On the agenda: Luzerne County meeting — data center (Jun 23)

LUZERNE COUNTY COUNCIL
VOTING SESSION
Council Meeting Room
Luzerne County Courthouse
200 N. River Street
Wilkes-Barre, PA 18701
AND
Video/Teleconference via ZOOM
June 23, 2026
6:01 PM

5:30 PM (EXECUTIVE SESSION)
6:01 PM VOTING SESSION CALL TO ORDER
PLEDGE OF ALLEGIANCE AND MOMENT OF SILENCE
ROLL CALL
RECOGNITIONS & CEREMONIAL PROCLAMATIONS
Retirement - Fire Chief Frank Guido
Pennsylvania 250
DELETIONS FROM VOTING SESSION AGENDA
ADOPTION OF VOTING SESSION AGENDA
PUBLIC COMMENT ON VOTING SESSION AGENDA ITEMS
This is an opportunity for members of the public to address the Council on any or all items on the
Agenda. Each speaker shall have three (3) minutes to address Council. Speakers may not yield or
transfer their time to another speaker.
Those attending in person are asked to complete and submit a Speaker Card to the Clerk of
Council before the first speaker is called.
Those attending virtually are asked to refer to the Public Meetings Online page of County’s
Website at https://www.luzernecounty.org/1279/Public-Meetings-Online for more information
on how to participate in Public Comment via technology.
OLD BUSINESS

AGENDA ITEMS
1. Motion to approve minutes of the June 09, 2026 Voting Meeting ............................. pages 1-8
2. Motion to adopt resolution Committing a Local Match for State
Operating Assistance for the Luzerne County Transportation Authority .................. pages 9-11
3. Motion to adopt resolution Committing a Local Match for State
Operating Assistance for the Hazleton Public Transit ............................................. pages 12-13
4. Motion to adopt resolution Revising the Process in which
Luzerne County Awards Act 13 Marcellus Shale Legacy Funds………………………….…pages 14-29
5. Motion to adopt resolution Approving the Strategic Plan and Five-Year
Financial Plan Prepared by Pennsylvania Economy League .................................. pages 30-186
6. Motion to adopt resolution Confirming the Appointment of Division
Head of Correctional Services ....................................................................................... page 187
7. Motion to adopt resolution Approving a Modification to an American
Rescue Plan Act Funds Awarded Project – Lower South Valley Land Bank......... pages 197-204
8. Motion to adopt resolution to Extend Lease with Luzerne County
Community College for 100 West Broad Street, Hazleton .................................. pages 205-207
PUBLIC COMMENT
This is an opportunity for members of the public to address the Council on matters not listed on
the Agenda, but which must be within the subject matter jurisdiction of the Council. Each speaker
shall have three (3) minutes to address Council. Speakers may not yield or transfer their time to
another speaker.
Those attending in person are asked to complete and submit a Speaker Card to the Clerk of
Council before the first speaker is called.
Those attending virtually are asked to refer to the Public Meetings Online page of the County’s
Website at https://www.luzernecounty.org/1279/Public-Meetings-Online for more information
on how to participate in Public Comment via technology.
ADJOURNMENT

Luzerne County Council
Voting Session
June 09, 2026
Council Meeting Room
Luzerne County Court House
200 N. River Street
Wilkes-Barre, PA 18701
AND
Video/Teleconference via ZOOM
Minutes
Call to Order
The Luzerne County Council convened for a Voting Session in the Council Meeting Room of the
Luzerne County Courthouse on June 09, 2026 at 6:05 PM. The meeting was called to order by
Chair Jimmy Sabatino.
Pledge of Allegiance and Moment of Silence
Roll Call
Present
Chris Belles
Steven Coslett
Harry Haas (virtually)
Patty Krushnowski
John Lombardo (virtually)
Lee Ann McDermott
Jimmy Sabatino
Dawn P. Simmons
Joanna Bryn Smith, Esq.
Brittany Stephenson
Denise Williams
Also Present
Sharon Lawrence, Clerk of Council
Romilda Crocamo, Esq., County Manager
Harry Skene, Chief County Solicitor

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AGENDA Page 1 of 207

Proclamations
Mr. Krushnowski read and presented a proclamation to the Plymouth Historical Society in honor
of their 40th anniversary and Plymouth Boroughs 160th anniversary.
Deletions from Voting Session Agenda
NONE

Adoption of Voting Session Agenda
Motion by: Ms. Krushnowski
Second: Ms. Stephenson
Vote:
Eleven (11) Ayes – Unanimous
Motion Passed (11-0)
The Voting Session Agenda is Adopted
Attorney Skene commented on the Executive Sessions. He stated last Monday we had a
meeting about a building we’re planning on purchasing and we had an invitation to
Council Members to see the building and a couple of them took us up on that yesterday,
that is the Red Cross building in Hanover. Then todays meeting, we had a meeting
regarding litigation for an action where we’ve been sued and we spoke to insurance counsel
about possibilities of settling that matter and we have a mediation coming up in a couple of
weeks in Federal Court.
Public Comment on Agenda Items
WRITTEN comments are submitted electronically via EMAIL or ZOOM. A copy of the
full written comment for each speaker is posted under the corresponding meeting agenda.
VERBAL comments can be heard in their entirety by accessing the public comment
portion of the meeting recording posted next to the meeting agenda.
Matt Tarr (Harveys Lake) commented Verbally regarding the Anti-Discrimination
Ordinance.
Jinx Leonard (Wilkes-Barre) commented Verbally regarding the Anti-Discrimination
Ordinance.
Morgan Steiner (Jenkins Township) commented Verbally regarding the Anti-Discrimination
Ordinance.
Duane Elders - Rainbow Alliance (Wilkes-Barre) commented Verbally regarding the AntiDiscrimination Ordinance.
Sarah Harris (Dallas) commented Verbally regarding the Anti-Discrimination Ordinance.

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Beth Ann Kolodgie (Nuangola) commented Verbally regarding the Anti-Discrimination
Ordinance.
Carla Bernecker (West Wyoming) commented Verbally regarding the Anti-Discrimination
Ordinance.
Shayla Lovenduski (West Wyoming) commented Verbally regarding the AntiDiscrimination Ordinance.
Tom Nankivell (Luzerne) commented Verbally regarding the Anti-Discrimination Ordinance.
Helen Davis (Mountaintop) commented Verbally regarding the Anti-Discrimination
Ordinance.
Megan Kocher (Plymouth) commented Verbally regarding the Anti-Discrimination
Ordinance.
Jacob Kelley (Nescopeck) commented Verbally regarding the Anti-Discrimination Ordinance
and the Red Cross purchase.
Walter Griffith (Trucksville) commented Verbally regarding speaker times, the AntiDiscrimination Ordinance and the Red Cross purchase.
Andrea Glod (Wilkes-Barre) commented Verbally regarding the Anti-Discrimination
Ordinance.
TJ Fitzgerald (Newport Township) commented Verbally regarding the Anti-Discrimination
Ordinance.
Desiree Edwards (Swoyersville) commented Verbally regarding the Anti-Discrimination
Ordinance.
Joseph John Simons (Kingston) commented Verbally regarding the Anti-Discrimination
Ordinance.
Diane Pocono (Shavertown) commented Verbally regarding the Anti-Discrimination
Ordinance.
Cory Dunn (Hanover Township) commented Verbally regarding the Anti-Discrimination
Ordinance.
Randy Hockman (White Haven) commented Verbally regarding the Anti-Discrimination
Ordinance.
Alyssa Fusaro (Luzerne) commented Verbally regarding the Anti-Discrimination Ordinance.
Ben Herring (Duryea) commented Verbally regarding the Anti-Discrimination Ordinance.
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Lisa Napersky (Mountaintop) commented Verbally regarding the Anti-Discrimination
Ordinance.
Jamie Walsh (Ross Township) commented Verbally regarding the Anti-Discrimination
Ordinance.
Angelina Matthews (Kingston)) commented Verbally regarding the Anti-Discrimination
Ordinance.
Emily Singh (Shickshinny) commented Verbally regarding the Anti-Discrimination
Ordinance.
Melyssa Laureano (Kingston Borough) commented Verbally regarding the AntiDiscrimination Ordinance.
Rick Davis (Black Creek Township) commented Verbally regarding the Anti-Discrimination
Ordinance.
Steve Urban (Kingston Borough) commented Verbally regarding the Anti-Discrimination
Ordinance.
Jay Notartomaso (Pittston) commented Verbally regarding the Anti-Discrimination
Ordinance.
Anthony Gratter (Pittston City) commented Verbally regarding the Anti-Discrimination
Ordinance.
Dave Macekura (Kingston) commented Verbally regarding the Anti-Discrimination
Ordinance.
Mark Rabo (Hazleton) commented Verbally regarding the Anti-Discrimination Ordinance.
OLD BUSINESS
NONE
AGENDA ITEMS
1. Motion to approve the minutes of the May 26, 2026 Voting Meeting
Motion by: Ms. Krushnowski
Second: Ms. Stephenson
Vote:
Eleven (11) Ayes – Unanimous
Motion Passed (11-0)
The May 26, 2026 Voting Session Minutes are Approved

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AGENDA Page 4 of 207

2. Motion to adopt ordinance Establishing County-Wide Non-Discrimination
Requirements for Employment, Housing, Education, Health Care and Public
Accommodations; and Providing for Investigation and Enforcement of Claims of
Discrimination
Motion by: Mr. Belles
Second: Ms. Stephenson
Motion to amend Section 701 – Effective Date to change 30 days to 90 days by: Mr. Sabatino
Second: Ms. Stephenson
Roll Call Vote to Amend:
Seven (7) Yes by Mr. Belles, Ms. Krushnowski, Mr. Sabatino, Ms. Simmons, Ms. Smith,
Ms. Stephenson and Ms. Williams
Four (4) No by Mr. Coslett, Mr. Haas, Mr. Lombardo and Ms. McDermott
Motion Passed (7-4)
Ordinance is Amended
Roll Call Vote to Adopt:
Seven (7) Yes by Mr. Belles, Ms. Krushnowski, Mr. Sabatino, Ms. Simmons, Ms. Smith,
Ms. Stephenson and Ms. Williams
Four (4) No by Mr. Coslett, Mr. Haas, Mr. Lombardo and Ms. McDermott
Motion Passed (7-4)
Ordinance is Adopted
3. Introduction of Ordinance Adopting the 2027 Long-Range Operational, Fiscal and
Capital Plan for Luzerne County
Automatically introduced (no vote required) by County Manager Romilda Crocamo
Mr. Lombardo Disconnected from the Call
4. Motion to adopt resolution Authorizing the County Manager to Execute an
Agreement of Sale Between Luzerne County and the American National Red Cross for
Purchase of Real Property Located at 29 Commerce Boulevard, Hanover Township
Motion by: Ms. Smith
Second: Mr. Sabatino
Roll Call Vote:
Nine (9) Yes – Unanimous
Mr. Lombardo was disconnected.
Mr. Haas was connected but not responsive.
Motion Passed (9-0)
Resolution is Adopted

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AGENDA Page 5 of 207

5. Motion to adopt resolution Declaring a Vacancy on the Luzerne County Farmland
Preservation Board Due to the Resignation of a Member (Yost)
Motion by: Mr. Belles
Second: Ms. Stephenson
Roll Call Vote:
Nine (9) Yes – Unanimous
Mr. Lombardo was disconnected.
Mr. Haas was connected but not responsive.
Motion Passed (9-0)
Resolution is Adopted
6. Motion to adopt resolution Declaring a Vacancy on the Luzerne County Farmland
Preservation Board Due to the Resignation of a Member (Snee)
Motion by: Ms. Krushnowski
Second: Ms. Stephenson
Roll Call Vote:
Nine (9) Yes – Unanimous
Mr. Lombardo was disconnected.
Mr. Haas was connected but not responsive.
Motion Passed (9-0)
Resolution is Adopted
7. Motions regarding ABC Bylaws Template for Luzerne County Authorities, Boards and
Commissions
7a. Motion to remove from Table
Motion by: Mr. Belles
Second: Ms. Stephenson
Roll Call Vote
Nine (9) Yes – Unanimous
Mr. Lombardo was disconnected.
Mr. Haas was connected but not responsive.
Motion Passed (9-0)
Item is Removed from Table
7b. Motion to approve Bylaws Template for Luzerne County Authorities, Boards and
Commissions
Motion by: Mr. Belles
Second: Ms. Stephenson
Roll Call Vote
Ten (10) Yes – Unanimous
Mr. Lombardo was disconnected.
Motion Passed (10-0)
Bylaws Template for Luzerne County Authorities, Boards and Commissions is Approved

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8. Motion to adopt resolution Approving the Allocation of Opioid Settlement Proceeds to
Endless Mountains Extended Care
Motion by: Mr. Coslett
Second: Mr. Belles
Roll Call Vote
Ten (10) Yes – Unanimous
Mr. Lombardo was disconnected.
Motion Passed (10-0)
Resolution is Adopted
9. Motion to adopt resolution Authorizing the Use of Act 13 Marcellus Shale Legacy
Funds to Clean the Courthouse Memorial Statues
Motion by: Ms. Krushnowski
Second: Mr. Belles
Roll Call Vote
Ten (10) Yes – Unanimous
Mr. Lombardo was disconnected.
Motion Passed (10-0)
Resolution is Adopted
Public Comment on Non-Agenda Items:
WRITTEN comments are submitted electronically via EMAIL or ZOOM. A copy of the
full written comment for each speaker is posted under the corresponding meeting agenda.
VERBAL comments, in their entirety, can be heard by accessing the public comment
portion of the meeting recording posted next to the meeting agenda.
Walter Griffith (Trucksville) commented Verbally regarding the Authorities, Boards and
Commissions Bylaws Template, a referendum on the Anti-Discrimination ordinance, Hazleton
Transit and the Manager Report.
Cory Dunn (Hanover Township) commented Verbally using profanities and was escorted out
of the Meeting Room.
Morgan Steiner (Jenkins Township) commented Verbally regarding the Anti-Discrimination
ordinance and YouTube coverage of the Meetings.
Mark Rabo (Hazleton) commented Verbally regarding the Anti-Discrimination ordinance.

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Motion to adjourn: Mr. Belles
Second: Ms. Krushnowski
Vote:
Ten (10) Ayes – Unanimous
Mr. Lombardo was disconnected.
Motion Passed (10-0)
Meeting adjourned at 8:25 PM
Respectfully Submitted,
Sharon Lawrence
Clerk of Council
* Audio of this meeting can be found in its entirety on the County Council webpage
http://www.luzernecounty.org/county/luzerne-county-council or by contacting the Office of the
Clerk of Council at (570) 825-1634 or via email to [email protected]

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AGENDA Page 8 of 207

RESOLUTION R-2026- ______
LUZERNE COUNTY COUNCIL
A Resolution of the Luzerne County Council Committing a Local Match for State Operating
Assistance for the Luzerne County Transportation Authority.

WHEREAS, the Luzerne County Transportation Authority (“LCTA”) has been advised
by the Pennsylvania Department of Transportation it is eligible to receive State Operating
Assistance funds in the amount of $9,225,649 for FY 2026-27; and
WHEREAS, Section 1513 of Title 74 of the Pennsylvania Consolidated Statutes requires
a local match in order for the Luzerne County Transportation Authority to receive State
Operating Assistance Funds; and
WHEREAS, the local match needed for Luzerne County is $915,189; and
WHEREAS, the Luzerne County Transportation Authority requests to receive this local
match in order to receive the State Operating Assistance funds; and
WHEREAS, Luzerne County Council desires to allocate the aforementioned local match
funds to LCTA.
NOW, THEREFORE, BE IT RESOLVED, the Luzerne County Council agrees to
provide local match funds to the Luzerne County Transportation Authority in accordance with
the following payment schedule:
Payment Date

Amount

November 1, 2026
May 1, 2027

$457,594.50
$457,594.50

This Resolution shall become effective 6 days after adoption.
ADOPTED at a meeting of Luzerne County Council held on ________ ___, 2026.
Roll Call:
Ayes:
Nays:
ATTEST:__________________________
Sharon Lawrence, Clerk of County Council

By:_______________________
Jimmy Sabatino, Chair
By:_______________________
Romilda Crocamo, County Manager

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AGENDA Page 10 of 207

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AGENDA Page 11 of 207

RESOLUTION R-2026LUZERNE COUNTY COUNCIL
A Resolution of the Luzerne County Council Committing a Local Match for
State Operating Assistance for the Hazleton Public Transit
WHEREAS, Hazleton Public Transit has been advised by the Pennsylvania Department of
Transportation it is eligible to receive State Operating Assistance funds in the amount of
$3,109,474.00 for FY 2026-27; and
WHEREAS, Section 1513 of Title 74 of the Pennsylvania Consolidated Statutes requires a
local match in order for Hazleton Public Transit to receive State Operating Assistance Funds; and
WHEREAS, the local match needed is $241,267.00; and
WHEREAS, Hazleton Public Transit requests to receive this local match from Luzerne County
in order to receive the State Operating Assistance funds; and
WHEREAS, Luzerne County Council desires to provide Hazleton Public Transit with a local
match in order for them to be eligible to receive State Operating Assistance Funds.
NOW, THEREFORE, BE IT RESOLVED, the Luzerne County Council agrees to provide
local match funds to Hazleton Public Transit in the aggregate amount of $241,267.00 to be
disbursed as follows: $120,633.50 on November 1, 2026 and $120,633.50 on May 1, 2027.
BE IT FURTHER RESOLVED, Luzerne County Council shall send correspondence to the
Commissioners for Carbon and Schuylkill Counties requesting contributions towards the local
match as citizens in both of the aforementioned counties also receive the benefit of public
transportation from Hazleton Public Transit, as well as to the elected state legislators whose
districts are served by Hazleton Public Transit.
This Resolution shall become effective 6 days after adoption.
ADOPTED at a meeting of Luzerne County Council held on ____________, 2026.
LUZERNE COUNTY COUNCIL
ROLL CALL VOTE:
Ayes:
Nays:

By:_____________________________
Jimmy Sabatino, Chair

ATTEST:____________________________
Sharon Lawrence, Clerk of Council
By:___________________________
Romilda Crocamo, Esq.
Luzerne County Manager

Luzerne County Council Voting Session June 23, 2026

AGENDA Page 12 of 207

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AGENDA Page 13 of 207

RESOLUTION R-2026-___
LUZERNE COUNTY COUNCIL
A Resolution by Luzerne County Council Revising the Process in which
Luzerne County Awards Act 13 Marcellus Shale Legacy Funds
WHEREAS, the Marcellus Legacy Fund was created by Act 13 of 2012 to provide for the
distribution of unconventional gas well impact fees to counties, municipalities and
commonwealth agencies.; and
WHEREAS, on June 23, 2015, Luzerne County Council adopted a process and
application form for the selection and award of annual receipts of Act 13 Marcellus Shale
Legacy Fund monies which was subsequently amended; and
WHEREAS, Luzerne County Council has final approval authority for the award of Act
13 Marcellus Shale Legacy Fund monies to applicants through an established process and/or
utilize Act 13 money for internal projects; and
WHEREAS, Luzerne County Council wishes to revise the process and application form
for the award of Act 13 Marcellus Legacy Fund monies received by Luzerne County.
BE IT RESOLVED, the County Council hereby repeals the process adopted by County
Council in 2015 for the selection and award of Act 13 Marcellus Shale Legacy Fund monies to
outside entities and hereby replaces it with the process and application forms attached hereto as
Exhibit ‘A’ and incorporated herein by reference.
This Resolution shall become effective upon adoption.
ADOPTED at a meeting of the Luzerne County Council held on _________ __, 2026.
LUZERNE COUNTY COUNCIL
By:
Jimmy Sabatino, Chair
Attest:
Sharon Lawrence
Clerk to Council

By:_________________________________
Romilda P. Crocamo, County Manager

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AGENDA Page 14 of 207

Luzerne County Act 13 Grant Application
Instructions & Guidlelines

Content Includes:
•
•
•
•
•
•
•
•

Purpose . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . page 2
Eligibility. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . page 3
Request Guidelines . . . . . . . . . . . . . . . . . . . . . page 4
Application Submission Process . . . . . . . . . . page 5
Applicant Responsibility . . . . . . . . . . . . . . . . . page 6
Reporting . . . . . . . . . . . . . . . . . . . . . . . . . . . . . page 6
Application Review Process . . . . . . . . . . . . . . page 7
Timeline. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .page 8

1
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PURPOSE
The Luzerne County Act 13 Grant provides annual financial support for ready-to-go projects in
Luzerne County that advance priorities identified in approved local, regional and/or state
recreation, conservation and land use plans and/or provide programming for and promotion
of the county’s outdoor recreation resources, parks, trails and outdoor events that are free and
offered for the public benefit.
The grants are funded by the county’s annual PA Act 13 Marcellus Legacy Fund allocation. Act
13, signed into law on February 14, 2012, established a drilling “impact fee” on unconventional
gas wells being drilled for the production of natural gas from shale formations (such as the
Marcellus Shale). The Pennsylvania Public Utility Commission (PUC) is responsible for
administering the collection and distribution of the impact fees.
The Marcellus Legacy Fund dollars, part of the revenue generated by the fee, are distributed
annually to all counties based upon their population. These funds can only be used for the
following:
▪

▪

Planning, acquisition, development and repair of greenways, recreational trails,
open space, natural areas, community conservation and beautification projects,
community and heritage parks.
Water resource management.

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AGENDA Page 16 of 207

ELIGIBILITY
A. Who is eligible to request support?
•
•

Municipalities in Luzerne County
Established tax exempt, non-profit organizations status that serve Luzerne County.*

*Organizations claiming non-profit status must provide proof of Non-Profit 501c status – please
submit your current letter of registration with the PA Department of State Bureau of Charitable
Organizations as an attachment.
B. What kind of projects are eligible?
1. Implementation: Ready-to-go projects that will advance or complete priorities identified
in one or more approved local, regional and/or state recreation, conservation and/or land
use plans such as open space, greenway, trail, recreation, watershed or rivers
conservation plans. Applicants will be asked to list and reference the identified plan(s).
Eligible projects can address park and trail improvement, significant maintenance items,
playground and other equipment purchase, green infrastructure improvements,
materials, storm water management techniques, site amenities, riparian buffer
stabilization, in-stream habitat improvements, invasive plant removal and native plant
restoration.
2. Education, Outreach, Promotion: Projects that provide environmental and conservation
education, outreach and/or programming that is free; that have the ability to reach and
serve large numbers of county residents; and that market and promote the county’s
recreation assets locally. Eligible projects can address signage and way-finding; program
provision and materials; efforts to promote the physical; mental and health benefits of
recreation/conservation; promote the use of local recreation resources; and training,
workshop and meeting expenses.

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REQUEST GUIDLEINES
•

The TOTAL COST OF THE PROJECT shall not exceed $40,000.00.

•

There is not a minimum funding request. The funding request is the total cost of the
project.

•

Applicants are limited to one request per year.

•

In order achieve equity, preference will be given to entities who have not received a
prior award or any other funding from the County.

•

Applicants must provide a detailed budget for the project for which they are seeking
support.

•

Projects must be located within Luzerne County and have the capacity to be completed
by December 31, 2027.

•

Approved projects will receive one-half of the funding upon execution of an Award
Letter and Funding Agreement. The second half of the funding will be released upon
completion of the project and submission of Final Reports.

