daniels) African Union Church and Cemetery of Iron Hill

Listed on September 9, 2021, St. Daniels Church was constructed between 1852 and 1856 and is locally significant as the oldest known surviving, free Black church in northern Delaware that was built as part of Peter Spencer’s African Union Church movement (See Figure I-5).

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Figure I-5: (St. Daniels) African Union Church and Cemetery of Iron Hill

Byways and National Historic Trails in New Castle County

In addition to historic structures and sites, New Castle County also contains historically significant thoroughfares referred to as byways. There are two types of byways found in New Castle County, federally designated byways and state byways. The National Scenic Byways Program is overseen by the United States Department of Transportation’s Federal Highway Administration in cooperation with state departments of transportation and other related agencies. The Delaware Byways Program began with the passing of Senate Bill 320 in 2000. This bill allowed DelDOT to establish a scenic byway advisory committee that is comprised of a variety of state and local agencies, which select byway locations throughout the state. The major differences between the two programs are funding sources and availability, as well as the level of local involvement as the state program allows for more local input than the federal program.

Designated byways in both programs possess certain intrinsic qualities that contribute to the history and historic landscape in New Castle County that should be continually preserved. The county is currently exploring a legislative approach to enhance protection of the byways through scenic viewshed protection paired with existing historic resource regulations. There are currently four byways within New Castle County:

• The Brandywine Valley National Scenic Byway (federal)
• The Red Clay Valley Scenic Byway (state)
• The Harriet Tubman Underground Railroad Byway (state)
• Delaware Bayshore Byway (state)