•

Applications must describe how the project is consistent with, or advances, any state,
regional, county, local or municipal recreation plans, trail plans, or other approved
organization plans; specifically the:
Open Space, Greenways and Outdoor Recreation Master Plan for Lackawanna and
Luzerne Counties: http://www.lackawannacounty.org/uploads/final_plan.pdf
OR
DCNR’s PA Statewide Comprehensive Outdoor Recreation Plan 2014-19:
http://www.paoutdoorrecplan.com/cs/groups/public/documents/document/dcnr_2003
0867.pdf;
Please identify the plan(s) and explain how your project supports and/or implements
the recommendations in this/these plan(s). Please provide the plan name, section and
page #(s) of recommendation in the application.

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APPLICATION SUBMISSION PROCESS
ALL Applications are due by CLOSE OF BUSINESS on FRIDAY, AUGUST 28, 2026.
•

The application is available on the Luzerne County ACT 13 Committee Website
https://www.luzernecounty.org/1104/Act-13-Committee

•

The application should be clear and concise.

•

All required supporting documents should be attached.

•

The application can be submitted electronically, by mail or in person.

EMAIL submissions:
• Emailed applications must be received by close of business on Friday, August 28, 2026.
•

Email applications to Sharon Lawrence, Clerk of County Council at:
[email protected].

•

Subject Line should read “ACT13 GRANT - APPLICANT NAME - PROJECT NAME”
Examples:
ACT13GRANT-MARLEYS PLACE-OUTDOOR LIGHTING
ACT13GRANT-LITTLE ROCK TWP-PLAYGROUND
NOTE: The best way to email your application is to put the application
and your attachments in one document and attach it as a PDF.

•

All applicants will receive an email confirmation of receipt of their application.
If you do not receive this email – you will need to contact Sharon Lawrence,
Clerk of County Council by phone at 570-825-1634 to ensure that your application
was received.

MAIL, SHIP or HAND DELIVERY submissions:
• Completed application and required documents may be hand delivered to
Sharon Lawrence, Clerk of County Council, 1st floor, Luzerne County Courthouse
by close of business on Friday, August 28, 2026.
•

Completed application and required documents may be mailed or shipped.
It must have a postmark date of Friday, August 28, 2026

•

Mailed, shipped or hand delivered applications received after this date
will not be considered.

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APPLICANT RESPONSIBILITY
•
•
•
•

Apply for projects that support the purpose of the Luzerne County ACT 13 Grant.
Demonstrate the ability to complete project on time and within budget.
Submit application and all required reports and documentation on time and when
requested.
For non-profit applicants; provide current proof of IRS 501(c) non-profit status; your
letter of registration with the PA Bureau of Charitable Organizations.

REPORTING
1. Quarterly Report:
a. A one page narrative reporting on project and timeline progress
will be due 3 months after initial disbursement of funds and every
3 months thereafter.
2. Final Reports:
a. An explanation of project expenditures as outlined in the approved budget
with proof of payment.
b. A Project Success Story – a template will be provided.

FOR QUESTIONS CALL:

Sharon Lawrence, Clerk of County Council
Phone: 570-825-1634
Email: [email protected]

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AGENDA Page 20 of 207

APPLICATION REVIEW PROCESS
Applications will be ranked on criteria set by a review committee.
Applicants will be ranked based on how well the project:
• Supports and advances the purpose of the Luzerne County ACT 13 Grants.
• Promotes partner collaboration.
• Develops a realistic budget
• Demonstrates that project will have measurable outcomes and be successful.
SCORING

POINTS

1. Applicant Information (not scored)

0

2. PROJECT SUMMARY: PROJECT DESCRIPTION, TIMELINE & PARTNERS
How well does the project support the purpose of the Luzerne County ACT 13 Grant?
Does the project address an identified challenge or need? Does it have the capacity to succeed?
To what extent does the public benefit? How well does this project enhance and improve recreation
and/or conservation in Luzerne County?

15

Does project involve collaboration with other partners?

10

Does the project have the capacity to complete all described activities within the grant timeline?

5

3: INTEGRATION
Is this project consistent with state, regional, local and/or organizational planning priorities?

5

4: PROJECT GOALS, ACTIVITIES AND OUTCOMES
Do the project goals, outcomes and activities support and advance the purpose of the Luzerne County
ACT 13 Grants?
5: BUDGET

5

Budget: Does budget adequately support the stated goals, activities and outcomes of the project?

10

Total Possible Score

50

The review committee reserves the right to request additional proposal information if they feel such
information is crucial to the ranking process.

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TIMELINE
•

May 26, 2026 Amount of funds identified by County Council

•

July 01, 2026 Application availability announced
Applications available on Council page of the Luzerne County website or by
contacting the Clerk of Council

•

August 28, 2026 Application Submission Deadline
Clerk reviews for completeness of application. Application time/date stamped on
page 1 upon receipt of all requested information.
Clerk notifies applicant of receipt of application and/or missing information.

•

July 01, 2026 through August 28, 2026 Applications reviewed by Solicitor
Solicitor receives applications for review of disclosures and conformity
with Act 13 guidelines and notifies Clerk and Committee of findings.

•

September 15, 2026 Applications reviewed by ACT 13 Committee
Committee reviews applications and makes recommendations to Council.

•

October 13th, 2026 Award of grants by Council
Nominations for grants are opened.
Applications must receive a nomination and a second for consideration.
Nominations are closed.
Nominated applications are put to Council vote in the order nominated.
Process continues until available money is awarded.

•

November 01, 2026 Awards Announced & Applicants Notified
Successful applicants receive an award letter and contract for signature and documents
are returned to the Clerk.

•

November 2026 Disbursement of 50% of funds
Upon receipt of signed agreement and award letter.

•

December 2027
Projects completed, final reports submitted and final payments sent

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Luzerne County Act 13 Grant Application 2026-2027
All entered text should be Arial, 12 point, single spaced.

PART 1: APPLICANT INFORMATION AND PROJECT INFORMATION
Applicant Organization:
Address:
Phone:

Fax:

Website:
Are you a:
☐ Municipality
☐ Non-profit organization

Federal ID#:
Are you registered with the PA Department of State Bureau
of Charitable Organizations?
☐ Yes ☐ No

Contact Name:
Title:
Direct Phone:
Email:

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Type of Application:
☐ Implementation
☐ Educational Program, Outreach, Promotion
Project Title:
Total Project Cost:

Have you (your organization or municipality) received prior Act 13 Grant Awards?
☐ Yes ☐ No
If Yes, what year(s)? (with descriptions and amounts)

Have you (your organization or municipality) received any other types of funding from the
County?
☐ Yes ☐ No
If Yes, what year(s)? (with descriptions and amounts)

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PART 2: PROJECT SUMMARY AND TIMELINE
A. Project SUMMARY: Provide a short concise description of your project.
(Please limit to 600 characters)

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B. Project TIMELINE: Please provide a month by month timeline for your project

Expected start date:

Expected end date:

Please provide a SHORT description of activities by month

Nov 2026
Dec 2026
Jan 2027
Feb 2027
Mar 2027
Apr 2027
May 2027
Jun 2027
Jul 2027
Aug 2027
Sep 2027
Oct 2027
Nov 2027
Dec 2027

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PART 3: INTEGRATION:
Describe how your project is consistent with, or advances, any state, regional, county, local or
municipal recreation plans, trail plans or other approved organization plans; specifically the
Open Space, Greenways and Outdoor Recreation Master Plan for Lackawanna and
Luzerne Counties:
http://www.lackawannacounty.org/uploads/final_plan.pdf
OR
DCNR’s Pennsylvania Statewide Comprehensive Outdoor Recreation Plan 2014-19:
http://www.apps.dcnr.state.pa.us/parecplan/parecplan.pdf
Please identify the plan(s) and explain how your project supports and/or implements the
recommendations in this/these plan(s). Please provide the plan name, section and page #(s)
of recommendation.

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PART 4: BUDGET
Proposed Budget: Please provide a total project budget.
EXPENSES: List all expenses related to this project.
Explanation of expenses.

TOTAL
$

TOTALS $

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ADDITIONAL COMMENTS:

FOR QUESTIONS CALL:

Sharon Lawrence, Clerk of County Council
Phone: 570-825-1634
Email: [email protected]

Luzerne County – Administration Only

________ Date Application Received

________ Date Reviewed

________ Date Notified Awarded/Declined

________ Signed Paperwork Received

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RESOLUTION R-2026-_____
LUZERNE COUNTY COUNCIL
A Resolution of Luzerne County Council Approving the Strategic Plan and Five-Year
Financial Plan Prepared by Pennsylvania Economy League
WHEREAS, Luzerne County Council previously authorized a contract with Pennsylvania
Economy League for the preparation of a Strategic Plan and a Five-Year Financial Plan with
approximately one-half of the cost being covered by a Department of Community and Economic
Development (“DCED”) grant; and
WHEREAS, the Pennsylvania Economy League has prepared the Strategic Plan and a
Five-Year Financial Plan and presented same to County Council along with a report; and
WHEREAS, County Council desires to approve the Strategic Plan and a Five-Year
Financial Plan as prepared and presented by Pennsylvania Economy League.
NOW, THEREFORE, BE IT RESOLVED, Luzerne County Council approves the
Strategic Plan and a Five-Year Financial Plan as prepared and presented by Pennsylvania Economy
League which is incorporated by reference as though fully set forth herein.
This Resolution shall become effective immediately.
ADOPTED at a meeting of Luzerne County Council held on __________________, 2026.
LUZERNE COUNTY COUNCIL
ROLL CALL VOTE:
AYESNAYSATTEST:________________________
Sharon Lawrence, Clerk of Council

Luzerne County Council Voting Session June 23, 2026

By:___________________________
Jimmy Sabatino, Chair
By:___________________________
Romilda P. Crocamo,
County Manager

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LUZERNE COUNTY
STRATEGIC MANAGEMENT
PLANNING PROGRAM REPORT
MAY 2026

Pennsylvania Economy League, Central PA, LLC
Camp Hill, PA

Paid for in part by funds from DCED’s

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Executive Summary ..................................................................................................................... 7
Introduction _________________________________________________________________7
Demographics _______________________________________________________________7
Historical Financials, 2020 to 2024 ________________________________________________7
Projections, 2026 to 2030 _______________________________________________________8
Operations __________________________________________________________________9
Facilities ___________________________________________________________________ 10
Labor and Personnel _________________________________________________________ 11
Debt______________________________________________________________________ 12
Observations and Recommendations _____________________________________________ 12
Chapter 1 Government Structure and Demographics .......................................................... 14
Government Overview _______________________________________________________ 14
Demographics ______________________________________________________________ 17
Race and Ethnic Makeup ______________________________________________________ 18
Housing ___________________________________________________________________ 18
Wealth Measurements ________________________________________________________ 19
Chapter 2 General Fund Historical Financials, 2020 to 2024 .............................................. 20
Introduction ________________________________________________________________ 20
Methodology _______________________________________________________________ 21
General Fund Summary _______________________________________________________ 21
Historical Fund Balance _______________________________________________________ 22
Assessed Value and Market Value _______________________________________________ 23
General Fund Revenues By Type ________________________________________________ 26
General Fund Revenues by Division _____________________________________________ 31
Expenditures _______________________________________________________________ 34
Personnel vs. Non-Personnel ___________________________________________________ 34
Expenditures by Type ________________________________________________________ 36
Expenditures by Division ______________________________________________________ 38
Other Luzerne County Funds ................................................................................................... 44
Human Services Fund Revenues ________________________________________________ 44

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Human Services Fund Expenditures _____________________________________________ 46
911 Center Fund ____________________________________________________________ 47
CARES-ARPA Fund _________________________________________________________ 48
Opioid Settlement Fund _______________________________________________________ 48
Community Development Fund_________________________________________________ 49
Hotel Tax Funds ____________________________________________________________ 49
Solid Waste Recycling Fund ____________________________________________________ 50
Chapter 3 Luzerne County Projections, 2026 to 2030 ......................................................... 51
Introduction ________________________________________________________________ 51
Assumptions _______________________________________________________________ 52
Summary __________________________________________________________________ 53
Projected Revenues __________________________________________________________ 54
Projected Expenditures _______________________________________________________ 56
Recommendations ___________________________________________________________ 59
Chapter 4 Luzerne County Operations Report ...................................................................... 63
Introduction ________________________________________________________________ 63
Government Structure ________________________________________________________ 63
County Manager _____________________________________________________________ 64
Division and Personnel Recommendations ________________________________________ 65
General Recommendations ____________________________________________________ 67
Administrative Services Division ________________________________________________ 68
Recommendations ___________________________________________________________ 69
Human Services Division ______________________________________________________ 70
Recommendations ___________________________________________________________ 71
Budget and Finance Division ___________________________________________________ 71
Recommendations ___________________________________________________________ 72
Operational Services Division __________________________________________________ 73
Recommendations ___________________________________________________________ 74
Corrections Division _________________________________________________________ 76
Recommendations ___________________________________________________________ 77

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Judicial Services and Records ___________________________________________________ 78
Recommendations ___________________________________________________________ 79
Office of Law Division _______________________________________________________ 80
Recommendations ___________________________________________________________ 81
Chapter 5 Luzerne County Facilities Review ......................................................................... 82
Introduction ________________________________________________________________ 82
Court System Campus, including the 1906 Luzerne County Courthouse, the Brominski Building
(Family Court) and Central Court ________________________________________________ 83
Brominski Building Family Court Proposal ________________________________________ 84
Additional Court Concerns ____________________________________________________ 85
Human Services Building ______________________________________________________ 86
Penn Place _________________________________________________________________ 87
Operations Building __________________________________________________________ 89
Correctional Facilities _________________________________________________________ 90
Quantitative Data ____________________________________________________________ 91
Movement Summary _________________________________________________________ 95
Key Challenges______________________________________________________________ 96
Recommendations ___________________________________________________________ 96
Chapter 6 Labor and Personnel ............................................................................................... 99
Introduction ________________________________________________________________ 99
Compensation and Legacy Employee Costs ________________________________________ 99
Wage Recommendations _____________________________________________________ 102
Pension Recommendations ___________________________________________________ 104
Health Care Recommendations ________________________________________________ 107
General Labor Recommendations ______________________________________________ 109
Chapter 7 Debt ......................................................................................................................... 118
Overview _________________________________________________________________ 118
General Obligation Debt _____________________________________________________ 119
Credit Rating Update ________________________________________________________ 122
Debt Compared to Select Revenues and Expenditures of the County ___________________ 124
Recommendations __________________________________________________________ 125
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Chapter 8 Observations and Recommendations ................................................................. 130
Introduction _______________________________________________________________ 130
Financial__________________________________________________________________ 131
Debt_____________________________________________________________________ 134
Key Division and Personnel Recommendations ____________________________________ 136
Administration _____________________________________________________________ 137
Human Services ____________________________________________________________ 140
Budget and Finance _________________________________________________________ 142
Operational Services_________________________________________________________ 143
Corrections _______________________________________________________________ 145
Judicial Services ____________________________________________________________ 146
Office of Law ______________________________________________________________ 147
Facilities __________________________________________________________________ 148
Labor and Personnel ________________________________________________________ 152
Appendix .................................................................................................................................... 154

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This Page Intentionally Left Blank.

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Executive Summary
Introduction
In 2025-26, the Pennsylvania Economy League Central Division (PEL) undertook an analysis of the
financial condition of Luzerne County under the Commonwealth’s Strategic Management Planning
Program. The goals of the analysis were to determine the County’s current and future overall
financial condition.
The current analysis involved a review of the County’s financial reports, independent audits, debt
payment schedules, pension obligations, the 2025 and 2026 budgets, other fiscal data, and additional
relevant information and factors that may affect the current and future financial condition of the
County, including sociodemographic data. Furthermore, PEL staff participated in discussions with
County officials.
PEL acknowledges and appreciates the full cooperation of all who contributed to the preparation
of this study, including the Luzerne County elected officials and staff. The analysis could not have
been successfully completed without their assistance.
Demographics
Luzerne County’s population peaked in the 1930s as the region became a coal mining center.
Population sharply declined in the wake of the collapse of coal, stabilizing by the late 20th Century
and slightly gaining in the early 21st Century. The County remains overwhelmingly White. The peaks
of housing construction were prior to 1940 and in the 1970s, meaning a considerable amount of
housing is older and therefore prone to blight.
Luzerne County was compared to four similar counties (Lackawanna, Schuylkill, Northampton and
Westmoreland) and to the state for median household income and median value of an owner
occupied home. Luzerne County was last on the first measure and second to last on the second
measurement.
Historical Financials, 2020 to 2024
Luzerne County demonstrated a record of stable and largely balanced financial operations
throughout the 2020–2024 historical review period. Over these five years, the County maintained
sound fiscal management, recording a single modest operating deficit of less than $2 million in 2024.
Overall performance reflects an organization that consistently aligned revenues and expenditures
while navigating evolving cost pressures.
Personnel expenditures account for just over half of total expenditures, reflecting the labor-intensive
nature of public service delivery. From 2020 to 2024, personnel costs increased by $10.5 million, or
12.5 percent, driven by wage growth, staffing needs, and service demands. Debt service on existing
debt rose by a modest 7.2 percent, remaining within sustainable parameters.

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Operations at the Luzerne County Corrections Facility, accounted for the largest departmental share
of General Fund expenditures after non-departmental costs such as healthcare, pensions, and annual
debt service.
In terms of personnel costs, the County has demonstrated awareness of staffing shortages and
turnover across multiple departments and has identified opportunities to strengthen workforce
stability and efficiency through targeted labor and personnel initiatives.
On the revenue side, the County benefited from a growing property tax base. Property tax revenues
increased by $7.5 million, or 6 percent, between 2020 and 2024 following a measured millage
adjustment in 2023. Property taxes provide approximately 80 percent of General Fund revenues.
Other revenue sources that contribute substantially to operations are reimbursement income
accounting for roughly 10 percent and fee revenue growing steadily from $7.2 million to $8.8 million
over the period.
Luzerne County generated General Fund surpluses in three of the five years between 2020 and 2024,
underscoring its overall fiscal strength. Surpluses peaked in 2021 at $4.8 million before gradually
declining in subsequent years, culminating in a manageable $1.8 million deficit in 2024.
Notably, the largest reported deficit during the period, recorded in 2020, did not reflect structural
imbalance and was primarily attributable to timing differences related to capital expenditures and
proceeds from a prior borrowing.
Looking further back, the County’s fiscal history highlights a significant and sustained recovery
effort. After depleting its General Fund balance in the mid-2000s and early 2010s, Luzerne County
undertook disciplined financial rebuilding throughout the latter part of the 2010s. This effort
culminated in a peak General Fund balance of approximately $37 million in 2019.
As of 2024, audited financial statements indicate a healthy fund balance of approximately $27
million, providing a strong financial cushion and underscoring the County’s long-term commitment
to fiscal responsibility.
Luzerne County’s current assessed value has increased by 5 percent since 2009 and is now
approximately equal to market value, which should reduce assessment appeals. Assessed value was
more than 50 percent higher than market value in 2009 when the County was last reassessed.
Luzerne County’s historical financial performance reflects a steady, disciplined approach to
budgeting and financial management, characterized by balanced operations, improved reserves, and
a progressively stronger revenue base. These trends provide a solid foundation for continued fiscal
sustainability and effective service delivery.
Projections, 2026 to 2030
The projections provide a comprehensive assessment of Luzerne County’s General Fund financial
outlook for 2026 through 2030, using the 2026 adopted budget as the foundation for all revenue and
expenditure assumptions.

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The projections indicate that Luzerne County’s financial position is expected to deteriorate in the
years immediately following 2026, with three consecutive operating deficits. This assumes no tax
increase or no additional revenue sources. This trajectory is driven largely by mounting personnel
costs, particularly employee benefits, which grow by 21.6 percent, and wages that rise 10.4 percent
over the projection period.
Meanwhile, projected revenue growth remains modest at 2.7 percent overall, with increases
concentrated almost exclusively in tax yields and reimbursements. Most other categories remain flat,
based on assumptions, underscoring the County’s heavy reliance on a narrow set of revenue streams
for the General Fund. Again this assumes no tax increase or no additional revenue sourcs.
Departmental expenditures also trend upward, with notable increases in General Government,
Courts, Correctional Services, Judicial Records, and Administrative Services.
The fiscal outlook shifts dramatically in 2030, when a steep decline in debt service obligations
produces an anticipated $7.15 million surplus, reversing the deficit trend not because of changes in
revenue performance or spending discipline, but due to the timing of principal and interest
reductions.
To address these challenges, the chapter recommends a set of targeted financial strategies aimed at
strengthening long-term sustainability. Continuing to maximize interest revenue and managing cash
flows is essential. Recommendations also include reigning in personnel cost growth through
healthcare cost-containment initiatives, staffing efficiency reviews, and shared service models;
expanding and modernizing revenue sources, including fee updates; more aggressive reimbursement
capture; the potential reinstatement of the Act 89 $5 vehicle fee, and exploring PILOT agreements
and a hotel tax increase.
The County should not rely solely on the expected 2030 debt service drop to address future budget
pressures. Instead, it should consider establishing a debt stabilization reserve and enhancing longterm planning through multi-scenario forecasting and stress testing. Additionally, the County is
encouraged to pursue operational efficiencies in high-growth departments and reinforce reserve
levels to protect against unanticipated volatility.
Collectively, these actions provide a roadmap for aligning expenditures with revenues, mitigating
structural deficits, and positioning Luzerne County on a more stable fiscal trajectory beyond 2030.
Operations
Luzerne County continues to carry out its responsibilities within a complex operational environment
shaped by its home rule structure, statutory obligations, and evolving service demands. The County
provides a wide range of services that require coordination across departments, collaboration with
municipalities and regional partners, and careful stewardship of limited resources. In many areas,
existing systems and staff demonstrate adaptability and institutional knowledge that support
continuity of operations.
At the same time, the County faces ongoing challenges that affect efficiency and long-term planning.
These include aging facilities and infrastructure, workforce recruitment and retention pressures,
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compensation limitations, and uneven levels of technological capacity. Addressing these issues is
important not only to maintain current service levels but also to ensure the County can respond
effectively to future needs.
This chapter examines executive branch operations with the goal of identifying both strengths and
areas where improvement may be warranted. It reviews current organizational structures,
administrative practices, and service functions, and considers how existing resources are aligned with
operational demands. The analysis reflects documented conditions and observed practices following
interviews with the County Manager and division heads.
The purpose of this review is to support informed decision-making by County administration and
Council while providing transparency to the public. The observations and recommendations
presented are intended to encourage continued organizational improvement, promote accountability,
and assist in balancing service delivery expectations with fiscal and operational realities.
Facilities
Luzerne County faces a choice between renovating existing facilities and building or purchasing a
new government center as it seeks to modernize facilities that do not meet current needs on a range
of issues. Both options should be weighed in terms of cost, efficiency and functionality.
The County currently owns or leases a wide array of buildings, some of which are not being used to
their fullest potential, while several others are overcrowded. In addition to these space issues, other
facility challenges range from financial and security concerns to ensuring that affinity groups are
located near each other to improve workflow and enhance customer service.
Several facilities, such as the Human Services Building, 111 North Pennsylvania Avenue, WilkesBarre; Penn Place, 20 North Pennsylvania Avenue, Wilkes-Barre; and the Operations Building, 1199
Wyoming Avenue, Wyoming, contain significant amounts of vacant or inefficiently configured
space.
In contrast, the courthouse and court related buildings are often trying to put too many people in
too little space. The situation can become dangerous, such as when offenders and victims are forced
to share close quarters in crowded waiting areas.
The layout and infrastructure of several buildings present challenges. Penn Place and the Human
Services Building are particularly difficult to navigate, creating a poor experience for both staff and
the public.
Security concerns are prevalent, not just at the courts, but also at buildings like Penn Place and in the
parking garage. While historically and architecturally significant and central to County operations,
the courthouse’s age and design complicate maintenance and modernization efforts.
Several departments, such as Community Development, Children and Youth attorneys and fiscal
staff, and Domestic Relations, operate out of leased spaces that may not be cost-effective in the long
term.

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Space considerations have moved to the forefront in part because the County will soon employ at
least one new judge (and possibly more) who will require a courtroom and chambers. That has
sparked discussions to create a dedicated Family Court center, which is currently in the works, along
with improvements to Central Court.
Looking ahead, the County is exploring the development of a new prison facility, with its location
influencing whether the design will be urban or rural. Additionally, there is momentum behind
creating a new division focused on infrastructure, community, and economic development, and
discussion of where that division would best be located.
One potential solution is to develop a modern one-stop shop government center near the river,
which could help revitalize downtown Wilkes-Barre and streamline County operations. This would
entail selling at least two County buildings. The other alternative is to renovate and modernize the
existing buildings, which could be costly and difficult. This facilities review will focus on the spaces
and departments most in need of change.
Labor and Personnel
Luzerne County (“County”) has a sound but guarded fiscal condition, particularly when compared
with its fiscal condition prior to 2020. As noted elsewhere in this report, however, the County has
had increases in personnel costs and debt service over the review period. The growth in the
County’s primary revenue source, real estate taxes, grew but at a pace that lagged far behind the
growth in personnel costs.
Although such a condition is not uncommon for County government in the Commonwealth of
Pennsylvania (the “Commonwealth” or “Pennsylvania”), the County’s real property tax is by far the
largest source of funding. Further, personnel costs account for a majority of the County’s total
general fund expenditures. Personnel costs are largely impacted by the cost of wages and benefits,
particularly healthcare insurance costs, for County employee.
The County employs approximately 1,550 employees, and more than two-thirds of those employees
work in a bargaining unit represented by at least 13 different bargaining representatives (i.e. unions).
Since the County’s non-bargaining unit and bargaining unit employees account for a far greater share
of the County’s budget than any other budget category, personnel costs must be one of the County’s
key areas of focus to control its future costs.
This is particularly important with respect to the provision of health insurance due to the uncertainty
of health care renewals, which already are high and might be on the increase for the foreseeable
future. It is important for the County to maintain a competitive compensation structure and
workplace in order to recruit and maintain the necessary workforce.
The County has been successful in maintaining reasonable and competitive wages and benefits in its
collective bargaining agreements (CBAs) and policies in recent years; however, if the County is to
sustain fiscal health, it is imperative for the County to maintain a focus on and carefully manage
personnel costs. This section of the report will address such issues and provide a menu of options
for the County to consider moving forward. The suggestions in this report will provide the County
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with a blueprint to develop a strategy to control future labor and personnel costs for all of its
employees. It also will address other managerial issues for the County to consider when making such
decisions in the future.
Debt
Luzerne County has demonstrated strong fiscal discipline in managing its outstanding debt and
limiting the long-term burden on County taxpayers, particularly over the past decade. As discussed
throughout the debt chapter, both the total amount of County debt outstanding and the related
annual debt service obligations remain at levels that are considered manageable and appropriate
given the County’s size and financial capacity.
Like many medium-sized counties in Pennsylvania, the County does not maintain staff dedicated
exclusively to long-term debt management. Responsibility for the administration and monitoring of
the County’s debt portfolio rests with the Finance Department, with all debt issuances and any
General Obligation guarantees subject to approval by County Council.
Based on current market interest rates, the terms of the County’s existing debt, and applicable call
provisions, there are no practical opportunities at this time to refinance outstanding obligations for
cost savings. The County’s overall debt levels remain manageable and are modestly lower than in
prior years, primarily as a result of a refunding completed toward the end of 2025.
Observations and Recommendations
Luzerne County faces a combination of fiscal pressures, operational challenges, aging infrastructure,
and workforce capacity issues that collectively threaten long-term stability. The recommendations
outlined across financial management, operations, facilities, human services, and other departments
form a unified roadmap to strengthen the County’s fiscal health, modernize its systems and
infrastructure, and build an effective, sustainable workforce.
Three overarching priorities emerge from the analysis: stabilizing long-term finances, modernizing
infrastructure and technology, and strengthening organizational capacity and workforce
management.
Strengthening long-term fiscal stability is the County’s most urgent priority. Recommendations call
for implementing expenditure-reduction initiatives, addressing personnel cost drivers, diversifying
and updating revenue sources, and maximizing reimbursements. The plan emphasizes the need to
build a sustainable fund balance, formalize the use of one-time revenues, and avoid overreliance on
temporary debt service reductions.
Strengthening long-range forecasting, incorporating credit-rating considerations, and ensuring
recurring revenues support ongoing services will help the County mitigate volatility and avoid
structural deficits. Additional recommendations focus on modest tax adjustments when needed,
reinstituting the Act 89 fee, pursuing PILOT agreements, and maintaining discipline in debt
planning and capital investment.

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The second priority—modernizing infrastructure and technology—acknowledges that current
facilities, systems, and digital capabilities are outdated or inefficient. Key recommendations include
conducting a Countywide space utilization audit, undertaking comprehensive feasibility studies for
renovation or consolidation, and evaluating options for a new modern government center or
reconfigured existing buildings.
Critical emergency and public-safety infrastructure needs are highlighted, particularly planning and
constructing or purchasing a joint Emergency Services facility and updating 911 technology. Across
departments, the County is encouraged to expand digitization efforts, modernize IT hardware and
software, and improve systems related to judicial files, zoning, timekeeping, communications, and
interdepartmental data sharing. These upgrades are essential to service delivery, efficiency, and
long-term cost control.
Finally, strengthening organizational capacity and workforce management is vital to ensuring
effective operations. Many departments report staffing shortages, turnover, compensation
challenges, and training gaps. Recommendations include streamlining hiring processes, adjusting
staffing structures as needed, improving compensation where needed, and strengthening FMLA
oversight to reduce misuse.
Building internal capacity—through succession planning, expanded training programs,
standardization of policies and procedures, and improved HR practices—will support employee
retention, reduce operational disruptions, and enhance overall service performance. The creation of
an Infrastructure, Community, and Economic Development Division, along with new
communications and marketing positions, reflects an emphasis on better coordination, public
engagement, and strategic planning.
Across all areas, the recommendations underscore the need for coordination, documentation, and
long-range planning. Many initiatives can be supported through Strategic Management Planning
Program (STMP) Phase II funding and other state grants, which will be critical to managing costs
while advancing improvements.
Collectively, these actions position Luzerne County to improve financial resilience, modernize its
physical and technological infrastructure, and build a more capable and stable workforce,
establishing a stronger foundation for the County’s long-term success.
.

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Chapter 1
Government Structure and Demographics
In 2025-26, the Pennsylvania Economy League Central Division (PEL) undertook an analysis of the
financial condition of Luzerne County under the Commonwealth’s Strategic Management Planning
Program. The goals of the analysis were to determine the County’s current and future overall
financial condition.
The current analysis involved a review of the County’s financial reports, independent audits, debt
payment schedules, pension obligations, the 2025 and 2026 budgets, other fiscal data, and additional
relevant information and factors that may affect the current and future financial condition of the
County, including sociodemographic data. Furthermore, PEL staff participated in discussions with
County officials.
PEL acknowledges and appreciates the full cooperation of all who contributed to the preparation
of this study, including the Luzerne County elected officials and staff. The analysis could not have
been successfully completed without their assistance.
During this project, PEL:
•
•
•
•
•

Analyzed the County’s financial history from 2020 through 2024 focusing on such factors as
revenues, expenditures, tax base, operating positions, and debt structure.
Examined the historical data and the 2025 and 2026 budgets in relation to ongoing
operations, salary and benefit requirements and other obligations of the County.
Reviewed all tax bases and revenues, major user fees and other revenue sources.
Projected, to the extent possible based on known factors and available data, revenues, and
expenditures for 2026 through 2030 assuming continuation of obligated levels of wages and
operations, existing revenue patterns and other operating trends.
Made recommendations to assist the County in developing and improving its operations,
facilities, labor and personnel, and debt.

Government Overview
Introduction
Municipal governments in Pennsylvania derive their authority from the state constitution and state
law. The Commonwealth recognizes several forms of local government—including counties, cities,
boroughs, and townships—each governed by its own municipal code.
Counties and municipalities may also adopt home rule, which grants broader powers of
self‑governance. Under home rule, a municipality may act in any manner not expressly prohibited by
the U.S. Constitution, the Pennsylvania Constitution, or state law.

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Government Structure
In 2010, Luzerne County voters approved a home rule charter that fundamentally reshaped County
government. The new structure established an elected County council, an appointed County
Manager, and two elected row officers: the district attorney and the controller.
The 11‑member County council serves as the legislative body, responsible for setting policy,
adopting ordinances and resolutions, approving the County budget, and levying taxes. The County
Manager—appointed by the council—oversees executive and administrative functions. The County
Manager directs eight divisions:
•
•
•
•
•
•
•
•

Administrative Services
Budget and Financial Services
Correctional Services
Human Services
Judicial Services and Records
Operational Services
Public Defender
Office of Law

Each division is led by a director, and most contain multiple departments. The judicial system—
operated by elected judges—functions as a separate branch and includes the Court of Common
Pleas, district magistrates, domestic relations, and probation services.

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Location and History
Luzerne County is located in Northeastern Pennsylvania and is bordered by seven counties:
Wyoming (north), Lackawanna (northeast), Monroe (east), Carbon (southeast), Schuylkill (south),
Columbia (west), and Sullivan (northwest). Covering 906 square miles, the County is bisected by the
Susquehanna River, which has historically contributed to significant flooding.
Wilkes-Barre is Luzerne County’s largest city and the County seat. Other cities include Hazleton,
Nanticoke and Pittston. In total, the County has 76 municipalities, making it one of the largest
counties in the state in terms of municipalities and area. Major highways are Interstates 81 and 80,
which provide convenient access to a large portion of the Northeast and Mid-Atlantic portions of
the country.
Established on September 25, 1786, from Northumberland County, Luzerne County later ceded
territory for the creation of Bradford, Lackawanna, Susquehanna, and Wyoming counties between
1810 and 1878. During the 19th and early 20th centuries, Luzerne County thrived as a major
anthracite coal mining center, attracting waves of immigrants whose cultural traditions continue to
shape the region. Like many mining communities, the County experienced population decline and
economic challenges as coal operations closed in the mid-20th century.
Today, the region’s largest employers include major distribution and logistics centers, healthcare
systems, and government agencies. The top five employers are Amazon, the federal government,
Geisinger Wyoming Valley Medical Center, state government, and Chewy. Luzerne County itself is
the ninth largest employer. There are numerous colleges and universities in the County including
Luzerne County Community College, Kings College, Wilkes University, Misericordia University, and
Penn State Hazleton.

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Demographics
Luzerne County’s population peaked in the 1930s as the region became a coal mining center.
Population sharply declined in the wake of the collapse of coal, stabilizing by the late 20th Century
and slightly gaining in the early 21st Century. The County remains overwhelmingly White. The peaks
of housing construction were prior to 1940 and in the 1970s, meaning a considerable amount of
housing is older and therefore prone to blight.
Luzerne County was compared to four similar counties (Lackawanna, Schuylkill, Northampton and
Westmoreland) and to the state for median household income and median value of an owner
occupied home. Luzerne County was last on the first measure and second to last on the second
measurement.
Introduction
Historical data from this section has been drawn from the U.S. Census and the five-year American
Community Survey (ACS). Data from 2023 is from the ACS. For details on how the ACS differs
from the U.S. Census, go to https://www.census.gov/programs-surveys/acs/about/acs-andcensus.html
Population
Luzerne County’s population peaked in 1930 at 445,109 and then began to drop with the steepest
declines in 1950 and 1960, when the population fell by approximately 100,000 residents. Population
continued to slowly decline until the 21st Century, when it stabilized and rose slightly. Population in
2020 was 325,594.
Figure 1.1 Luzerne County Historical Population, 1790 to 2020
500,000
450,000
400,000
350,000
300,000
250,000
200,000
150,000
100,000
50,000
0

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Race and Ethnic Makeup
The majority of Luzerne County’s 325,594 residents counted in the 2020 Census identify as White
only (257,042), compared to Black only (16,226) or Asian only (4,070). The remainder identified as
Other or more than one race. In addition, 46,898 residents identified as Hispanic or Latino of any
race.
Figure 1.2 Luzerne County Historical Population, 2020
300,000
250,000
200,000
150,000
100,000
50,000
0

White Alone

Black Alone

Asian Alone

Hispanic or Latino

Housing
Age of Housing
Thirty percent of Luzerne County’s housing units were built prior to 1930, while approximately 16
percent were built from 1970 to 1979, representing the two peaks of housing construction. Older
housing units, particularly where reinvestment has been limited, may be more susceptible to blight
and can exhibit lower property values relative to newer housing stock.
Figure 1.3 Luzerne County Age of Housing Stock,
        Built 1939 or earlier
        Built 1940 to 1949
        Built 1950 to 1959
        Built 1960 to 1969
        Built 1970 to 1979
        Built 1980 to 1989
        Built 1990 to 1999
        Built 2000 to 2009
        Built 2010 to 2019
        Built 2020 or later
0

5000

10000

15000

20000

25000

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35000

40000

45000

50000

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Wealth Measurements
Wealth measurements compare Luzerne County to four similar counties, Lackawanna,
Northampton, Schuylkill, Westmoreland and to the state of Pennsylvania. Luzerne County ranked
lowest in terms of median household income and near the bottom for median value of an owner
occupied homes.
Table 1.4 Median household income and median value of an owner occupied home, 2024
Median Household
Income

Population

Median Value of an
Owner Occupied Home

Luzerne

331,379

$63,691

$174,100

Lackawanna

216,859

66,223

201,800

Northampton

322,989

89,184

308,600

Schuylkill

144,523

68,313

153,000

Westmoreland

350,935

74,109

203,500

—

77,545

254,500

State

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Chapter 2
General Fund Historical Financials, 2020 to 2024
Introduction
Luzerne County demonstrated a record of stable and largely balanced financial operations
throughout the 2020–2024 historical review period. Over these five years, the County maintained
sound fiscal management, recording a single modest operating deficit of less than $2 million in 2024.
Overall performance reflects an organization that consistently aligned revenues and expenditures
while navigating evolving cost pressures.
Personnel expenditures account for just over half of total expenditures, reflecting the labor-intensive
nature of public service delivery. From 2020 to 2024, personnel costs increased by $10.5 million, or
12.5 percent, driven by wage growth, staffing needs, and service demands. Debt service rose by a
modest 7.2 percent, remaining within sustainable parameters.
Corrections functions, including operations at the Luzerne County Corrections Facility, accounted
for the largest departmental share of General Fund expenditures after non-departmental costs such
as healthcare, pensions, and annual debt service.
In terms of personnel costs, the County has demonstrated awareness of staffing shortages and
turnover across multiple departments and has identified opportunities to strengthen workforce
stability and efficiency through targeted labor and personnel initiatives.
On the revenue side, the County benefited from a growing property tax base. Property tax revenues
increased by $7.5 million, or 6 percent, between 2020 and 2024 following a measured millage
adjustment in 2023. Property taxes provide approximately 80 percent of General Fund revenues.
Other revenue sources that contribute substantially to operations are reimbursement income
accounting for roughly 10 percent and fee revenue growing steadily from $7.2 million to $8.8 million
over the period.
Luzerne County generated General Fund surpluses in three of the five years between 2020 and 2024,
underscoring its overall fiscal strength. Surpluses peaked in 2021 at $4.8 million before gradually
declining in subsequent years, culminating in a manageable $1.8 million deficit in 2024.
Notably, the largest reported deficit during the period, recorded in 2020, did not reflect structural
imbalance and was primarily attributable to timing differences related to capital expenditures and
proceeds from a prior borrowing.
Looking further back, the County’s fiscal history highlights a significant and sustained recovery
effort. After depleting its General Fund balance in the mid-2000s and early 2010s, Luzerne County
undertook disciplined financial rebuilding throughout the latter part of the 2010s. This effort
culminated in a peak General Fund balance of approximately $37 million in 2019.
As of 2024, audited financial statements indicate a healthy fund balance of approximately $27
million, providing a strong financial cushion and underscoring the County’s long-term commitment
to fiscal responsibility.
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Luzerne County’s current assessed value has increased by 5 percent since 2009 and is now
approximately equal to market value, which should reduce assessment appeals. Assessed value was
more than 50 percent higher than market value in 2009 when the County was last reassessed.
Luzerne County’s historical financial performance reflects a steady, disciplined approach to
budgeting and financial management, characterized by balanced operations, improved reserves, and
a progressively stronger revenue base. These trends provide a solid foundation for continued fiscal
sustainability and effective service delivery.
Methodology
PEL compiled this historical review of the County’s financials through analysis of year-end financial
reports, independent audits, annual budgets, salary and benefit data, pension obligations and other
financial obligations, as well as interviews with County officials. The historical review concentrates
on the General Fund.
General Fund Summary
Luzerne County experienced surpluses in three out of the five years during the historical review
period from 2020 to 2024, with the most significant deficit in 2020; however, the 2020 deficit was
offset by borrowing that occurred the prior year. When the transfer covered by prior year borrowing
is removed, the County ends 2020 with an almost $2.3 million surplus. (See Table 2.1)
In 2019, the County obtained a $33.3 million General Obligation (GO) Note to refinance prior year
bonds and to pay for 2020 capital expenditures including a $21.1 million 911 project and $1.4
million for voting machines. Generally, the County has not accrued new debt during the historical
review period1.
In 2021, the County finished with a surplus of $4.8 million and then recorded declining surpluses in
2022 and 2023, ending the historical review period in 2024 with an almost $1.9 million deficit. The
County’s balance in the General Fund was sufficient to absorb the 2024 deficit.
Revenues steadily increased from 2022 through 2024 by approximately $10 million. Expenditures
fluctuated, peaking in 2020 due to capital expenditures, falling by roughly $24 million in 2021 and
then growing to $168.5 million in 2024.

1 For additional information on the County’s debt position, see Chapter 7.

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Table 2.1 Revenues, Expenditures, and Surplus/Deficit, 2020 to 2024
2020 Actuals

2021 Actuals

2022 Actuals

2023 Actuals

2024 Actuals

Revenues

156,913,788

154,815,938

155,918,943

159,300,486

166,637,961

Expenditures

174,353,636

150,006,612

153,221,187

157,660,652

168,513,579

Surplus/(Deficit)

-17,439,848

4,809,326

2,697,756

1,639,834

-1,875,618

911 Capital Funds Transfer

19,700,000

0

0

0

0

Adjusted Surplus/(Deficit)

2,260,152

4,809,326

2,697,756

1,639,834

-1,875,618

Less:

Figure 2.1 Revenues, Expenditures and Adjusted Surplus/Deficit, 2020 to 2024
200,000,000
150,000,000
100,000,000
50,000,000
0

2020 Actuals

2021 Actuals

2022 Actuals

2023 Actuals

2024 Actuals

-50,000,000
Revenues

Expenditures

Surplus/(Deficit)

Adjusted Surplus/(Deficit)

Historical Fund Balance
Based on the annual audit reports, Luzerne County experienced a stretch of three years from 2012
to 2014 when its balance in the General Fund was depleted by annual deficits. The trend began to
reverse in 2015 when the County recorded a string of annual surpluses that replenished the fund
balance.
The fund balance peaked in 2019 when the borrowing occurred and declined in 2020 when GO
Note proceeds were used for projects. The black line in the graph below adjusts the fund balance of
the $21.1 million borrowed in 2019 used for the 911 center and voting machines in 2020. Surpluses
from 2021 to 2023 increased the fund balance to $28.8 million, dropping to $27.0 million in 2024.
According to the 2024 Audit, the County had $16,935,176 in cash and equivalents. Best practice is to
maintain two to three months of revenues/expenditures in the fund balance to provide for tax
anticipation, delayed state and federal funding and other potential fiscal needs.

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Figure 2.2 Surplus Deficit and Fund Balance, 2012 to 2024
40,000,000

30,000,000

20,000,000

10,000,000

0

-10,000,000

-20,000,000

-30,000,000

2012
Audit

2013
Audit

Fund Balance

2014
Audit

2015
Audit

2016
Audit

Surplus/Deficit

2017
Audit

2018
Audit

2019
Audit

2020
Audit

Adjusted Surplus/Deficit

2021
Audit

2022
Audit

2023
Audit

2024
Audit

Adjusted Fund Balance

Assessed Value and Market Value
The value of Luzerne County property as determined by the County’s assessment office increased by
almost $19 billion in 2009 when the County was last reassessed and is now over $20 billion,
approximately equal to market value as determined by the State Tax Equalization Board (STEB).
The 2009 assessed value was 160.5 percent of STEB market value. Assessed value has grown by 5
percent since 2009, with much of that increase from 2021 to 2024. Meanwhile, market value
increased by almost 70 percent during the same time period.
Low assessment growth results in the inability of real estate taxation to keep up with inflation absent
tax millage increases. On the other hand, assessed value that is above market value often results in
appeals.

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The Center for Rural Pennsylvania, which is a legislative agency of the Pennsylvania General
Assembly (the “Center”), published a scholarly study entitled “Pennsylvania County Property
Reassessment: Impact on Local Government Finances and the Local Economy.” 2
In its study the Center found that an increase in the years since the last Countywide reassessment
leads to a decrease in the amount of tax revenue generated per mill, and that the decrease was
greater for rural counties. Further, the Center found that as the years since reassessment increase,
the County property tax system becomes more inequitable. The Center recommended that
reassessment occurs at intervals of no less than every four years.
Table 2.2 Assessed Value vs. Market Value, 2008 to 2024

Year

Market Value

Change

%
Change

Assessed
Value

Change

%
Change

Ratio of
Assessed
To Market
Value

2008

12,137,522,304

2009

12,303,731,562

166,209,259

1.4

19,751,974,203

18,946,432,852

2,352.0

160.5%

2010

13,814,672,697

1,510,941,134

12.3

19,559,281,300

-192,692,903

-1.0

141.6%

2011

13,911,610,183

96,937,487

0.7

19,615,675,100

56,393,800

0.3

141.0%

2012

14,903,252,764

991,642,580

7.1

19,566,771,400

-48,903,700

-0.2

131.3%

2013

14,891,923,534

-11,329,230

-0.1

19,553,146,500

-13,624,900

-0.1

131.3%

2014

15,619,069,728

727,146,194

4.9

19,648,011,100

94,864,600

0.5

125.8%

2015

15,618,258,965

-810,762

0.0

19,644,882,200

-3,128,900

0.0

125.8%

2016

16,090,683,375

472,424,410

3.0

19,600,801,400

-44,080,800

-0.2

121.8%

2017

16,332,844,486

242,161,111

1.5

19,844,416,300

243,614,900

1.2

121.5%

2018

17,127,179,615

794,335,129

4.9

20,261,089,400

416,673,100

2.1

118.3%

2019

17,094,308,075

-32,871,540

-0.2

20,219,267,300

-41,822,100

-0.2

118.3%

2020

17,535,131,446

440,823,371

2.6

20,183,166,100

-36,101,200

-0.2

115.1%

2021

17,602,445,833

67,314,387

0.4

20,268,904,200

85,738,100

0.4

115.1%

2022

19,144,137,320

1,541,691,487

8.8

20,514,229,600

245,325,400

1.2

107.2%

2023

19,412,481,619

268,344,299

1.4

20,662,245,080

148,015,480

0.7

106.4%

2024

20,781,580,790

1,369,099,171

7.1

20,743,590,480

81,345,400

0.4

99.8%

8,477,849,228

68.9

991,616,277

5.0

565,189,949

3.6

66,107,752

0.3

Change 2009 - 2024
Average

805,541,351

Value of 1.0mill

20,743,590

Value of 1.0mill @ 90%

18,669,231

6.6%

2 Weber, et. al. “Pennsylvania County Property Reassessment: Impact on Local Government Finances and the Local Economy.” The

Center for Rural Pennsylvania. November 2010,
https://www.rural.palegislature.us/documents/reports/County_reassessment_2010.pdf
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Millions

Figure 2.3 Luzerne County Assessed Value vs. Market Value, 2008 to 2023
$25,000

$20,000

$15,000

$10,000

$5,000

$0

2008 2009 2010 2011 2012 2013 2014 2015 2016 2017 2018 2019 2020 2021 2022 2023
Market Value

Assessed Value

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General Fund Revenues By Type
Tax Revenue
Luzerne County’s most productive and stable revenue source is property taxes, which account for
approximately 80 percent of total General Fund revenues. The property tax rate increased from
6.1696 mills in 2020 through 2022 to 6.3541 mills in 2023, with revenue collections increasing by
$7.5 million in 2024 compared to 2020.
Reimbursements
Reimbursements, the second largest revenue source at roughly 10 percent, fell by $2.9 million from
2020 to 2021, and then fluctuated, ending down by 8.3 percent in 2024 compared to 2020.
Reimbursements are generally made by state and federal sources to pay for various County operating
expenditures. These expenditures support services that are provided to County residents and
businesses, including related employee personnel costs like health insurance.
The largest reimbursement source by category is Expense Reimbursements that are from multiple
divisions including Budget and Finance, Courts, Corrections, Solicitor, DA, Administrative Services,
General Government, Operational Services, Public Defender and Judicial Records, followed by
health care reimbursements for employees and agencies. (See Table 2.5)
Fees
Fees paid by the public for a variety of services provided by Luzerne County contributed
approximately 5 percent to total revenues, rising from a low of $7.2 million in 2020 during the
COVID-19 pandemic to a high of $8.8 million in 2024, a growth of 22.3 percent. (See Table 2.5)
The four largest sources of fees in order by department are the Recorder of Deeds, District Justice
Courts, Prothonotary, and Assessor. These four sources provided $5.5 million in fee revenue to the
General Fund in 2024.
Other General Fund revenue sources accounted for less than 1 percent annually of total General
Fund revenues.

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Table 2.3 General Fund Total Revenues, 2020 to 2024
Change 2020-24
2020 Actuals

2021 Actuals

2022 Actuals

2023 Actuals

2024 Actuals

$

124,018,400

126,146,122

127,064,163

131,083,930

131,540,519

7,522,119

6.1

Federal Grants

997,013

791,059

1,042,067

779,154

3,773,315

2,776,302

278.5

State Grants

1,256,736

1,082,015

753,339

1,194,010

1,448,700

191,964

15.3

Fees

7,203,762

8,554,541

8,141,946

7,838,681

8,808,690

1,604,928

22.3

Fines

592,828

607,705

617,912

403,913

518,799

-74,030

-12.5

Interest

57,411

217

1,923

464,444

564,943

507,531

884.0

Rent

856,790

916,124

1,081,454

583,335

513,242

-343,548

-40.1

Other

2,593,097

275,341

546,820

1,071,742

2,426,203

-166,894

-6.4

Reimbursements

18,464,562

15,589,753

16,531,063

15,766,253

16,934,122

-1,530,440

-8.3

Proceeds

8,498

4,774

22,620

302

0

-8,498

-100.0

Transfers

864,690

848,287

115,635

114,722

109,429

-755,261

-87.3

156,913,788

154,815,938

155,918,943

159,300,486

166,637,961

9,724,173

6.2

Taxes

79.0

81.5

81.5

82.3

78.9

Federal Grants

0.6

0.5

0.7

0.5

2.3

State Grants

0.8

0.7

0.5

0.7

0.9

Fees

4.6

5.5

5.2

4.9

5.3

Fines

0.4

0.4

0.4

0.3

0.3

Interest

0.0

0.0

0.0

0.3

0.3

Rent

0.5

0.6

0.7

0.4

0.3

Other

1.7

0.2

0.4

0.7

1.5

Reimbursements

11.8

10.1

10.6

9.9

10.2

Proceeds

0.0

0.0

0.0

0.0

0.0

Transfers

0.6

0.5

0.1

0.1

0.1

100.0

100.0

100.0

100.0

100.0

Taxes

Total Revenue

Total Revenue

%

Table 2.4 General Fund Total Taxes, 2020 to 2024
Change 2020-24
Taxes
Real Estate Taxes
Hotel Room Rental Tax
Real Estate Transfer
Total Taxes

3

2020 Actuals

2021 Actuals

2022 Actuals

2023 Actuals

2024 Actuals

$

%

123,717,225

125,680,388

126,579,628

130,658,900

131,100,397

7,383,172

6.0

41,472

68,082

80,139

82,237

72,457

30,984

74.7

259,703

397,652

404,396

342,793

367,665

107,963

41.6

124,018,400

126,146,122

127,064,163

131,083,930

131,540,519

7,522,119

6.1

3 See Other Funds below for full information on the Hotel Room Rental Tax, which is mostly recorded in another fund.

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Table 2.5 General Fund Reimbursements by Type, 2020 to 2024
Change 2020-24
2020
Actuals

2021
Actuals

2022
Actuals

2023
Actuals

2024
Actuals

$

%

CARES Reimbursement

758,450

709

0

0

28,599

-729,851

-96.2

Divorce Master Revenues

55,075

75,925

84,125

73,100

85,349

30,274

55.0

Expense Reimbursement

5,820,061

3,427,489

4,417,558

4,801,451

5,430,707

-389,354

-6.7

Health Care
Reimbursement (Agencies)

4,842,645

4,820,886

4,589,146

3,945,017

3,545,460

-1,297,185

-26.8

Health Care
Reimbursement
(Employees)

3,151,963

3,368,755

3,585,165

3,522,608

3,373,884

221,921

7.0

Indirect Cost Allocation
Reimbursement

1,042,969

852,656

958,393

591,696

1,634,830

591,861

56.7

Inmate Medical Copayment

2,343

2,630

2,281

3,082

4,526

2,183

93.2

Salary Expense
Reimbursement

24,264

25,124

24,460

23,201

25,997

1,733

7.1

Social Security Checks

1,200

6,300

10,200

400

200

-1,000

-83.3

2,753,577

3,000,004

2,850,000

2,800,000

2,800,000

46,423

1.7

State Reimbursed Juror
Compensation

6,908

9,275

9,735

5,697

4,568

-2,340

-33.9

Workers Comp
Reimbursement

5,106

0

0

0

0

-5,106

-100.0

18,464,562

15,589,753

16,531,063

15,766,253

16,934,122

-1,530,440

-8.3

Special Expense
Reimbursement

Total Reimbursements

Table 2.6 General Fund Fees by Type, 2020 to 2024
Change
2020-2024
$

%

305,638

-14,868

-4.6

332,756

341,248

65,729

23.9

855,517

799,988

84,863

11.9

2020 Actuals

2021 Actuals

2022 Actuals

2023 Actuals

2024 Actuals

Civil Fees

320,506

276,767

256,070

288,589

Commissions

275,519

348,217

371,396

Fees For Service

715,125

754,408

837,442

License & Permits

378,925

442,056

406,322

410,214

439,046

60,121

15.9

Other

3,883,716

4,683,084

4,343,006

4,360,720

4,892,453

1,008,736

26.0

PILOTS

148,053

163,540

162,898

259,324

514,952

366,899

247.8

1,049,417

1,305,642

1,149,094

930,637

1,027,680

-21,736

-2.1

Reimbursements

56,433

62,252

53,528

63,926

56,823

390

0.7

Writs

54,144

47,981

59,374

55,788

40,979

-13,165

-24.3

Zoning

321,923

470,595

502,815

281,210

389,883

67,960

21.1

7,203,762

8,554,541

8,141,946

7,838,681

8,808,690

1,604,928

22.3

Real Estate

Total Fees

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May 2026

Table 2.7 General Fund Revenue by Type and Source, 2020 to 2024
Change 2020-24
Federal Grants

$

%

2020 Actuals

2021 Actuals

2022 Actuals

2023 Actuals

2024 Actuals

0

109,611

0

-23,900

0

0

0.0

321,258

281,773

293,973

284,272

2,798,743

2,477,485

771.2

225

0

0

0

0

-225

-100.0

0

0

50,000

50,000

0

0

0.0

Administrative Services

343,741

0

165,415

395

25,000

-318,741

-92.7

Correctional Services

42,056

0

267,347

0

752,187

710,131

1688.5

Operational Services

274,006

399,674

265,333

350,603

315,168

41,162

15.0

Judicial Records

15,727

0

0

0

0

-15,727

-100.0

0

0

0

117,784

-117,784

-117,784

-100.0

997,013

791,059

1,042,067

779,154

3,773,315

2,776,302

278.5

General Government
District Attorney
Courts
Budget and Finance

Reserve for Contingencies
Total

Change 2020-24
State Grants

2020 Actuals

2021 Actuals

2022 Actuals

2023 Actuals

2024 Actuals

$

%

District Attorney

500,676

458,799

551,088

671,460

757,172

256,496

51.2

Courts

69,304

55,438

36,181

48,719

49,196

-20,108

-29.0

Budget and Finance

218,972

225,462

110,461

331,457

436,994

218,022

99.6

Administrative Services

262,478

0

0

0

70,101

-192,377

-73.3

Correctional Services

64,443

1,096

3,556

91,309

8,528

-55,915

-86.8

Operational Services

118,356

331,219

32,055

33,065

39,709

-78,647

-66.4

Judicial Records

22,507

10,000

20,000

18,000

20,000

-2,507

-11.1

Public Defender

0

0

0

0

67,000

67,000

100.0

1,256,736

1,082,015

753,339

1,194,010

1,448,700

191,964

15.3

Total

Change 2020-24
Fees

2020 Actuals

2021 Actuals

2022 Actuals

2023 Actuals

2024 Actuals

$

%

District Attorney

122,767

146,383

188,524

191,755

299,655

176,888

144.1

Courts

943,389

1,089,027

1,060,123

1,175,031

1,376,249

432,859

45.9

1,414,770

1,756,257

1,564,052

1,419,936

1,730,362

315,592

22.3

Administrative Services

108,671

122,178

119,619

127,446

121,858

13,188

12.1

Correctional Services

252,830

253,361

332,497

344,376

297,942

45,112

17.8

Operational Services

321,923

470,595

502,815

281,210

389,883

67,960

21.1

Judicial Records

4,036,569

4,714,925

4,371,017

4,295,304

4,592,347

555,778

13.8

Public Defender

2,843

1,815

3,301

3,623

394

-2,449

-86.1

7,203,762

8,554,541

8,141,946

7,838,681

8,808,690

1,604,928

22.3

Budget and Finance

Total

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Change 2020-24
Fines

2020 Actuals

2021 Actuals

2022 Actuals

2023 Actuals

2024 Actuals

$

%

District Attorney

12,831

14,847

9,701

8,955

15,148

2,318

18.1

Courts

508,365

523,270

514,833

334,075

357,329

-151,036

-29.7

Correctional Services

4,422

5,065

5,067

2,477

274

-4,148

-93.8

Judicial Records

67,211

64,524

88,311

58,406

146,047

78,837

117.3

Total

592,828

607,705

617,912

403,913

518,799

-74,030

-12.5

Change 2020-24
Reimbursements

2020 Actuals

2021 Actuals

2022 Actuals

2023 Actuals

2024 Actuals

$

%

7,994,608

8,203,620

8,174,822

7,467,625

7,181,550

-813,058

-10.2

323,088

315,154

637,222

993,931

636,927

313,839

97.1

Courts

4,505,996

4,614,095

5,354,920

5,204,495

4,866,399

360,403

8.0

Solicitor

47,543

15,988

1,415

165,039

693,354

645,810

1358.4

Budget and Finance

1,801,419

853,365

958,393

591,696

1,663,429

-137,990

-7.7

Administrative Services

2,596,838

525,087

619,071

601,783

440,878

-2,155,959

-83.0

Correctional Services

334,807

340,194

343,745

334,746

850,596

515,789

154.1

Operational Services

147,251

207,629

43,363

44,828

264,759

117,509

79.8

Judicial Records

453,629

188,395

122,112

86,110

164,424

-289,205

-63.8

Public Defender

259,382

326,225

276,000

276,000

171,804

-87,578

-33.8

18,464,562

15,589,753

16,531,063

15,766,253

16,934,122

1,530,440

-8.3

General Government
District Attorney

Total

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General Fund Revenues by Division
Budget and Finance
Over 80 percent of total revenues by division are recorded in Budget and Finance, primarily real
estate tax revenue.
Figure 2.4 General Fund Revenue by Division

2024 Actuals
Budget and Finance
General Government
Courts
Judicial Records
District Attorney
Operational Services
Correctional Services
County Reserve Fund
Solicitor
Administrative Services
Public Defender
$-

$40,000,000

$80,000,000

$120,000,000

$160,000,000

General Government
General Government contributes approximately 5 percent of total revenues, mostly through agency
and employee health care reimbursements. This category peaked in 2021 at $8.3 million and has
declined since to end 2024 down by 10.2 percent compared to 2020.
Courts
Courts, at just under 5 percent of total revenues, include reimbursements to the District Justice
Courts, Domestic Relations, Probation and the court system; fees from District Justice Courts and
Probation; probation fines; and various state and federal grants for Probation and the court system.
The largest revenue in this category is Domestic Relations reimbursements, which are approximately
$2.7 million annually. Court revenue increased from 2021 to 2023 and then fell in 2024 to 2020
levels of $6.8 million.
Judicial Records
Judicial records revenues are primarily fees from Recorder of Deeds, Coroner, Prothonotary, and
Sheriff and are just over 3 percent of total revenues. These revenues fluctuated with activity but
were 8.1 percent higher in 2024 ($5.3 million) than in 2020 ($4.9 million).

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District Attorney
Funds from the District Attorney’s Office were $3.2 million higher in 2024 than in 2020 mostly
because of a one-time U.S. Department of Justice grant received by the division.
Correctional Services
Correctional services revenue grew in 2024 because of one-time pandemic mitigation funds received
that year and a U.S. Department of Justic grant, as well as higher reimbursement revenue. Revenue
was $1.9 million in 2024 compared to $883,311 in 2023.
Administrative Services
Administrative Services revenues were significantly higher in 2020 than the rest of the historical
review period mainly because of a large reimbursement ($1.7 million) and grants for the Elections
Bureau in connection with the 2020 presidential election. Total revenue in 2024 was $665,212.
County Reserve Fund
The County received $28 million in 2020 from the CARES Act to support various COVID-19
related expenses, including grants for small businesses, municipalities and non-profits, as well as
public health initiatives. Of that amount, $2.25 million was put in the County Reserve Fund.
Figure 2.5 General Fund Revenue by Division Minus Budget and Finance Revenue

2024 Actuals
General Government
Courts
Judicial Records
District Attorney
Operational Services
Correctional Services
County Reserve Fund
Solicitor
Administrative Services
Public Defender
$0

$1,000,000 $2,000,000 $3,000,000 $4,000,000 $5,000,000 $6,000,000 $7,000,000 $8,000,000

PENNSYLVANIA ECONOMY LEAGUE

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May 2026

Table 2.8 General Fund Revenues by Department, 2020 to 2024
Change 2020 to 2024
2020 Actuals

2021 Actuals

2022 Actuals

2023 Actuals

2024 Actuals

$

%

General Government

7,994,608

8,313,631

8,174,822

7,443,755

7,181,550

-813,058

-10.2

District Attorney

1,280,620

1,216,957

1,680,507

2,160,927

4,507,646

3,227,026

252.0

Courts

6,865,313

7,066,204

7,048,176

7,197,370

6,826,873

-38,440

-0.6

47,543

15,988

1,415

165,039

693,354

645,810

1358.4

128,191,899

129,588,679

130,790,947

134,293,228

136,200,517

8,008,618

6.2

Administrative Services

3,312,106

648,901

905,816

744,713

665,212

-2,646,894

-79.9

Correctional Services

710,806

600,016

953,317

883,311

1,910,146

1,199,340

168.7

Operational Services

985,968

1,435,639

854,398

750,685

2,269,375

1,283,407

130.2

Judicial Records

4,939,144

5,503,594

5,114,610

4,888,486

5,341,448

402,303

8.1

Public Defender

262,224

328,040

279,301

279,623

239,198

-23,027

-8.8

Retirement

64,690

98,287

115,635

114,722

109,429

44,739

69.2

Solicitor
Budget and Finance

Reserve for Contingencies

0

0

0

117,784

-117,784

-117,784

-100.0

2,258,865

0

0

260,845

810,997

-1,447,868

-64.1

156,913,788

154,815,938

155,918,943

159,300,486

166,637,961

9,724,173

6.2

General Government

5.1

5.4

5.2

4.7

4.3

District Attorney

0.8

0.8

1.1

1.4

2.7

Courts

4.4

4.6

4.5

4.5

4.1

Solicitor

0.0

0.0

0.0

0.1

0.4

Budget and Finance

81.7

83.7

83.9

84.3

81.7

Administrative Services

2.1

0.4

0.6

0.5

0.4

Correctional Services

0.5

0.4

0.6

0.6

1.1

Operational Services

0.6

0.9

0.5

0.5

1.4

Judicial Records

3.1

3.6

3.3

3.1

3.2

Public Defender

0.2

0.2

0.2

0.2

0.1

Retirement

0.0

0.1

0.1

0.1

0.1

Reserve for Contingencies

0.0

0.0

0.0

0.1

-0.1

County Reserve Fund

1.4

0.0

0.0

0.2

0.5

100.0

100.0

100.0

100.0

100.0

County Reserve Fund
Total

Total

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May 2026

Expenditures
Personnel vs. Non-Personnel
Over half of total County expenditures are related to personnel costs, while roughly 13 percent is
non-personnel expenditures. Personnel costs have risen by 12.5 percent or $10.5 million from 2020
to 2024, the largest absolute increase.
Luzerne County has more than 1,550 employees although some County divisions and departments,
such as Human Services and 911, record revenues and expenditures in funds other than the General
Fund. See the end of this chapter for more information.
Debt service expenditures increased by 7.2 percent from 2020 to 2024 following the 2019
borrowing. However, Luzerne County’s overall debt is considered manageable and appropriate given
the County’s size and financial capacity, and when considering all County funds. Please see Chapter
7 of this report for complete information on County debt service and the County’s debt position.
Non-personnel expenditures increased by 35.5 percent, from just under $20 million in 2020 to $27
million in 2024.
The remaining expenditures are various transfers. The largest yearly expenditure in Internal
Transfers to Other Funds is generally Children and Youth, which has received approximately $6.9
million annually. Transfers also included a $19.7 million transfer in 2020 to the 911 capital project,
which was offset by the 2019 borrowing as previously discussed.
External payments are made from the General Fund to individuals, institutions, government units
and non-government units that provide various services to Luzerne County residents such as
education, transportation, and conservation. Examples include the Luzerne County Library System,
Luzerne County Community College, the Conservation District, Hazleton Transit, Penn State, and
the Luzerne County Bar Association.

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May 2026

Table 2.9 Personnel, Non-Personnel, Other, Capital Assets, COVID-19, Debt Service and Transfers, 2020 to
2024
2020
Actuals

2021
Actuals

2022
Actuals

2023
Actuals

2024
Actuals

Change 2020-24
$

%

Personnel

84,198,490

85,046,797

86,414,486

89,753,946

94,695,053

10,496,564

12.5

Non-Personnel

19,987,741

19,273,449

19,132,503

21,370,168

27,086,605

7,098,864

35.5

947,978

1,205,329

1,136,495

859,103

846,123

-101,855

-10.7

2,946,519

54,217

55,637

175,473

326,126

-2,620,393

-88.9

429,656

190,374

0

0

0

-429,656

-100.0

Debt Service

24,623,889

26,172,126

26,568,042

26,654,005

26,387,358

1,763,469

7.2

Internal Transfers
to Other Funds

31,598,191

8,569,372

11,436,939

9,446,545

9,602,553

-21,995,638

-69.6

External Payments

9,621,172

9,494,947

8,477,084

9,401,412

9,569,762

-51,412

Total Expenditures

174,353,636

150,006,612

153,221,187

157,660,652

168,513,579

-5,840,057

Personnel

48.3

56.7

56.4

56.9

56.2

Non-Personnel

11.5

12.8

12.5

13.6

16.1

Other

0.5

0.8

0.7

0.5

0.5

Capital Assets

1.7

0.0

0.0

0.1

0.2

COVID-19

0.2

0.1

0.0

0.0

0.0

Debt Service

14.1

17.4

17.3

16.9

15.7

Transfers

18.1

5.7

7.5

6.0

5.7

Transfers To
Individuals

0.0

0.0

0.0

0.0

0.0

Transfers To
Institutions

4.3

4.9

4.7

4.6

4.3

Transfers To Gov
Units

0.1

0.1

0.2

0.1

0.2

Transfers to Non
Gov Units

1.1

1.3

0.7

1.2

1.2

Total Expenditures

100.0

100.0

100.0

100.0

100.0

Other
Capital Assets
COVID-19

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-3.3

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May 2026

Expenditures by Type
Wages and Benefits
Wages accounted for approximately one-third of total General Fund expenditures from 2020 to
2024, growing by $5.1 million or 10.4 percent. Benefits were roughly 20 percent of total
expenditures, increasing by just under $5 million or 16.1 percent.
Supplies
Supplies include an audit adjustment of $2.72 million in 2020 and $2.5 million for District Attorney
material supplies in 2024 that were offset by a $2.5 million federal grant, resulting in overall increases
for the category during those years. In addition to the one-time expenditures in 2024, supply costs in
general were $243,067 higher in 2024 than in 2023, with higher spending recorded in the District
Attorney and Court divisions.
Utilities/Other
Utility costs grew by almost 16 percent over the five years, while the Other category, primarily
related to coroner expenditures, declined by 38.6 percent.
Fees
Fees are a broad miscellaneous category for non-personnel costs that spans over 35 departments.
Prisoner health care is the largest fee expenditure, growing from $2.68 million in 2020 to $3.7
million in 2024.
Other Services
Other Services is another broad miscellaneous category that spans departments and includes
expenditures for various contracted services like legal, accounting, and non-health related insurances;
building rentals for the District Justice Courts; building and road repair and maintenance;
engineering services and more.
The top cost drivers in Other Services for 2024 are road repairs and maintenance, special legal
services, contracted services (Elections, Budget and Finance, Conflict Counsel), insurance costs,
software, and building rental (District Justice Courts).

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Table 2.10 Expenditures by Type, 2020 to 2024
Change 2020-24
2020 Actuals

2021 Actuals

2022 Actuals

2023 Actuals

2024 Actuals

$

%

Wages

49,473,706

49,810,451

50,373,086

52,804,497

54,605,360

5,131,654

10.4

Payroll Taxes

3,912,037

3,917,046

3,906,769

4,044,024

4,307,273

395,236

10.1

Benefits

30,812,746

31,319,300

32,134,632

32,905,425

35,782,421

4,969,674

16.1

Supplies

5,099,093

2,900,412

2,800,550

2,854,234

5,893,201

794,108

15.6

Utilities

1,190,575

1,151,718

1,291,266

1,303,670

1,379,377

188,802

15.9

Other

1,377,634

1,395,703

1,136,495

859,103

846,123

-531,511

-38.6

Fees

4,085,655

4,222,605

4,483,135

5,291,945

5,895,484

1,809,829

44.3

Other Services

9,612,418

10,998,714

10,557,553

11,920,319

13,918,543

4,306,125

44.8

197,077

86,559

75,382

262,268

165,138

-31,939

-16.2

Principal

14,790,000

17,212,500

18,452,500

19,335,000

20,062,500

5,272,500

35.6

Interest

9,636,812

8,873,067

8,040,160

7,056,736

6,159,719

-3,477,092

-36.1

Transfers

41,219,364

18,064,320

19,914,023

18,847,957

19,172,315

-22,047,049

-53.5

Capital Assets

2,946,519

54,217

55,637

175,473

326,126

-2,620,393

-88.9

174,353,636

150,006,612

153,221,187

157,660,652

168,513,579

-5,840,057

-3.3

Wages

28.4

33.2

32.9

33.5

32.4

Payroll Taxes

2.2

2.6

2.5

2.6

2.6

Benefits

17.7

20.9

21.0

20.9

21.2

Supplies

2.9

1.9

1.8

1.8

3.5

Utilities

0.7

0.8

0.8

0.8

0.8

Other

0.8

0.9

0.7

0.5

0.5

Fees

2.3

2.8

2.9

3.4

3.5

Other Services

5.5

7.3

6.9

7.6

8.3

TRAN

0.1

0.1

0.0

0.2

0.1

Principal

8.5

11.5

12.0

12.3

11.9

Interest

5.5

5.9

5.2

4.5

3.7

Transfers

23.6

12.0

13.0

12.0

11.4

Capital Assets

1.7

0.0

0.0

0.1

0.2

100.0

100.0

100.0

100.0

100.0

TRAN

Total Expenditures

Total

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Expenditures by Division
General Government
General Government is the largest division cost center at approximately 21 percent of General Fund
expenditures. Costs grew by $5.5 million or 17.7 percent from 2020 to 2024. The largest
expenditures in General Government are County employee health insurance ($24 million in 2024)
and retirement benefits ($11 million in 2024). Health insurance increased by $4 million from 2020 to
2024, while retirement benefits grew by $1.2 million. (See Table 2.9)
County council, County Manager and Non-Departmental expenditures are recorded in General
Government. Expenditures in Non-Departmental are for employee health insurance and benefits
across divisions that are paid by the General Fund. These costs increased by almost 18 percent or
$5.3 million from 2020 to 2024. (See Table 2.10)
Correctional Services
Correctional services, at over 18 percent of total expenditures, are the second largest division
expense. The highest correctional services costs in 2024 were for wages ($18.6 million), overtime
($3.3 million), and prisoner health care ($3.7 million). Correctional services costs rose by $3.4 million
or 12.4 percent from 2020 to 2024. Overtime costs almost doubled from 2020 to 2024. Correctional
Services employed 314 people in 2025.
Table 2.11 Correction Services Overtime for Luzerne County Correctional Facility (LCCF), Minimal Offenders
Unit (MOU) and Corrections Administration, 2020 to 2024
2020 Actuals

2021 Actuals

2022 Actuals

2023 Actuals

2024 Actuals

LCCF

1,567,684

1,942,407

1,691,291

2,161,199

3,007,477

MOU

158,617

223,091

224,929

236,667

329,316

Admin

4,766

8,819

11,885

16,666

6,427

1,731,067

2,174,317

1,928,104

2,414,533

3,343,220

Total

Correctional Services departments are the Luzerne County Correctional Facility (LCCF), the
Minimal Offenders Unit and Corrections Administration. Increases in LCCF expenditures ($3
million or 16.1 percent from 2020 to 2024) were among the highest departmental expenditure
increases in Luzerne County during the historical review.
Courts
Courts are the third largest division based on expenditures at approximately 11 percent of total
General Fund expenditures. The bulk of court costs are for salary, which was just under $15 million
in 2024. Court expenditures overall increased by 5.4 percent from 2020 to 2024.
Departments in this division are courts, probation, domestic relations and district justice court.
Probation and court expenditures increased almost $1 million and $1.3 million, respectively, from
2020 to 2024, while expenses in domestic relations declined by almost 37 percent or $1.7 million.

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Human Services
Human Services costs are mostly General Fund transfers to Human Services department funds, with
the majority for Children and Youth. Costs for Human Services increased by $560,550 or almost 7
percent from 2020 to 2024. Revenues and expenditures associated with Human Services are
generally recorded in the Human Services Fund detailed later in this chapter.
District Attorney
Costs in the District Attorney’s Office increased in 2024 because of a one-time material and supplies
requisition of $2.5 million that was offset by a federal grant. Eliminating the one-time expenditure
shows an increase in costs of about $1.2 million from 2020 to 2024.
Intergovernmental External Payments
Intergovernmental expenditures are external payments made from the General Fund to institutions,
government units and non-government units that provide various services to Luzerne County
residents such as education, transportation, and conservation. Examples include the Luzerne County
Library System, Luzerne Community College, the Luzerne Conservation District, Hazleton Transit,
Luzerne County Transportation Authority, Penn State, and the Luzerne County Bar Association.
Administrative Services
Costs for Administrative Services were higher in 2020 due to the $2.8 million purchase of elections
equipment. A portion of the 2019 borrowing was used for this purchase. The historic departments
in Administrative Services are non-health related insurances and benefits, mapping/GIS, Bureau of
Elections, purchasing and licensing.
Operational Services
Operational Services includes a one-time expenditures of $19.7 million for the County 911 center in
2020. Otherwise, division expenditures increased from $5 million in 2021 to almost $6.6 million in
2024. Operational Services costs in the General Fund include expenditures for Buildings and
Grounds, Roads and Bridges, Planning and Zoning, and Emergency Management.
In general, revenues and expenditures for the 911 Department are recorded in a separate fund that
will be discussed later in this chapter.
Judicial Records
Expenditures in Judicial Records increased by 14.8 percent, driven by personnel costs, especially in
the Sheriff Department, which accounts for a large portion of personnel.
Budget and Finance
Expenditures in Budget and Finance fluctuated based on transfer and refund costs that varied: $3
million in 2020, $2 million in 2022, $1.4 million in 2023, and $1.2 million in 2024. In addition, 2020
expenses include a one-time audit adjustment of $2.7 million.

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The Budget and Finance division includes the assessors, budget and finance administration, general
government operations, tax collection and treasurer.
Solicitor
Solicitor expenditures increased by 36.3 percent from 2020 to 2024, the most percentage growth of
any department. The largest expenditures are for special legal services, wages and guard ad litem.
Special legal services grew by over $600,000 during the historical review period. Solicitor includes
the departments of solicitor and conflict counsel.
Other
•
•

Expenditures for Public Defender, which were mainly personnel expenses, were flat.
Expenditures for Controller declined by 7.6 percent from 2020 to 2024.

Figure 2.6 2024 Expenditures by Division

2024 Actuals
40,000,000
35,000,000
30,000,000
25,000,000
20,000,000
15,000,000
10,000,000
5,000,000
0

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Table 2.12 Expenditures by Division, 2020 to 2024
Change 2020-24
2020 Actuals

2021 Actuals

2022 Actuals

2023 Actuals

2024 Actuals

General Government
Controller

$

%

5,471,926

17.7

264,981

262,039

226,042

263,467

244,750

-20,230

-7.6

District Attorney

4,701,830

4,709,443

5,380,106

5,865,048

8,462,194

3,760,364

80.0

Courts

18,061,998

17,609,564

18,293,474

18,096,947

19,045,139

983,141

5.4

Solicitor

2,420,729

2,573,328

2,060,510

2,867,121

3,299,280

878,552

36.3

Budget and Finance

8,694,412

2,880,872

4,906,310

4,251,769

4,079,436

-4,614,975

-53.1

Administrative Services

8,590,732

6,741,086

7,021,427

7,092,316

7,515,375

-1,075,358

-12.5

Correctional Services

27,759,619

28,042,141

28,212,024

29,526,516

31,194,931

3,435,312

12.4

Operational Services

24,507,516

5,067,940

4,675,731

5,316,921

6,596,073

-17,911,443

-73.1

Judicial Records

4,878,244

4,779,001

4,870,968

5,123,774

5,597,911

719,667

14.8

Human Services

8,174,936

8,748,118

8,690,263

8,240,096

8,735,486

560,550

6.9

Public Defender

2,411,349

2,419,700

2,320,773

2,411,218

2,397,121

-14,228

-0.6

97,260

98,608

101,225

104,161

105,323

8,064

8.3

Debt Service

24,623,889

26,172,126

26,568,042

26,654,005

26,387,358

1,763,469

7.2

Inter/Government External
Payments

8,225,851

8,292,459

7,428,646

8,223,156

8,440,985

215,135

2.6

174,353,636

150,006,612

153,221,187

157,660,652

168,513,579

-5,840,057

-3.3

General Government

17.7

21.1

21.2

21.3

21.6

Controller

0.2

0.2

0.1

0.2

0.1

District Attorney

2.7

3.1

3.5

3.7

5.0

Courts

10.4

11.7

11.9

11.5

11.3

Solicitor

1.4

1.7

1.3

1.8

2.0

Budget and Finance

5.0

1.9

3.2

2.7

2.4

Administrative Services

4.9

4.5

4.6

4.5

4.5

Correctional Services

15.9

18.7

18.4

18.7

18.5

Operational Services

14.1

3.4

3.1

3.4

3.9

Judicial Records

2.8

3.2

3.2

3.2

3.3

Human Services

4.7

5.8

5.7

5.2

5.2

Public Defender

1.4

1.6

1.5

1.5

1.4

Retirement

0.1

0.1

0.1

0.1

0.1

Debt Service

14.1

17.4

17.3

16.9

15.7

Inter/Government

4.7

5.5

4.8

5.2

5.0

County Reserve Fund

0.0

0.0

0.0

0.0

0.0

Total Expenditures

100.0

100.0

100.0

100.0

100.0

Retirement

Total

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Table 2.13 Expenditures by Department, 2020 to 2024
Change 2020 to 2024
2020
Actuals

2021
Actuals

2022
Actuals

2023
Actuals

2024
Actuals

$

%

Non Departmental

30,428,030

31,049,827

31,886,206

33,060,224

35,805,970

5,377,940

17.7

Debt Service

24,623,889

26,172,126

26,568,042

26,654,005

26,387,358

1,763,469

7.2

LCCF

19,017,169

19,477,392

19,824,516

20,476,191

22,070,758

3,053,589

16.1

Inter-Governmental
Appropriation

8,225,851

8,292,459

7,428,646

8,223,156

8,440,985

215,135

2.6

District Attorney

4,574,234

4,448,561

5,092,589

5,582,485

8,193,037

3,618,802

79.1

Probation Services

6,089,087

6,177,115

5,839,176

6,440,892

7,001,503

912,416

15

Children, Youth
and Families

6,476,307

6,900,000

6,900,000

6,292,713

6,900,000

423,693

6.5

Courts

4,851,728

4,895,398

5,617,123

5,942,450

6,227,015

1,375,286

28.3

Corrections
Administration

4,631,897

4,366,185

4,004,008

4,624,011

5,093,426

461,530

10

Minimal Offenders'
Unit

4,110,554

4,198,564

4,383,500

4,432,327

4,030,747

-79,807

-1.9

Road and Bridge

1,259,274

1,724,711

1,410,112

1,775,338

3,401,628

2,142,353

170.1

Sheriff-Security

2,687,332

2,448,962

2,365,107

2,631,669

3,079,833

392,502

14.6

Domestic Relations

4,681,445

3,859,939

4,626,869

2,950,669

2,953,048

-1,728,397

-36.9

Insurance and
Benefits

1,664,089

2,412,344

2,759,735

2,677,584

2,889,603

1,225,514

73.6

District Justice
Courts

2,703,717

2,677,113

2,673,610

2,762,935

2,863,573

159,856

5.9

Solicitor

1,358,240

1,400,994

1,200,418

1,948,619

2,399,770

1,041,529

76.7

Public Defender

2,411,349

2,419,700

2,320,773

2,411,218

2,397,121

-14,228

-0.6

Information
Technology

1,851,797

1,671,440

1,693,734

1,802,466

1,872,951

21,154

1.1

Tax Collection

845,745

720,311

591,887

667,419

1,785,317

939,573

111.1

Bureau of Elections

4,039,564

1,682,341

1,618,466

1,589,847

1,514,855

-2,524,709

-62.5

Building and
Grounds

1,246,714

1,233,836

1,292,651

1,294,938

1,426,950

180,236

14.5

Prothonotary

952,443

1,034,523

1,089,803

1,147,747

1,161,854

209,411

22

Budget & Finance
Administration

1,067,346

972,090

1,118,513

1,051,623

1,102,352

35,006

3.3

HSDF Block Grant

945,514

1,007,290

1,023,051

1,023,180

1,019,731

74,217

7.8

Conflict Counsel

1,062,488

1,172,334

860,092

918,502

899,511

-162,978

-15.3

Assessors

756,827

738,799

785,850

788,955

778,761

21,934

2.9

Engineers

860,161

893,785

815,743

962,098

725,849

-134,312

-15.6

Coroner

693,672

706,630

790,399

689,717

696,236

2,564

0.4

Human Resources

418,401

380,845

339,842

392,242

595,773

177,372

42.4

Planning and
Zoning

864,597

659,408

609,503

705,901

573,042

-291,555

-33.7

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Change 2020 to 2024
2020
Actuals

2021
Actuals

2022
Actuals

2023
Actuals

2024
Actuals

$

%

Recorder of Deeds

442,136

486,433

521,164

549,473

545,599

103,463

23.4

Mapping/GIS

369,174

366,467

377,332

399,577

406,661

37,488

10.2

Emergency
Management

256,551

267,176

259,297

286,126

353,902

97,352

37.9

Veterans' Affairs

302,190

311,713

303,510

324,582

350,304

48,115

15.9

County Manager

266,434

279,679

324,993

305,968

304,820

38,386

14.4

District AttorneyHighway & DUI

127,596

260,882

287,517

282,563

269,157

141,561

110.9

County Council

245,827

280,681

253,380

257,944

259,175

13,348

5.4

Controller

264,981

262,039

226,042

263,467

244,750

-20,230

-7.6

Boiler Plant

258,765

229,934

243,040

228,339

222,185

-36,580

-14.1

General
Government
Operation

5,853,338

291,638

2,220,635

1,548,873

211,420

-5,641,919

-96.4

Treasurer

171,156

158,034

189,425

194,899

201,587

30,431

17.8

Human Services
Administration

136,938

194,444

174,469

259,665

177,820

40,883

29.9

Drug and Alcohol

175,850

175,850

175,850

175,850

175,850

0

0

Purchasing

160,278

143,320

150,114

161,818

165,280

5,001

3.1

Records Storage

102,661

102,453

104,495

105,169

114,389

11,727

11.4

Mental
Health/Develop
Svcs Even

138,137

158,821

113,384

164,107

111,780

-26,357

-19.1

Retirement

97,260

98,608

101,225

104,161

105,323

8,064

8.3

Licensing

87,429

84,330

82,204

68,781

70,251

-17,178

-19.6

Government Study
Commission

0

0

0

0

42,251

42,251

100.0

Ethics Commission

0

0

1,066

0

0

0

0

LCCF

0

0

0

-6,012

0

0

0

-263,979

0

-463,303

0

0

263,979

-10.00

Luzerne County
911

19,761,455

59,090

45,385

64,183

-107,482

-19,868,937

-100.5

Total Expenditures

174,353,636

150,006,612

153,221,187

157,660,652

168,513,579

-5,840,057

-3.3

Other Court
Expenses

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Other Luzerne County Funds
In addition to the General Fund, the main focus of this report, the County maintains 67 other funds
to ensure proper accounting and fiscal control of revenues and expenditures. Below are certain key
funds including Human Services, 911 Center, CARES-ARPA, Opioid Settlement, Community
Development, Hotel Tax, and Solid Waste Recycling.
Human Services Fund Revenues
The Human Services Division is primarily funded by state and federal sources. These funds cover
both payments to contractors who provide services on behalf of those departments and the
County’s operational costs, including employee salaries and benefits. Human Services maintains
separate funds from the General Fund to ensure proper accounting and fiscal controls of revenue
received from state and federal programs.
State grants provided approximately 75 percent of Human Services Division revenues during the
historical review period, with federal grants providing roughly 15 percent. Transfers, mostly from
the County’s General Fund, were 8 percent of total revenues.
Total revenues for the Human Services Division grew by 5.2 percent or $5.4 million from 2020 to
2024. Federal grants experienced the largest increase, growing by 24.2 percent or $3.6 million. State
grants increased by almost 4 percent or $2.9 million during the same period. Transfers declined from
2020.
Table 2.14 Human Services Fund Revenue by Source, 2020 to 2024
Change 2020-24
2020 Actuals

2021 Actuals

2022 Actuals

2023 Actuals

2024 Actuals

$

%

Federal Grants

14,941,398

15,512,303

15,004,379

17,157,875

18,559,051

3,617,653

24.2

State Grants

77,225,333

75,606,554

75,325,057

77,865,883

80,126,351

2,901,018

3.8

Fees

1,844,809

1,797,341

1,978,381

1,649,821

1,488,307

-356,502

-19.3

Interest

20,617

5,326

70,038

332,693

376,307

355,690

1725.2

Other

892,120

125,450

39,725

40,765

44,494

-847,626

-95.0

Reimbursements

44,168

47,567

45,661

38,268

48,690

4,523

10.2

8,700,350

8,023,041

8,173,445

8,356,582

8,383,526

-316,824

-3.6

Total Revenue

103,668,795

101,117,583

100,636,686

105,441,887

109,026,726

5,357,931

5.2

Federal Grants

14.4

15.3

14.9

16.3

17.0

State Grants

74.5

74.8

74.8

73.8

73.5

Fees

1.8

1.8

2.0

1.6

1.4

Interest

0.0

0.0

0.1

0.3

0.3

Other

0.9

0.1

0.0

0.0

0.0

Reimbursements

0.0

0.0

0.0

0.0

0.0

Transfers

Transfers
Total Revenue

8.4

7.9

8.1

7.9

7.7

100.0

100.0

100.0

100.0

100.0

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Children, Youth & Families receives the largest amount of revenue by department at 40 percent to
42 percent of total revenue, followed by Mental Health Developmental Services. Drug and Alcohol
revenue experienced the most fluctuation from a low of $1.3 million in 2022 to a high of $7.8
million in 2024.
Table 2.15 Human Services Fund Revenue by Department, 2020 to 2024
Change 2020-24
2020 Actuals

2021 Actuals

2022 Actuals

2023 Actuals

2024 Actuals

$

%

Area Agency on Aging

13,263,522

11,152,476

13,657,237

14,554,866

13,304,815

41,293

0.3

Children, Youth and Families

43,146,094

39,637,902

43,148,079

44,479,794

44,443,272

1,297,178

3.0

Children & Youth Services Saving

16,451

28,182

15,349

51,264

26,069

9,618

58.5

C & Y Social Security Deposits

150,484

221,486

214,613

206,346

164,177

13,693

9.1

Mental Health/Developmental Svcs

21,299,154

22,903,702

21,710,852

20,491,929

21,804,302

505,148

2.4

Human Services

2,581,280

2,752,297

2,720,077

2,631,468

2,775,132

193,851

7.5

Drug & Alcohol

3,806,064

4,765,533

1,304,508

4,283,939

7,812,730

4,006,667

105.3

HS Block Grant

19,405,746

19,656,004

17,865,971

18,742,282

18,696,229

-709,517

-3.7

Total Revenues

103,668,795

101,117,583

100,636,686

105,441,887

109,026,726

5,357,931

5.2

Area Agency on Aging

12.8

11.0

13.6

13.8

12.2

Children, Youth and Families

41.6

39.2

42.9

42.2

40.8

Children & Youth Services Saving

0.0

0.0

0.0

0.0

0.0

C & Y Social Security Deposits

0.1

0.2

0.2

0.2

0.2

Mental Health/Developmental Svcs

20.5

22.7

21.6

19.4

20.0

Human Services

2.5

2.7

2.7

2.5

2.5

Drug & Alcohol

3.7

4.7

1.3

4.1

7.2

HS Block Grant

18.7

19.4

17.8

17.8

17.1

Total Revenues

100.0

100.0

100.0

100.0

100.0

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Human Services Fund Expenditures
Human services fees are the largest expenditure category at over 50 percent to 60 percent of total
expenditures. Fees are external payments made to vendors that provide human services to Luzerne
County residents. Fees grew by 36 percent or $19 million from 2020 to 2024. Meanwhile, wages and
benefits both declined during the same period by 16.7 percent and 17.1 percent, respectively.
Table 2.16 Human Services Division Expenditures by Type, 2020 to 2024
Change 2020-24
2020 Actuals

2021 Actuals

2022 Actuals

2023 Actuals

2024 Actuals

$

%

Wages

14,763,164

14,416,401

14,027,027

12,271,815

12,290,486

-2,472,678

-16.7

Payroll Taxes

1,176,853

1,146,760

1,100,542

962,192

939,697

-237,156

-20.2

Benefits

6,413,932

6,277,900

5,363,107

4,611,461

5,319,842

-1,094,090

-17.1

Supplies

3,334,597

4,056,600

4,012,148

3,878,886

3,735,609

401,012

12.0

Utilities

1,378,783

1,554,798

1,685,742

1,573,000

1,419,954

41,170

3.0

Other

39,697

31,158

15,516

34,129

1,154,888

1,115,191

2809.2

Fees

52,436,151

57,183,661

58,686,370

64,574,040

71,338,735

18,902,584

36.0

Transfers

17,193,050

19,806,208

16,815,930

17,698,453

19,866,201

2,673,150

15.5

237,723

40,995

0

0

69,481

-168,242

-70.8

96,973,951

104,514,481

101,706,382

105,603,974

116,134,893

19,160,941

19.8

Wages

15.2

13.8

13.8

11.6

10.6

Payroll Taxes

1.2

1.1

1.1

0.9

0.8

Benefits

6.6

6.0

5.3

4.4

4.6

Supplies

3.4

3.9

3.9

3.7

3.2

Utilities

1.4

1.5

1.7

1.5

1.2

Other

0.0

0.0

0.0

0.0

1.0

Fees

54.1

54.7

57.7

61.1

61.4

Transfers

17.7

19.0

16.5

16.8

17.1

Capital Assets

0.2

0.0

0.0

0.0

0.1

100.0

100.0

100.0

100.0

100.0

Capital Assets
Total Expenditures

Total

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911 Center Fund
The majority of 911 Center funds are from the state allocation of the 911 fee revenue, a monthly
surcharge on phone service. This revenue fluctuated over the historical review period but was
slightly higher in 2024 than 2020. In terms of expenditures, wages grew by 25 percent during the
historical review period, primarily due to new 2023 contract which increased starting salaries by
$5,200 or 17 percent and other services declined by approximately $1 million.
Table 2.17 911 Center Fund Revenues, 2020 to 2024
Change 2020-24
State Grants
Interest
Other

$

%

7,381,253

421,538

6.1

65,115

43,959

207.8

2020 Actuals

2021 Actuals

2022 Actuals

2023 Actuals

2024 Actuals

6,959,715

8,235,604

7,057,611

6,922,027

21,156

1,149

21,681

62,374

0

54,995

0

0

0

0

0.0

451,215

39,202

39,669

41,560

46,333

-404,882

-89.7

Proceeds

19,700,000

0

0

0

0

-19,700,000

-100.0

Transfers

1,000,000

0

0

0

0

-1,000,000

-100.0

Total Revenue

28,132,085

8,330,950

7,118,961

7,025,961

7,492,701

-20,639,384

-73.4

State Grants

24.7

98.9

99.1

98.5

98.5

Interest

0.1

0.0

0.3

0.9

0.9

Other

0.0

0.7

0.0

0.0

0.0

Reimbursements

1.6

0.5

0.6

0.6

0.6

Proceeds

70.0

0.0

0.0

0.0

0.0

Transfers

3.6

0.0

0.0

0.0

0.0

100.0

100.0

100.0

100.0

100.0

Reimbursements

Total Revenue

Table 2.18 911 Center Fund Expenditures by Type, 2020 to 2024
Change 2020-24
2020 Actuals

2021 Actuals

2022 Actuals

2023 Actuals

2024 Actuals

4,167,476

4,327,144

4,216,013

4,204,286

5,210,906

Payroll Taxes

327,937

338,458

327,994

325,905

Benefits

282,868

284,518

317,616

318,040

Supplies

9,367

9,445

5,075

Utilities

266,180

335,463

Fees

193,934

Wages

Other Services
Transfers
Total Expenditures
Wages

$

%

1,043,430

25.0

405,101

77,164

23.5

423,592

140,724

49.7

6,940

6,868

-2,499

-26.7

299,297

321,045

293,487

27,307

10.3

207,550

216,961

301,573

223,506

29,572

15.2

2,501,273

2,298,913

1,342,201

1,297,156

1,461,185

-1,040,088

-41.6

69

0

0

0

0

-69

-100.0

7,749,105

7,801,490

6,725,157

6,774,944

8,024,646

275,541

3.6

53.8

55.5

62.7

62.1

64.9

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Change 2020-24
2020 Actuals

2021 Actuals

2022 Actuals

2023 Actuals

2024 Actuals

Payroll Taxes

4.2

4.3

4.9

4.8

5.0

Benefits

3.7

3.6

4.7

4.7

5.3

Supplies

0.1

0.1

0.1

0.1

0.1

Utilities

3.4

4.3

4.5

4.7

3.7

Other

0.0

0.0

0.0

0.0

0.0

Fees

2.5

2.7

3.2

4.5

2.8

Other Services

32.3

29.5

20.0

19.1

18.2

Total

100.0

100.0

100.0

100.0

100.0

$

%

CARES-ARPA Fund
The country experienced the global COVID-19 pandemic starting in 2019. In response, the County
was awarded funds from the federal government throughout the historical review period from two
main programs, the Coronavirus Aid, Relief, and Economic Security (CARES) Act and the
American Rescue Plan Act (ARPA).
In 2020, the County received approximately $28 million in CARES Act funding to support various
COVID-19 related expenses, including grants for small businesses, municipalities, and non-profits,
as well as public health initiatives.
Funds were also used for general government services to replace lost revenue and prevent disruption
of activities. This also included essential IT upgrades for network infrastructure, licensing,
cybersecurity, and equipment to facilitate remote access to government data and services.
The County received a total ARPA Act allocation of $112,890,152, which was paid in two
disbursements in 2022 and 2023.
Opioid Settlement Fund
Luzerne County will receive $22.8 million over 18 years as part of the national Opioid Settlement
with opioid distributers and manufacturers. The County will receive regular disbursements with
corresponding deadlines for expenditures.
The Luzerne County Opioid Misuse and Addiction Abatement Committee (OMAAC) has been
created to oversee the prudent use of these funds and implement effective programs and services
with final approval by Luzerne County Council 4.
Current Opioid Settlement projects include the following: 1. Expansion of Medication-Assisted
Treatments in Luzerne County Correctional Facility. 2. Increase Warm Hand-Off Services and

4 https://www.luzerneCounty.org/DocumentCenter/View/40949/Pennsylvania-Opioid-Settlement---Luzerne-County-

Public-Hearing-Powerpoint-Presentation

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Recovery Support Services in the Community. 3. Expansion of Evidence-Based
Prevention/Education Services in School and Community Settings.
Table 2.21 Opioid Settlement Fund Revenues, Expenditures and Surplus/(Deficit), 2020 to 2024
Opioid Settlement

2020 Actuals

2021 Actuals

2022 Actuals

2023 Actuals

2024 Actuals

Revenues

0

0

2,607,318

1,763,338

1,233,801

Expenditures

0

0

0

0

1,029,643

Surplus/(Deficit)

0

0

2,607,318

1,763,338

204,158

Community Development Fund
The Community Development Office administers programs under the U.S. Department of Housing
and Urban Development. The majority of revenues are received from HUD. Programs assist low to
moderate income individuals, make improvements to low to moderate income areas, and/or create
job opportunities. Specific programs offered by the County are demolition and clearance, home
buyer, municipal improvement, and rental housing.
Expenditures, primarily to outside agencies, significantly exceeded revenues most years of the review
period. However, according to County reported Annual Financial Report figures, Community
Development had a fund balance of over $30 million at year end 2022 and is well capable of
offsetting the deficits.
Table 2.22 Community Development Fund Revenues, Expenditures and Surplus/(Deficit), 2020 to 2024
Community Development

2020 Actuals

2021 Actuals

2022 Actuals

2023 Actuals

2024 Actuals

Revenues

5,444,593

16,696,661

7,723,306

9,626,279

6,880,971

Expenditures

10,401,523

20,687,051

10,748,673

12,320,636

7,009,961

Surplus/(Deficit)

-4,956,930

-3,990,390

-3,025,367

-2,694,357

-128,990

Hotel Tax Funds
The following accounts are primarily funded by the County’s 5 percent hotel room rental tax. Eighty
percent of revenue collected by the tax is used by the Luzerne County Convention Center Authority
for operation of the Mohegan Sun Arena and for land development surrounding the arena.
The remaining 20 percent is transferred to the Convention and Visitors Bureau, where funds are
primarily used for County promotions and related expenditures, and for bureau personnel costs. The
bureau also receives revenue from memberships, sponsorships, and advertising opportunities.
Table 2.23 Hotel Room Rental Tax Fund Revenues, Expenditures and Surplus/(Deficit), 2020 to 2024
Fund 450 - Hotel Room Rental
Tax

2020
Actuals

2021
Actuals

2022
Actuals

2023
Actuals

2024
Actuals

Revenues

2,074,608

3,403,492

4,006,913

4,129,422

3,605,435

Expenditures

2,073,625

3,404,091

3,756,915

4,361,896

3,622,839

984

-600

249,998

-232,474

-17,403

Surplus/(Deficit)

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Table 2.24 Convention and Visitors Bureau Fund Revenues, Expenditures and Surplus/(Deficit), 2020 to 2024
Fund 430 - Conv & Visitors Tourist
Promo Ag

2020
Actuals

2021
Actuals

2022
Actuals

2023
Actuals

2024
Actuals

Revenues

473,201

774,887

948,671

963,858

887,410

Expenditures

453,705

529,117

707,117

696,679

784,057

Surplus/(Deficit)

19,496

245,769

241,554

267,179

103,354

Solid Waste Recycling Fund
The bulk of revenue in the Solid Waste Recycling Fund is from a fee per ton of municipal solid
waste that the County receives from participating landfills. The largest expenditures are for
personnel and contracted services, including $3.7 million in 2023.
Table 2.25 Convention and Visitors Bureau Fund Revenues, Expenditures and Surplus/(Deficit), 2020 to 2024
Fund 530 - Solid Waste
Recycle

2020
Actuals

2021
Actuals

2022
Actuals

2023
Actuals

2024
Actuals

Revenues

569,267

801,503

880,016

954,566

943,544

Expenditures

146,383

221,739

357,589

3,844,685

886,460

Surplus/(Deficit)

422,884

579,765

522,427

-2,890,119

57,084

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Chapter 3
Luzerne County Projections, 2026 to 2030
Introduction
This chapter provides a comprehensive assessment of Luzerne County’s projected General Fund
financial outlook for 2026 through 2030, using the 2026 adopted budget as the foundation for all
revenue and expenditure assumptions.
Under current assumptions, the County is expected to face operating deficits in the years
immediately following 2026. These projected shortfalls are driven primarily by continued growth in
personnel-related costs, particularly employee benefits and wages.
Benefits are projected to increase by more than 20 percent over the forecast period, while wages rise
at a more moderate pace. These trends reflect known cost drivers common to County governments
and are therefore predictable and addressable through policy choices, labor strategies, and
operational efficiencies.
Revenue growth during the projection period is expected to remain modest, increasing by roughly
2.7 percent overall. Increases are concentrated almost entirely in tax revenues and reimbursements,
while most other revenue categories remain flat under conservative assumptions. This dynamic
underscores the County’s reliance on a small number of stable but limited revenue sources and
highlights the importance of diversifying and modernizing the General Fund revenue portfolio over
time.
On the expenditure side, departmental costs trend upward across several core service areas,
including General Government, Courts, Correctional Services, Judicial Records, and Administrative
Services. These increases reflect both service demand and regulatory responsibilities, while also
pointing to areas where efficiency initiatives, staffing reviews, and shared service opportunities may
yield long-term benefits without compromising service quality.
A significant inflection point occurs in 2030, when scheduled reductions in debt service obligations
produce a projected surplus of approximately $7.15 million. While this improvement is driven largely
by the timing of principal and interest payments rather than changes in revenue performance or cost
controls, it provides meaningful fiscal relief. Importantly, this moment presents an opportunity to
rebuild reserves, address deferred needs, and strengthen the County’s financial position for the years
that follow.
The chapter also cautions that the projections do not account for substantial future capital needs
identified elsewhere in the report, reinforcing the need for comprehensive long-term planning that
integrates both operating and capital considerations.
To navigate these dynamics, the chapter outlines practical strategies to improve fiscal sustainability.
Recommendations focus on managing personnel cost growth through healthcare cost-containment,
staffing efficiency reviews, and shared service models, while strengthening revenues through
updated fees, improved reimbursement capture, and consideration of options such as reinstating the
Act 89 vehicle fee, expanding PILOT agreements, and evaluating a hotel tax adjustment.
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The County is encouraged not to rely solely on the projected debt service decline in 2030, but
instead to establish a debt stabilization reserve, expand multi-year forecasting, and conduct financial
stress testing to better manage uncertainty.
Overall, the projections present a realistic but constructive outlook. While near-term pressures are
evident, they are well-defined and manageable. By acting proactively on known cost drivers,
modernizing revenue strategies, and strengthening long-term financial planning, Luzerne County can
mitigate structural imbalances and position itself on a more stable and sustainable fiscal trajectory
beyond 2030.
Assumptions
Revenues
•
•
•
•
•
•

The 2026 budget serves as the baseline.
Tax rates and fees remain at 2026 levels.
Real estate tax revenue growth at 0.5% based on assessment level changes.
Hotel tax revenue growth at 0.5%
Interest down 2% for 2027 then held flat.
Other non-tax revenues are held constant.

Expenditures
•
•
•
•
•
•

The 2026 budget serves as the baseline.
Employee count is consistent with 2026 budgeted levels.
No new debt incurred.
Wages increased 2.5% annually
Healthcare increased 5.0 percent annually
Supplies and services costs increased annually with an inflation adjustment consistent with
the most recent Central Budget Office estimates: 2.1 percent; 2026 → 2027: 2.0 percent;
2027 → 2028: 2.0 percent 2028 → 2029: 1.98 percent, 2029 → 2030: 1.97 percent

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Summary
Luzerne County’s fiscal position is projected to weaken in the years immediately following 2026,
with three consecutive years of rising deficits: $3.88 million in 2027, $6.88 million in 2028, and $9.59
million in 2029. This pattern reflects expenditure growth that consistently outpaces modest increases
in revenue.
In 2030, however, the financial picture shifts dramatically. A substantial drop in debt service
obligations produces an anticipated $7.04 million surplus, marking a temporary fiscal recovery. Over
the full projection period, revenues grow by 2.7 percent, or $4.6 million, while expenditures without
Debt Service rise by $16.88 million or 11.7 percent. Debt service remains steady around $26 million
through 2029 and then drops to $6.3 million in 2030. The increased operating expenditures
consume most of the savings from the reduction in debt service.
Table 3.1 Revenues, Expenditures, and Surplus/(Deficit), 2026 to 2030
2026

2027

2028

2029

2030

Budget

Projected

Projected

Projected

Projected

Revenues

170,414,085

171,529,233

172,669,398

173,835,675

175,029,215

4,615,130

2.7

Expend w/o DS

144,830,445

148,851,090

152,991,485

157,274,627

161,708,396

16,877,951

11.7

Debt Service

26,447,390

26,446,397

26,441,508

26,027,534

6,174,889

-20,272,501

-76.6

0

-3,868,254

-6,863,595

-9,566,486

7,045,931

Surplus/(Deficit)

Change 2026 - 2030
$

%

Figure 3.1 Revenues, Expenditures, and Surplus/(Deficit), 2026 to 2030
200,000,000

150,000,000

100,000,000

50,000,000

0

Budget

Projected

Projected

Projected

Projected

2026

2027

2028

2029

2030

-50,000,000
Revenues

Expenditures

Surplus/(Deficit)

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Projected Revenues
Revenue growth over the five-year period is limited, with gains occurring primarily in two categories:
taxes, increasing by $2.77 million or 2 percent, and reimbursements, increasing by $1.86 million or
almost 10 percent.
Luzerne County increased its property tax millage in 2026 from 6.3541 mills to 6.4494 mills. Tax
revenues continue to account for roughly 80 percent of total County revenue, underscoring the
County’s reliance on property taxes. Most other revenue categories, including fees, fines, interest,
rent, and grants, remain flat, reflecting conservative assumptions and limited expected changes in
external funding.
Reimbursements, which include state and federal funds that offset County operating expenditures,
are projected to show the only growth other than taxes. Reimbursements are from various
departments including Courts, Corrections, Public Defender, Judicial Records, Administrative
Services, and General Government and include reimbursements for healthcare which should
increase as healthcare costs increase.
Table 3.2 Projected Revenues by Type, 2026 to 2030
Change 2026-30
2026 Budget

2027 Projected

2028 Projected

2029 Projected

2030 Projected

$

%

136,965,681

137,648,829

138,335,394

139,025,391

139,718,837

2,753,156

2.0

Federal Grants

1,067,875

1,067,875

1,067,875

1,067,875

1,067,875

0

0.0

State Grants

1,013,503

1,013,503

Fees

8,619,535

8,619,535

1,013,503

1,013,503

1,013,503

0

0.0

8,619,535

8,619,535

8,619,535

0

0.0

Fines

1,232,500

1,232,500

1,232,500

1,232,500

1,232,500

0

0.0

Interest

280,250

280,250

280,250

280,250

280,250

0

0.0

Rent

461,647

461,647

461,647

461,647

461,647

0

0.0

Other

1,058,640

1,058,640

1,058,640

1,058,640

1,058,640

0

0.0

Reimbursements

18,889,834

19,321,834

19,775,434

20,251,714

20,751,808

1,861,974

9.9

824,620

824,620

824,620

824,620

824,620

0

0.0

170,414,085

171,529,233

172,669,398

173,835,675

175,029,215

4,615,130

2.7

Taxes

80.4

80.2

80.1

80.0

79.8

Federal Grants

0.6

0.6

0.6

0.6

0.6

State Grants

0.6

0.6

0.6

0.6

0.6

Fees

5.1

5.0

5.0

5.0

4.9

Fines

0.7

0.7

0.7

0.7

0.7

Interest

0.2

0.2

0.2

0.2

0.2

Rent

0.3

0.3

0.3

0.3

0.3

Other

0.6

0.6

0.6

0.6

0.6

Reimbursements

11.1

11.3

11.5

11.6

11.9

Taxes

Transfers
Total Revenue

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Change 2026-30
2026 Budget

2027 Projected

2028 Projected

2029 Projected

2030 Projected

Proceeds

0.0

0.0

0.0

0.0

0.0

Transfers

0.5

0.5

0.5

0.5

0.5

100.0

100.0

100.0

100.0

100.0

Total Revenue

$

%

Table 3.3 Projected Revenues by Department, 2026 to 2030
Change 2026-30
2027
Projected

2026 Budget

2028
Projected

2029
Projected

2030
Projected

$

%

General Government

8,701,250

9,133,250

9,586,850

10,063,130

10,563,224

1,861,974

21.4

District Attorney

2,048,609

2,048,609

2,048,609

2,048,609

2,048,609

0

0.0

Courts

8,262,488

8,262,488

8,262,488

8,262,488

8,262,488

0

0.0

Solicitor

480,000

480,000

480,000

480,000

480,000

0

0.0

140,328,778

141,011,926

141,698,491

142,388,488

143,081,934

2,753,156

2.0

926,403

926,403

926,403

926,403

926,403

0

0.0

Correctional Services

1,202,050

1,202,050

1,202,050

1,202,050

1,202,050

0

0.0

Operational Services

2,264,888

2,264,888

2,264,888

2,264,888

2,264,888

0

0.0

Judicial Records

5,741,558

5,741,558

5,741,558

5,741,558

5,741,558

0

0.0

Public Defender

333,441

333,441

333,441

333,441

333,441

0

0.0

Retirement

124,620

124,620

124,620

124,620

124,620

0

0.0

170,414,085

171,529,233

172,669,398

173,835,675

175,029,215

4,615,130

2.7

General Government

5.1

5.3

5.6

5.8

6.0

District Attorney

1.2

1.2

1.2

1.2

1.2

Courts

4.8

4.8

4.8

4.8

4.7

Solicitor

0.3

0.3

0.3

0.3

0.3

Budget and Finance

82.3

82.2

82.1

81.9

81.7

Administrative
Services

0.5

0.5

0.5

0.5

0.5

Correctional Services

0.7

0.7

0.7

0.7

0.7

Operational Services

1.3

1.3

1.3

1.3

1.3

Judicial Records

3.4

3.3

3.3

3.3

3.3

Public Defender

0.2

0.2

0.2

0.2

0.2

Retirement

0.1

0.1

0.1

0.1

0.1

100.0

100.0

100.0

100.0

100.0

Budget and Finance
Administrative
Services

Total Revenue

Total Revenue

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Projected Expenditures
Expenditure growth is driven primarily by escalating personnel costs. Personnel-related spending is
projected to rise by $14.7 million or 14.7 percent between 2026 and 2030. Benefits show the most
significant growth at $8 million or 21.6 percent, reflecting rising healthcare costs. Wage increases add
an additional $6.1 million or 10.4 percent to the personnel budget.
Non-personnel spending grows modestly, in line with assumed inflation rates, increasing 8.4 percent
across most categories. The most notable shift occurs in debt service, which drops by 76.6 percent
or $19.3 million by 2030 due to declining principal and interest obligations. This reduction is
responsible for the dramatic shift to surplus in 2030.
Departmental expenditure trends show consistent growth across most County functions. General
Government rises significantly by 21.7 percent, while Courts, Correctional Services, Judicial
Records, and Administrative Services all experience increases between 8 percent and 12 percent.
Human Services spending and County Reserve are kept flat.
Table 3.4 Projected Personnel, Non-Personnel, Other, Capital Assets, Debt Service, Transfers, Payments, 2026
to 2030
Change
2026-2030
Category

2026 Budget

2027
Projected

2028
Projected

2029
Projected

2030
Projected

$

%

Personnel

99,999,691

103,478,086

107,089,548

110,839,709

114,734,459

14,734,768

14.7

Non-Personnel

24,636,892

25,159,194

25,668,668

26,182,041

26,701,231

2,064,339

8.4

Other

1,340,965

1,360,913

1,380,372

1,399,979

1,419,809

78,844

5.9

Capital Assets

304,000

304,000

304,000

304,000

304,000

0

0.0

Debt Service

25,583,640

26,546,397

26,541,508

26,127,534

6,274,889

-19,308,751

-75.5

Internal Transfers
to Other Funds

8,711,894

8,711,894

8,711,894

8,711,894

8,711,894

0

0.0

Ext. Payments

9,837,003

9,837,003

9,837,003

9,837,003

9,837,003

0

0.0

170,414,085

175,397,487

179,532,993

183,402,161

167,983,285

-2,430,800

-1.4

Personnel

58.7

59.0

59.6

60.4

68.3

Non-Personnel

14.5

14.3

14.3

14.3

15.9

Other

0.8

0.8

0.8

0.8

0.9

Capital Assets

0.2

0.2

0.2

0.2

0.2

Debt Service

15.0

15.1

14.8

14.2

3.7

Internal Transfers
to Other Funds

5.1

5.0

4.9

4.7

5.2

Total Expenditures

Ext. Payments
Total Expenditures

5.8

5.5

5.4

5.4

5.8

100.0

100.0

100.0

100.0

100.0

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Table 3.5 Projected Expenditures by Type, 2026 to 2030
Change 2026-30
2026 Budget
Wages

58,481,457

2027
Projected

2028
Projected

2029
Projected

2030
Projected

$

%

59,999,743

61,555,987

63,151,137

64,786,165

6,304,708

10.8

Payroll Taxes

4,632,139

4,747,942

4,866,641

4,988,307

5,113,015

480,876

10.4

Benefits

36,886,095

38,730,400

40,666,920

42,700,266

44,835,279

7,949,184

21.6

Supplies

3,437,225

3,510,094

3,581,174

3,652,797

3,725,232

288,007

8.4

Utilities

1,442,430

1,473,010

1,502,838

1,532,895

1,563,292

120,862

8.4

Other

1,245,965

1,263,899

1,281,393

1,299,021

1,316,849

70,884

5.7

Fees

7,145,783

7,297,274

7,445,043

7,593,944

7,744,532

598,749

8.4

Other Services

12,706,454

12,975,831

13,238,591

13,503,363

13,771,135

1,064,681

8.4

100,000

100,000

100,000

100,000

100,000

0

0.0

Principal

21,622,500

23,565,000

24,890,000

25,185,000

6,055,000

-15,567,500

-72.0

Interest

3,861,140

2,881,397

1,551,508

842,534

119,889

-3,741,251

-96.9

Transfers

18,548,897

18,548,897

18,548,897

18,548,897

18,548,897

0

0.0

304,000

304,000

304,000

304,000

304,000

0

0.0

170,414,085

175,397,487

179,532,993

183,402,161

167,983,285

-2,430,800

-1.4

Wages

34.3

34.2

34.3

34.4

38.6

Payroll Taxes

2.7

2.7

2.7

2.7

3.0

Benefits

21.6

22.1

22.7

23.3

26.7

Supplies

2.0

2.0

2.0

2.0

2.2

Utilities

0.8

0.8

0.8

0.8

0.9

Other

0.7

0.7

0.7

0.7

0.8

Fees

4.2

4.2

4.1

4.1

4.6

Other Services

7.5

7.4

7.4

7.4

8.2

TRAN

0.1

0.1

0.1

0.1

0.1

Principal

12.7

13.4

13.9

13.7

3.6

TRAN

Capital Assets
Total

Interest

2.3

1.6

0.9

0.5

0.1

Transfers

10.9

10.6

10.3

10.1

11.0

Capital Assets

0.2

0.2

0.2

0.2

0.2

100.0

100.0

100.0

100.0

100.0

Total

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Table 3.6 Projected Expenditures by Department, 2026 to 2030
Change 2026-2030
2026 Budget

2027
Projected

2028
Projected

2029
Projected

2030
Projected

$

General
Government

34,762,865

36,572,462

38,470,714

40,462,700

42,553,162

7,790,297

22.4

Controller

283,592

290,714

298,010

305,489

313,156

29,564

10.4

District Attorney

7,717,293

7,902,034

8,090,710

8,284,060

8,482,282

764,989

9.9

Courts

21,707,265

22,252,682

22,809,714

23,380,583

23,965,881

2,258,616

10.4

Solicitor

3,244,250

3,316,960

3,389,133

3,462,311

3,536,686

292,436

9.0

Budget and
Finance

3,207,360

3,277,032

3,347,453

3,419,300

3,492,680

285,320

8.9

Administrative
Services

8,065,031

8,243,803

8,420,586

8,599,606

8,781,377

716,346

8.9

Correctional
Services

33,029,873

33,811,543

34,605,614

35,417,390

36,247,868

3,217,995

9.7

Operational
Services

%

5,836,134

5,971,634

6,107,510

6,245,778

6,386,710

550,576

9.4

Infrastructure,
Comm & Econ Dev

105,962

108,615

111,335

114,123

116,981

11,019

10.4

Judicial Records

6,017,022

6,163,592

6,312,607

6,464,955

6,620,810

603,788

10.0

Human Services

8,826,919

8,835,433

8,843,979

8,852,677

8,861,544

34,625

0.4

Public Defender

2,950,149

3,023,705

3,098,931

3,175,997

3,254,964

304,815

10.3

Retirement

124,620

128,771

133,079

137,548

142,186

17,566

14.1

Debt Service

25,583,640

26,546,397

26,541,508

26,127,534

6,274,889

-19,308,751

-75.5

Inter/Gov

8,552,110

8,552,110

8,552,110

8,552,110

8,552,110

0

0.0

County Reserve
Fund
Total

400,000

400,000

400,000

400,000

400,000

0

0.0

170,414,085

175,397,487

179,532,993

183,402,161

167,983,285

-2,430,800

-1.4

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Recommendations
1. Implement plan initiatives that impact expenditure reductions or increase
productivity. The County should undertake those initiatives and recommendations as policy
and operational priorities, particularly those that will have near term expenditure reductions
or operational changes leading to enhanced efficiency.
2. Address rising personnel costs (largest structural driver). Negotiate healthcare
cost-containment measures, such as plan design adjustments, wellness incentives, and
prescription management programs. Evaluate staffing efficiency, particularly in high-cost
departments such as Correctional Services and General Government. Expand shared
services or cross-departmental functions to reduce duplicative administrative roles.
3. Diversify and modernize revenue sources. Evaluate and implement modest real estate tax
adjustments as needed to maintain balanced annual budgets and prevent residents from
facing significant one-year increases caused by deferred fiscal action. Continue to explore
updates to fee schedules that have remained flat but may no longer reflect service delivery
costs. Make use of special purpose millage for debt service to
4. Consider special purpose tax millage for future debt service. Using special purpose tax
millage offers a municipality the benefit of collecting dedicated revenue for specific projects,
services, or incentives. This approach provides a stable funding source and gives taxpayers a
clear understanding of how their tax dollars are being used. Revenue collected from a special
purpose millage is legally restricted for its stated purpose. This prevents money from being
diverted for other general fund needs and provides a reliable income stream for debt service.
5. Review the hotel room rental tax rate. The County should evaluate raising the current 5
percent hotel room rental tax to generate additional resources for tourism promotion and
related activities that contribute to economic growth and a stronger tax base.
Securing support from local hotels, whose patrons pay the tax, will be essential, and the
County must provide detailed justification outlining how the increased revenue will directly
benefit tourism. This recommendation complements the broader operational strategy of
establishing a County marketing director position to lead coordinated tourism and marketing
initiatives.
6. Continue proactive land development efforts to strengthen the tax base. Given the
County’s dependence on property taxes as its primary General Fund revenue source, the
County should focus on strategies that enhance long-term property values. Efforts should
include coordinated land-use planning, blight elimination, zoning modernization, and
community and economic development initiatives in collaboration with public and private
partners, as noted in the operations recommendations. To advance this work, the County
should pursue necessary studies and planning activities using STMP Phase II funds and
eligible state grant opportunities. Examples of potential state grant programs are below.
•

Business In Our Sites Grants/Loans

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•

Act 13 Programs

•

Marketing to Attract Tourists

•

Pennsylvania Strategic Investments to Enhance Sites Program (PA SITES)

•

Main Street Matters

•

Municipal Assistance Program

7. Study impacts of LERTA and/or other tax incentives. Local Economic Revitalization
Tax Assistance (LERTA) allows taxing bodies in Pennsylvania to abate a portion of property
taxes on new construction or improvements for up to ten years, with the goal of stimulating
redevelopment in blighted areas. Program terms, such as the level and duration of tax
abatement, can vary significantly.
Luzerne County has wrestled with decisions regarding LERTA expansion in recent years,
weighing the need to encourage redevelopment of environmentally and industrially degraded
sites against concerns about lost revenue and taxpayer equity. LERTA continues to be widely
supported by economic development organizations and developers, yet the County’s heavy
reliance on property tax revenue adds complexity to its use.
To better inform future policy decisions, the County should consider undertaking a
comprehensive study, supported by STMP Phase II funds or other state grant programs, to
evaluate the impacts of LERTA, identify benefits and challenges, and develop clear policy
recommendations.
8. Reinstitute the Act 89 fee. Act 89 of 2013 authorized Pennsylvania counties to adopt an
ordinance imposing a $5 annual fee on each vehicle registered within the County, with the
Pennsylvania Department of Transportation collecting the fee and counties using the
revenue exclusively for transportation purposes.
Luzerne County implemented the fee in 2018, using the proceeds to repair, improve, and
maintain County roads and bridges.
According to a review of the Act 89 Fund, the fee generated just under $300,000 annually
for these critical infrastructure needs. In 2022, however, the Luzerne County Council
terminated the fee, and refunds were issued to residents who had prepaid.
Given Luzerne County’s limited revenue-raising authority and its heavy reliance on property
taxes, which account for roughly 80 percent of General Fund revenues, restoring the Act 89
fee represents a practical and equitable option.
Maintaining safe and functional roads and bridges is an essential public service that directly
affects residents’ health, safety, and daily mobility. The $5 fee is a minimal cost to vehicle
owners yet provides meaningful, dedicated funding for infrastructure improvements.
Reinstating the fee would strengthen the County’s transportation funding capacity while
reducing pressure on the property tax base.
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PennDOT Fact Sheet
9. Review status of tax exempt properties in the County. Pennsylvania’s constitution
allows property tax exemptions for “institutions of purely public charity” if that property is
regularly used for charitable purposes. The “HUP Test” laid out by the state Supreme Court
sets the standards that an organization must meet to be considered a purely public charity.
The County should ensure that all properties receiving the exemption are still eligible.
CCAP PowerPoint Template
10. Seek an increase in Payments in Lieu of Taxes (PILOT). The County should initiate or
continue discussions with nonprofit institutions to secure annual Payments in Lieu of Taxes
(PILOTs) that support County services. These conversations should emphasize the specific
services that directly benefit each nonprofit and the value of contributing toward those costs.
Research from the bipartisan, bicameral Pennsylvania Local Government Commission
indicates that nonprofits are more likely to agree to PILOTs when contributions are tied to
clearly defined purposes rather than general budget support. The County should review the
Commission’s PILOT report to identify effective strategies and best practices for structuring
these agreements.
PA Local Government Commission PILOT Report
11. Reduce reliance on 2030 debt service decline. The projected surplus in 2030 results
almost entirely from a reduction in debt payments. To avoid future fiscal concerns, begin
pre-planning for renewed borrowing cycles or capital needs after 2030 and consider
establishing a debt service stabilization fund using part of the 2030 surplus.
12. Consider hiring a licensed financial advisor. The County would benefit from a
professional to assess debt, determine financial opportunities and risks, and develop a fiscal
plan that aligns with County goals and needs. The County should use STMP Phase II
funding for this activity as appropriate.
13. Target efficiency improvements in high-growth departments. Departments showing 10
to 22 percent spending growth should be reviewed for potential savings:
a. General Government: assess procurement reforms and technology investments to
reduce overhead.
b. Courts and Corrections: expand diversion programs, remote proceedings, and
community-based corrections to reduce operational burden.
c. Administrative Services: automate routine tasks to lower long-term personnel costs.
14. Build a sustainable fund balance strategy. Use any temporary surpluses (notably in 2030)
to increase reserves. Target a minimum fund balance that protects against personnel cost
spikes or economic volatility.

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15. Plan for a County-wide reassessment. Assessment is not only a statutory responsibility of
countries, but also a powerful tool to ensure a fair, transparent, and fiscally responsible
property tax system. Research from the Center for Rural Pennsylvania demonstrates that the
more time that passes without a Countywide reassessment, the less revenue each mill
generates.
Just as importantly, the Center found that long gaps between reassessments lead to
significant inequities in the tax burden, with some property owners paying more than their
fair share while others pay far less.
To protect both revenue stability and taxpayer fairness, the Center recommends that
counties conduct reassessments at least every four years.
Luzerne County last completed a reassessment in 2009, more than a decade and a half ago.
During that time, the County has experienced substantial development, shifting market
values, and changes in land use. For these reasons, it is prudent for the County to begin
planning now for a new, modernized assessment.

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Chapter 4
Luzerne County Operations Report
Introduction
Luzerne County delivers a wide range of essential services through strong coordination across
departments and productive collaboration with municipalities and regional partners. The County
benefits from experienced staff, well-established systems, and deep institutional knowledge that
provide stability and ensure services are delivered consistently and effectively. These strengths form
a solid foundation for sustaining high-quality service while supporting ongoing improvement and
innovation.
At the same time, the County faces ongoing challenges. These include aging facilities and
infrastructure, workforce recruitment and retention pressures, compensation limitations, and uneven
levels of technological capacity. Addressing these issues is important not only to maintain current
service levels but also to ensure the County can respond effectively to future needs.
This chapter examines executive branch operations with the goal of identifying both strengths and
areas where improvement may be warranted. It reviews current organizational structures,
administrative practices, and service functions, and considers how existing resources are aligned with
operational demands. The analysis reflects documented conditions and observed practices following
interviews with the County Manager and division heads.
The purpose of this review is to support informed decision-making by County administration and
County Council while providing transparency to the public. The observations and recommendations
presented are intended to encourage continued organizational improvement, promote accountability,
and assist in balancing service delivery expectations with fiscal and operational realities.
Government Structure
Luzerne County operates under a home rule charter rather than under the state County Code. As a
result, its government structure differs significantly from the majority of Pennsylvania counties,
which function with a three-member commissioner board.
Under the charter, an 11-member County Council elected at large serves as the legislative branch.
Executive responsibilities and day-to-day operations are handled by a County Manager appointed by
the County council. In addition to the County Council, other elected County officials are the
controller and the district attorney, as well as the judiciary.
Traditional elected County row office functions such as recorder of deeds, register of wills, sheriff,
etc. are overseen by the manager through a system of several divisions. Each division is headed by
an administrator who oversees multiple departments. In addition, the administration of the prison is
overseen by a warden hired by the County Manager rather than a County prison board.
Operationally, the County appears to function well with appointed department heads and similar
structural changes made by the charter. One exception was the Elections Bureau, which operates

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with a volunteer Election Board and has experienced numerous challenges. However, it appears that
with new bureau and board leadership, those past issues have been resolved, at least for now.
County Manager 5
The County Manager serves as the chief executive and administrative officer of the County,
responsible for the day-to-day operation of County government and for carrying out the policies and
directives established by County Council. The role is focused on ensuring that County services are
delivered efficiently, that operations comply with applicable laws and ordinances, and that County
government is positioned to meet both current demands and long-term needs.
County administration has concentrated on stabilizing and coordinating operations across multiple
departments, including elections, information technology, and judicial support services. Efforts have
included advancing modernization initiatives, improving internal processes, and supporting
departments as they respond to increasing service demands with limited staffing and fiscal resources.
Attention has also been given to navigating workforce challenges, including recruitment and
retention difficulties in union-represented and specialized positions.
Infrastructure and facilities planning is a constant need. Certain County buildings require upgrades
to address aging systems, limited technology capacity, and unmet broadband needs. Bridge and road
repair is another consideration, among other infrastructure needs. The County’s current long term
capital plan is nearing its end and must be updated.
The County Manager’s office plays a central role in intergovernmental and regional collaboration.
This includes working with municipalities, nonprofit organizations, and private-sector partners on
initiatives related to tourism, recreation, infrastructure, emergency services, and economic
development. Participation in regional planning efforts, shared services, and County-to-County
coordination is intended to maximize limited resources and strengthen the County’s role within the
broader regional framework.
Under the Home Rule Charter, the County Manager is charged with implementing and enforcing all
applicable laws, charter provisions, ordinances, resolutions, and policies adopted by County Council.
The position carries responsibility for supervising County departments and agencies not assigned to
elected officials or the judiciary, either directly or through designated administrators.
The County Manager oversees personnel administration in accordance with the Personnel Code,
labor agreements, and applicable law, including appointments, discipline, and separations.
Fiscal and operational planning are core functions of the role. The County Manager prepares and
submits the annual operating and capital budgets, along with long-range plans addressing County
finances, infrastructure, and service delivery. Ongoing reporting obligations ensure that County
Council is kept informed of the County’s financial condition, operational status, and anticipated
needs. An annual State of the County report provides a comprehensive overview of these matters.

5 Manager duties under the Luzerne County Home Rule Charter are in the Appendix

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The Charter also authorizes the County Manager to negotiate and execute contracts, represent the
County in intergovernmental affairs, and support economic development initiatives. The role
includes public engagement responsibilities, such as conducting at least one annual public forum to
solicit community input.
In emergency situations, the County Manager is empowered to declare a local state of emergency
when necessary to protect life and property, exercising temporary authority as permitted by the
Charter.
The County Manager attends County Council meetings, participates in discussions, and may
recommend ordinances or policy actions, serving in an advisory capacity without a vote.
Division and Personnel Recommendations
Expand the Infrastructure, Community, and Economic Development Division 6
In addition to the responsibilities of the newly created Division of Community Planning &
Economic Development, additional duties should include the design and implementation of new
program initiatives that would be a benefit to the county particularly in the areas of neighborhood
revitalization, and affordable and quality housing.
Create a Marketing Specialist Position
While a Communications Director was created to manage internal messaging and crisis
communication, there is a distinct need for a Marketing Specialist focused on external engagement
and strategic promotion of Luzerne County.
Why It Is Needed
Economic Development Recruitment: Luzerne County is strategically located at the crossroads
of I-80 and I-81, making it ideal for logistics, manufacturing, and clean industry. A marketing
professional would help package and promote the County’s infrastructure, workforce, and location
advantages to attract targeted development.
Quality of Life Promotion: The County boasts significant natural beauty, trail systems, and
recreational assets. Marketing these features enhances tourism and supports the outdoor recreation
economy, which is increasingly important to businesses evaluating quality-of-life factors.
Strategic Branding: The County needs a cohesive brand identity to compete with other regions for
investment, grants, and talent. A marketing role would help develop messaging, visuals, and
campaigns that reflect Luzerne County’s strengths and vision.
Support for New Division: The newly proposed Division of Infrastructure, Community, and
Economic Development will oversee planning, zoning, GIS, tourism, and community development.
A marketing specialist would be integral to this division, helping to unify and amplify its efforts.

6 Luzerne County included this division in its 2026 budget and appointed a director in April 2026

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Partnership Engagement: Luzerne County works with multiple chambers of commerce, Penn
Northeast, and neighboring counties. A marketing professional can coordinate messaging across
these partnerships and ensure consistent representation of County interests.
Recommended Responsibilities
1.
2.
3.
4.
5.
6.

Develop and execute marketing campaigns for economic development
Create promotional materials for tourism and recreation
Manage external communications with business and development stakeholders
Collaborate with chambers, nonprofits, and regional partners
Maintain digital presence (website, social media, newsletters)
Track and report on campaign effectiveness

Proposed Location
The Marketing Specialist position would be located with Tourism in the old train station building.

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General Recommendations
1. Infrastructure Investment:
a. Seek STMP Phase II funding for studies for infrastructure needs including, but not
limited to, courthouse internet upgrades and bridge bundling.
b. Support the creation of the new Infrastructure, Community and Economic
Development division.
c. Explore feasibility of bringing engineering work in-house to reduce outsourcing
costs.
2. Staffing and Compensation Strategy:
a. Streamline management positions where possible and reallocate any savings to
increase salaries.
b. Continue to review FMLA practices and negotiate changes as needed through
collective bargaining.
3. Technology and Digitization:
a. Invest in software and equipment to digitize judicial files and enable electronic filing
with appellate courts.
b. Upgrade IT infrastructure in the courthouse and other facilities.
4. Emergency Services Expansion:
a. Develop a new building to house EMA and 911 services.
b. Secure funding for equipment upgrades and engineering/design studies.
5. Economic Development and Planning:
a. Continue collaboration with economic development agencies such as Penn
Northeast and evaluate their impact.
b. Pursue a comprehensive plan if not already underway, to guide land use and
development.
c. Leverage the outdoor recreation economy and tourism assets to attract investment.
6. Intergovernmental Collaboration:
a. Expand partnerships with neighboring counties for shared services and
infrastructure planning.
b. Document and promote collaborative efforts to strengthen funding applications.

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Administrative Services Division
The Administrative Services Division encompasses a broad range of operational and public-facing
functions essential to County government, including Licensing, Information Technology (IT),
Human Resources (HR), the Bureau of Elections, Tourism, Purchasing, and Community
Development.
The division is structured to provide administrative coordination, internal support services, and
regulatory oversight, with an emphasis on customer service, operational efficiency, and responsible
stewardship of taxpayer resources.
Across its departments, the division has focused on improving service delivery, strengthening
internal communication, and modernizing systems and processes where possible. Engagement with
professional associations and training organizations has supported staff development and
operational consistency, while cross-department coordination has helped address shared challenges.
Several operational areas within the division demonstrate strong capacity and performance.
Information Technology, Human Resources administration, Elections operations, and Purchasing
have benefited from focused management and improved internal coordination. Elections
operations, in particular, have shown notable improvement in recent cycles.
The adoption of artificial intelligence tools for documentation, training, and workflow support has
emerged as a valuable tool for increasing efficiency and institutional knowledge. Overall,
departments within the division maintain a customer-service orientation and demonstrate effective
communication across functional areas.
The Bureau of Elections operates within a governance structure established under the Home Rule
Charter, including oversight by a volunteer Election Board. This structure has, at times, created
operational complexity related to roles, policies, and administrative authority. Elections staffing has
experienced turnover, and the department has historically faced challenges related to errors and
process consistency. Seasonal staffing for elections remains a persistent challenge, often requiring
temporary reassignment of existing County employees.
Countywide staffing shortages extend beyond individual departments, with vacancies across a
workforce of approximately 1,350 employees. Compensation limitations have affected both
recruitment and retention efforts. Recruitment overall is complicated by regional labor market
competition and the administrative demands associated with leave management, including Family
and Medical Leave Act (FMLA) compliance.
While training opportunities are available through external partners and department-specific
initiatives, the lack of centralized internal coordination limits consistency. Emerging use of AI-based
tools presents opportunities to strengthen training, documentation, and knowledge transfer.
Technology and modernization efforts represent both a strength and an ongoing need. The IT
department has demonstrated proactive leadership and responsiveness; however, some divisions
continue to rely heavily on paper-based processes. Expanding access to modern tools, such as
tablets and digital workflow systems, is viewed as an important step toward improving efficiency and
reducing administrative burden, including for elected officials.
Facilities and space utilization also affect the division’s effectiveness. Administrative Services
departments are housed across multiple buildings, which can create operational inefficiencies and

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increase costs. Some departments operate from leased space, presenting opportunities to consolidate
operations within County-owned facilities to reduce expenses and improve interdepartmental
collaboration.
Procurement and policy administration are areas undergoing transition. More broadly, many internal
policies and procedures, including the employee manual, require updating. While revisions are
underway, progress has been gradual, underscoring the need for sustained focus on documentation,
distribution, and compliance.
Finally, discussions continue regarding the organizational alignment of Community Development
and related functions. Consideration has been given to restructuring certain departments to better
integrate planning, zoning, mapping, and development activities under a unified structure focused on
infrastructure and economic development.
Overall, the Administrative Services Division plays a central role in supporting County operations,
maintaining regulatory functions, and advancing modernization efforts. Addressing staffing, training,
technology, facilities, and policy standardization will be critical to strengthening the division’s
capacity and ensuring consistent, efficient service delivery across County government.
Recommendations
1. Fill existing positions as needed; increase salaries as able and necessary to attract qualified
candidates and reduce turnover.
2. Implement a robust internal FMLA management system, possibly supported by technology or
additional staff. Use FMLA tracking tools in New World if not already doing so.
3. Consider hiring permanent part-time workers specifically to work the primary and general
elections to reduce overtime and promote consistency in procedures rather than reallocating
existing employees.
4. Ensure that the Elections Bureau has written policies and procedures, as well as appropriate
training, to reduce the occurrence of errors going forward. Training and the review and update
of policies and procedures should be ongoing.
5. Continue to establish appropriate protocols between the Elections Bureau and the volunteer
Election Board as needed to preserve and protect the integrity of the election process and
guarantee that elections are safe and secure for all County residents.
6. Consider establishing a dedicated training director and expand training programs using CCAP
and AI tools.
7. Invest in technology upgrades, including tablets and digital systems for paper-heavy departments
and for County Council members.
8. Consolidate division facilities in County-owned buildings to reduce rental costs and improve
efficiency.
9. Support the restructuring of departments to create the new Infrastructure, Community and
Economic Development Division.
10. Ensure that County policies and procedures in all divisions are in writing and distributed, read
and signed as appropriate.
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Human Services Division
The Human Services Division encompasses a broad and complex range of programs that support
vulnerable populations and deliver critical social services across the County. Core functions include
Children, Youth and Families, Area Agency on Aging, Mental Health/Developmental Services,
Drug and Alcohol Services, Veterans Affairs, and the Office of Human Services (OHS). Together,
these departments administer mandated and discretionary programs, coordinate external service
delivery, and ensure compliance with state and federal funding and reporting requirements.
The Office of Human Services serves a central administrative role for the division, providing
oversight, coordination, and grant management while also handling human resources functions for
all human services departments. Staffing within this office is limited, which places additional
demands on existing personnel and underscores the importance of efficient systems and
interdepartmental cooperation.
The division has emphasized collaboration across departments to better align services and improve
client outcomes. One significant initiative has been the implementation of coordinated response
teams that connect Children, Youth and Families with Mental Health/Developmental Services and
Drug and Alcohol programs. These efforts are intended to reduce service gaps, improve case
coordination, and promote more effective use of resources. Regular interdepartmental
communication supports shared problem-solving and early intervention strategies.
Area Agency on Aging operates an extensive network of active adult centers throughout the County,
offering programming that has demonstrated strong participation and community engagement.
These centers provide social, recreational, and support services that contribute to quality of life for
older residents and reflect effective outreach and program design. Although the department
experiences staffing constraints, coverage models and helpline support have helped maintain service
continuity.
Mental Health/Developmental Services and Drug and Alcohol Services function primarily as
administrative and oversight entities, contracting with external providers for direct service delivery.
This model supports cost efficiency and allows the departments to focus on compliance,
monitoring, and coordination. Staffing levels are modest, and opportunities exist to improve space
utilization within County facilities to better support administrative needs.
Veterans Affairs provides targeted support services to County veterans and operates with a stable
staffing structure and low turnover. While operationally stable, the department is physically
separated from other human services offices, which may limit opportunities for collaboration and
shared resources.
Children, Youth and Families faces the most significant operational pressures within the division.
High turnover, lengthy onboarding timelines, and widespread vacancies have affected stability and
service capacity. Caseloads in excess of recommended standards place strain on staff and elevate
retention risks. On-call coverage remains challenging despite financial incentives, and leave usage
further complicates scheduling and workforce management. Although the County’s required
financial match for state funding is relatively modest, overall expenditures still represent a substantial
fiscal commitment.

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Across the Human Services Division, staffing challenges are compounded by funding complexities
and increasing service demands. Continued coordination, workforce planning, and structural
adjustments are central to sustaining service delivery and managing long-term costs.
Recommendations
1. Fund additional vacancies in Children, Youth and Families to reduce caseloads and
improve retention.
2. Implement targeted FMLA policy revisions to prevent misuse and ensure fair coverage.
3. Improve on-call incentives and support structures, possibly through flexible scheduling or
shared coverage models.
4. Expand interdepartmental collaboration, building on the success of the Response Team
and weekly coordination meetings. One goal is to provide support for parents so that
children do not require costly placements.
5. Continue to ensure appropriate budgeting to avoid the potential for costly overruns that
become the County’s responsibility.
6. Standardize fiscal and training systems where possible to improve oversight and efficiency
across divisions.
Budget and Finance Division
The Budget and Finance Division is responsible for the County’s core financial operations and fiscal
oversight. The division includes Budget and Finance, Assessment, and Treasury functions and plays
a central role in financial planning, revenue management, expenditure control, and administrative
support for County government. As part of County executive administration, the division supports
policy implementation through financial analysis, reporting, and operational controls.
Internal budget development is supported by a structured budget committee that includes
representation from across County departments, promoting transparency and shared accountability.
Financial operations have benefited from proactive cash management practices, including banking
negotiations that have improved interest income. The division has also emphasized modernization
and continuous improvement in its financial practices and systems.
Recent fiscal policy has focused on maintaining stable tax rates, with budgets balanced through
one-time revenues and interest earnings. While reserve levels remain healthy, reliance on
non-recurring funds presents long-term challenges as operating costs, contractual obligations, and
service demands continue to rise. Public and political perceptions regarding fund balance availability
complicate discussions around sustainable revenue strategies and long-range financial planning.
The County is often in the position of “floating” funds to Human Services for items such as payroll
and foster family payments as it is waiting for state reimbursements, which is apparently not an
unusual situation.
Facilities and space utilization present additional operational considerations. Space allocation across
County departments is uneven, with some offices underutilized and others experiencing
overcrowding. Several departments operate from leased facilities, creating ongoing costs and
highlighting opportunities for consolidation into County-owned properties to improve efficiency
and reduce expenses.

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Technology modernization has improved several core systems. The financial management system
supports budgeting and payroll functions, with payroll now handled internally. Timekeeping and
benefits administration systems are in place through use of applications or “apps,” and property
assessment software has been upgraded. However, broader investments in hardware, software, and
system integration remain ongoing to fully support operational efficiency and data reporting needs.
Overall, the Budget and Finance Division plays a critical role in maintaining fiscal stability,
supporting informed decision-making, and positioning the County for sustainable financial
management. Addressing structural budget pressures, facilities utilization, staffing stability, and
technology investment will be key to meeting future operational and policy goals.
Recommendations
1. Continue educating the County Council on the importance of phased tax increases to
adequately fund operating costs and preserve long‑term fiscal stability.
2. Invest in IT infrastructure as needed, prioritizing both hardware and software upgrades to
support operational efficiency.
3. Reform FMLA management, possibly through contract revisions or updated policies, to
reduce abuse and ensure fairness.
4. Sell underutilized County-owned properties to reduce maintenance costs and generate
revenue.
5. Support Human Services with cash flow solutions, particularly in light of delayed state
reimbursements.

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Operational Services Division
The Operational Services Division is responsible for the oversight, maintenance, and coordination
of the County’s physical infrastructure and essential operational functions. This division supports
core services related to transportation infrastructure, County facilities, emergency services, solid
waste and recycling coordination, planning and GIS functions, and operational support systems. The
division plays a central role in ensuring the safety, functionality, and long-term sustainability of
County assets.
The division benefits from experienced staff across multiple departments and a collaborative,
team-oriented culture that supports adaptability and continuous improvement. Certain functional
areas, particularly planning and geographic information systems (GIS), are well staffed and operating
effectively, providing strong analytical and mapping support for County initiatives. Recent upgrades
to operations facilities also present opportunities to improve space utilization and operational
efficiency.
At the same time, the division faces several structural and resource challenges that affect its ability to
meet current and future demands. One gap is the absence of in-house engineering capacity. The
County oversees critical infrastructure assets—including roads, bridges, and public facilities—but
relies heavily on third-party engineering firms for planning, design, and oversight. This reliance can
increase costs, slow coordination, and limit responsiveness, particularly for time-sensitive or
complex capital projects. The County has attempted to recruit for this position in the past but was
unsuccessful.
Road and bridge operations have experienced staffing reductions over time, limiting in-house
responsibilities primarily to basic maintenance activities such as paving, snow removal, and
stormwater management. Major projects are routinely outsourced. Meanwhile, the County is nearing
the end of its capital improvement plan, which guides long-term investment and prioritization.
Buildings and Grounds operations face similar pressures. While responsible for maintaining County
facilities, the department would benefit from clearer organizational structure and dedicated project
management oversight. In addition, several specialized trade positions are approaching retirement,
underscoring the need for succession planning. Custodial services are limited, prompting
consideration of alternative service delivery models to ensure consistent facility maintenance.
Emergency services functions—including 911 communications and emergency management—are
critical components of the County’s public safety infrastructure. These services are increasingly
impacted by growth pressures, technological demands, and workforce shortages. Recruitment and
retention of 911 dispatchers remain challenging despite adjustments to compensation and
scheduling. Existing facilities support command and coordination capabilities and include backup
systems to ensure continuity of operations; however, the primary 911 center is constrained in size
and capacity and cannot accommodate projected growth or advanced technology integration.
Planned and proposed developments, including large-scale industrial and data-driven facilities, are
expected to significantly increase demand for emergency response services. Meeting these needs will

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require investment in engineering, facility design, staffing, and modernized communications systems,
supported by a combination of public funding and private-sector partnerships.
Solid waste and recycling functions focus on education, coordination, and special collection
programs. Staffing in this area has been significantly reduced, placing increased reliance on a small
number of experienced personnel. The limited workforce heightens the importance of succession
planning to preserve institutional knowledge and maintain program continuity. Technology support
across operational units is generally effective, but system gaps remain. Written policies and
procedures also vary across operational functions.
Overall, the Operational Services Division is foundational to County government, providing
essential infrastructure, safety, and operational support. Addressing engineering capacity, workforce
sustainability, capital planning, facilities modernization, technology integration, and policy
standardization will be critical to enhancing the division’s effectiveness and preparing for future
growth and service demands.
Recommendations
1. Evaluate hiring an in-house engineer and reduce reliance on external firms.
2. Develop a new capital improvement plan for roads and bridges to guide long-term
maintenance and investment.
3. Plan for succession in Solid Waste/Recycling and skilled trades (electrician, plumber) to
ensure continuity.
4. Improve IT systems and software as needed.
5. Create and maintain written policies and procedures across all departments to standardize
operations.
6. Evaluate contracting out cleaning services versus maintaining in-house staff to improve
service quality and efficiency.
7. Develop a new Emergency Services Facility:
a. Co-locate EMA and 911 services in a modern, purpose-built facility.
b. Ensure the new space supports expanded staff, upgraded technology, and secure
operations.
8. Upgrade 911 Equipment and Technology:
a. Replace aging systems with modern communications, dispatch, and coordination
tools.
b. Ensure compatibility with regional and state emergency systems.
9. Secure Funding and Partnerships:
a. Engage private sector partners (e.g., data centers) to contribute to infrastructure
costs.
b. Pursue state and federal grants for emergency services expansion. Grants are
available through the Federal Emergency Management Agency or the Pennsylvania
Emergency Management Agency. Certain activities may also be eligible for STMP
Phase II funding.
10. Expand and Train:
a. Increase union personnel to meet growing service demands in the Operations
Division.
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b. Provide ongoing training in emergency response, technology use, and coordination
protocols.

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Corrections Division
The Corrections Division is responsible for the operation and management of the County
correctional facility, including inmate custody, security, health coordination, rehabilitation
programming, and compliance with applicable legal and regulatory standards. The division operates
in a highly regulated environment and plays a critical role in supporting public safety and the broader
criminal justice system.
Operational priorities include institutional safety, staff development, inmate rehabilitation, and
coordination with County departments and external service providers. The facility maintains an
accredited in-house training academy that supports employee onboarding, certification, and
continuing education. Standard operating procedures and employee policies are regularly reviewed
and updated to align with best practices and evolving operational needs. Recent enhancements to
training and safety protocols have been implemented to reduce workplace incidents and improve
overall facility security.
The division supports a range of inmate programs designed to improve outcomes and reduce
recidivism. These include educational opportunities such as GED preparation, vocational and
food-safety certification programs, and substance use treatment services, including
medication-assisted treatment. Inmates also have access to commissary services and tablet-based
education, communication, and programming platforms that support learning and institutional
management.
Staffing across the facility includes correctional officers, medical personnel, counseling staff, and
food service employees. Workforce stability remains a significant operational challenge. Persistent
turnover—particularly among medical staff and newer correctional officers—has increased reliance
on overtime and contributed to burnout. Retirements among experienced staff further affect
continuity and institutional knowledge. Staffing models are constrained by minimum coverage
requirements, facility design elements that require higher supervision levels, and the absence of
supplemental staffing options such as part-time or retired personnel for specialized assignments.
Overtime expenditures present a substantial budgetary pressure for the division. Despite reductions
in budgeted overtime allocations, actual expenditures have remained high due to staffing shortages,
mandatory coverage requirements, and medical transport obligations. Union contract provisions
related to overtime assignment limit scheduling flexibility and complicate long-term cost control
strategies.
Medical and mental health services are a central component of facility operations. Care is provided
through a combination of contracted medical services and County staff, with extended shifts
introduced to improve coverage and reduce gaps. The inmate population presents increasingly
complex medical, mental health, and substance use needs, driving higher demand for treatment and
hospital transport. To address these challenges, the division is evaluating options to expand in-house
medical and mental health capacity to improve care delivery and reduce external transport costs.
Inmate population trends also influence operational planning. The facility has experienced growth in
older inmates and individuals requiring specialized medical and behavioral health services. Following
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pandemic-related fluctuations, population levels are rising again, necessitating adjustments in staffing
models, infrastructure, and program capacity to meet changing needs.
The Corrections Division maintains ongoing coordination with County administration, human
resources, legal counsel, and external partners to manage staffing, compliance, budgeting, and
operational risk. Continued investment in workforce development, infrastructure planning, medical
services, and policy refinement is essential to sustaining safe operations, controlling costs, and
supporting rehabilitation and public safety objectives.
Recommendations
1. Explore the feasibility of a medical/mental health annex to reduce hospital transports and
improve inmate care.
2. Reassess staffing levels and consider the targeted use of part-time or retired staff for roles
like hospital duty or transport.
3. Continue investment in training and inmate programs, expanding partnerships with
educational and community organizations.
4. Monitor and manage overtime through staffing analysis, contract review, and operational
adjustments.
5. Continue SOP review to ensure policies are efficient, current, and aligned with best
practices.

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Judicial Services and Records
The Judicial Services and Records function encompasses a broad portfolio of departments that
support the County court system, protect public records, and ensure the orderly administration of
justice. These functions include the Clerk of Courts and Prothonotary, Recorder of Deeds, Register
of Wills, Clerk of Orphans’ Court, Coroner’s Office, Sheriff’s Office, and the Records Retention
Facility. Collectively, these offices play a critical role in maintaining accurate legal records, providing
public access to information, ensuring courthouse security, and preserving historical and official
documents.
The division supports both the judiciary and the public through recordkeeping, case processing,
document management, and enforcement services. Accurate and timely processing of filings, deeds,
wills, court records, and related documentation is essential to the functioning of the courts and to
public trust in County government. The Records Retention Facility supports these efforts by
maintaining archived documents in accordance with established retention schedules, with regular
review and authorized disposition processes in place.
The division benefits from experienced staff in several departments and a culture of internal
communication and problem-solving. Informal collaboration with the courts supports daily
operations, although formalized structures and agreements remain limited. Many functions rely
heavily on institutional knowledge and long-tenured employees to manage complex, rule-driven
processes.
Staffing challenges affect multiple offices, particularly those responsible for court filings and case
management. Turnover has resulted in the loss of experienced personnel and increased pressure on
remaining staff. Recruitment is constrained by non-competitive salaries, despite the availability of
strong benefits. Many offices operate with minimal supervisory layers, often with a single manager
overseeing union-represented staff, which can create gaps in oversight and limit continuity during
absences. Formal succession planning has not been consistently implemented across departments.
Training and supervision structures vary. Efforts to enhance training capacity and documentation
are ongoing but have not yet been fully implemented.
Technology and modernization remain areas of need. While some digitization has occurred, other
processes continue to rely on manual workflows. Electronic filing systems require manual review,
and court rules often mandate physical paper submissions. Existing software platforms are limited in
their ability to integrate or automate processes, and some hardware systems are outdated.
Additionally, historical records—such as naturalization documents stored on aging microfilm—face
preservation risks, underscoring the need for prioritized digitization and modern records
management solutions.
The Sheriff’s Office plays a key role in courthouse security, prisoner transport, and execution of
court orders. Staffing shortages and reliance on overtime affect operational sustainability, and
competition from neighboring jurisdictions complicates recruitment efforts. Inconsistent security
coverage across facilities raises concerns about safety for the judiciary, staff, and the public.

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Overall, the Judicial Services and Records function is essential to the administration of justice and
public accountability. Long-term sustainability will depend on addressing staffing stability,
strengthening training and succession planning, modernizing technology and records preservation,
and ensuring consistent security and operational standards across all departments.
Recommendations
1. Create deputy or assistant manager roles in union-heavy offices to ensure continuity and
support when primary supervisors are unavailable.
2. Expand training programs and implement formal succession planning to preserve
institutional knowledge and improve onboarding.
3. Increase salary competitiveness to attract and retain qualified staff, particularly in highturnover departments.
4. Invest in technology upgrades, including hardware and software improvements, and
prioritize the digitization of deteriorating records.
5. Address budget constraints that limit technology investments, potentially through grant
opportunities or reallocation of funds.

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Office of Law Division
The Office of Law serves as the County’s central legal authority for all non-criminal matters and
provides comprehensive legal support to County government. Criminal defense functions are
managed separately through the Public Defender and Conflict Counsel, while the Office of Law
oversees civil litigation, legal compliance, and advisory services across all County departments.
Core responsibilities of the division include managing internal and external litigation, reviewing and
negotiating contracts, providing legal guidance on human resources and labor matters, supporting
Children, Youth and Families legal operations, handling insurance-related claims, and advising on
elections, taxation, planning and zoning, and regulatory compliance. The office operates with a high
degree of coordination with County administration, County Council, fiscal offices, and operational
departments to ensure consistent and timely legal support.
The division is structured to manage a wide range of specialized legal functions. Internal attorneys
and support staff handle discrete areas of practice, allowing the office to address complex and varied
legal needs while limiting reliance on outside counsel where appropriate. Litigation strategies
prioritize early assessment, efficient case management, and cost control, with an emphasis on
minimizing unnecessary filings and managing risk exposure. Preventive legal measures, including
policy and operational adjustments in high-risk areas, are used to reduce litigation frequency and
severity.
Technology plays a central role in the division’s operations. The office uses modern legal research
platforms, case management systems, and updated hardware to support workload management,
document review, and legal analysis. Recent facility improvements have enhanced workspace
functionality and supported more efficient collaboration among staff.
Staffing and recruitment present ongoing operational challenges, particularly in the Children, Youth
and Families legal function, which supports highly regulated and resource-intensive programs. While
positions are authorized for a larger full-time staff complement, current vacancies and reliance on
part-time attorneys limit capacity and place pressure on existing personnel. Although the use of
part-time attorneys allows for flexibility and specialization, effective coordination is required to
maintain continuity, consistency, and responsiveness across matters with high volume and strict
timelines.
Litigation and insurance management are significant and ongoing responsibilities for the Office of
Law. The County operates under a self-insured retention structure, requiring it to cover initial claim
costs before insurance coverage applies. While insurers assign outside counsel for covered claims,
the Office of Law remains actively involved in overseeing litigation strategy to manage costs and
protect County interests. A substantial portion of litigation arises from correctional facility matters,
Children and Youth cases, and nuisance or civil rights claims, each requiring careful legal oversight
and coordination with operational departments.
Settlement approval processes and external oversight requirements introduce additional complexity.
Settlements often require formal authorization, which can affect timing and case resolution. The

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office also responds to complaints and investigations from federal oversight agencies, requiring
careful documentation, compliance review, and interdepartmental coordination.
Budget constraints affect the division’s ability to absorb unpredictable litigation expenses. Legal
costs are inherently variable, and the absence of budget flexibility can complicate planning and
resource allocation. Even when appropriated funds are exhausted, legal obligations related to claims
and settlements must be met, underscoring the importance of realistic budgeting and risk
management.
Overall, the Office of Law plays a critical role in safeguarding the County’s legal and financial
interests, ensuring regulatory compliance, and supporting informed decision-making across all
departments. Continued attention to staffing capacity, litigation oversight, technology use, and
budget alignment will be essential to sustaining effective legal operations as service demands and
legal complexity increase.
Recommendations
1. Continue efforts to recruit full-time attorneys for Children, Youth & Families.
2. Maintain and expand internal litigation oversight.
3. Ensure the legal budget is sufficient to meet obligations.
4. Consider additional support staff as workload grows.
5. Continue to leverage technology and interdepartmental communication.

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Chapter 5
Luzerne County Facilities Review
Introduction
Luzerne County faces a choice between renovating existing facilities and building a new government
center as it seeks to modernize facilities that do not meet current needs on a range of issues. Both
options should be weighed in terms of cost, efficiency and functionality.
The County currently owns or leases a wide array of buildings, some of which are not being used to
their fullest potential, while several others are overcrowded. In addition to these space issues, other
facility challenges range from financial and security concerns to ensuring that affinity groups are
located near each other to improve workflow and enhance customer service.
Several facilities, such as the Human Services Building, 111 North Pennsylvania Avenue, WilkesBarre; Penn Place, 20 North Pennsylvania Avenue, Wilkes-Barre; and the Operations Building, 1199
Wyoming Avenue, Wyoming, contain significant amounts of vacant or inefficiently configured
space.
In contrast, the courthouse and court related buildings are often trying to put too many people in
too little space. The situation can become dangerous, such as when offenders and victims are forced
to share close quarters in crowded waiting areas.
The layout and infrastructure of several buildings present challenges. Penn Place and the Human
Services Building are particularly difficult to navigate, creating a poor experience for both staff and
the public.
Security concerns are prevalent, not just at the courts, but also at buildings like Penn Place and in the
parking garage. While historically and architecturally significant and central to County operations,
the courthouse’s age and design complicate maintenance and modernization efforts.
Several departments, such as Community Development, Children, Youth & Families attorneys and
Domestic Relations, operate out of leased spaces that may not be cost-effective in the long term.
Space considerations have moved to the forefront in part because the County will soon employ at
least one new judge (and possibly more) who will require a courtroom and chambers. That has
sparked discussions to create a dedicated Family Court Center, which is currently in the works, along
with improvements to Central Court.
Looking ahead, the County is exploring the development of a new prison facility, with its location
influencing whether the design will be urban or rural. Additionally, there is momentum behind
creating a new division focused on infrastructure, community, and economic development, and
discussion of where that division would best be located.
One potential solution is to develop a modern one-stop shop government center near the
Susquehanna River, which could help revitalize downtown Wilkes-Barre and streamline County
operations. This would entail selling at least two County buildings. The other alternative is to

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renovate and modernize the existing buildings, which could be costly and difficult. This facilities
review will focus on the spaces and departments most in need of change.
Court System Campus, including the 1906 Luzerne County Courthouse, the
Brominski Building (Family Court) and Central Court
The court system faces a range of operational and infrastructure challenges that significantly impact
its ability to serve the public efficiently and safely. At the heart of these issues is the courthouse
itself, which, while architecturally beautiful and historically significant, is struggling to meet the
demands of a growing caseload and evolving public needs.
One of the most pressing concerns is space constraints and overcrowding. The 1906 Luzerne
County Courthouse is frequently overwhelmed, particularly during jury selection and high-profile
cases. Judges, attorneys, and staff are often crammed into inadequate office and courtroom spaces.
With the expansion of the County’s treatment court, which was originally only substance abuse, to
include DUI and Mental Health/Developmental Services, more space is needed for the necessary
staff.
Courthouse Layout
Use

Challenges

Comments

Basement
Protection from Abuse Office
(PFA)

Overcrowded and needs
expansion; security
concerns

Move to Brominski Building

Credit Union

—

Small, leased space (revenue source); vacating in
future

Sheriff’s Department

—

Includes break room & surveillance center

Café

—

Leased space (revenue source)

Court Administration

—

—

District Attorney’s Detectives

—

—

Youth Aid Panel Conference
Room

—

—

Assistant District Attorneys
(ADAs)

—

Contains two offices

GIS Mapping

Occupies large space;
not consistent with
Courthouse use

Recommended for relocation

Buildings and Grounds

—

—

Mail Room

Security risk from
unscreened mail

Recommended for relocation

First Floor

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Use

Challenges

May 2026

Comments

District Attorney’s Office

Large space but
overcrowded

More space needed for private offices and
conference room

Courtroom

—

—

Court Reporters

—

—

County Council Chambers and
Office

Occupies large space;
not consistent with
Courthouse use

Recommended for relocation

Treatment Court

Outgrown space

Limiting program entry due to space restrictions

One Large Courtroom

Requires renovation

—

One Small Courtroom

Not suitable for jury trials

—

Jury Waiting Area

—

Large room with rows of chairs

Prothonotary & Clerk of Courts

—

—

Law Library

Occupies large space;
historic

Potential for relocation

Three Courtrooms

—

Large courtrooms with jury boxes

Small Courtroom

Requires renovation

Used for dependency hearings

Six Judicial Chambers

One in poor condition

Most have been renovated

Court Mediation Office

Too small for its purpose

—

No elevator access;
reachable by steep
marble staircase

Formerly jury deliberation; now storage

Second Floor

Third Floor

Fourth Floor
Two Small Rooms

Brominski Building Family Court Proposal
The three-story Brominski Building, located at North and Water streets, houses family court and
domestic relations. Domestic relations have recently contracted for rented space in Kingston and are
moving out of the building. The court proposes to renovate the Brominski Building into a Family
Court Center once domestic relations has vacated the space:
Use

Notes

Proposed First Floor
Intake and Waiting Area for Family Court

—

PFA

Now in Courthouse

Family Court Administration

Now on Brominski Third Floor

Proposed Second Floor
Family Custody

—

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Divorce Court

—

Two Court Rooms

One with no jury box

Proposed Third Floor
Judge Stephanie Salavantis’ Chambers

—

Judge Jennifer Rogers' Chambers

—

Two Court Rooms

One with no jury box

Four Hearing Masters

—

Additional Court Concerns
Safety and security are major concerns for the courts. Judges and staff face risks due to the lack of
secure parking and limited sheriff presence, especially after hours. The courthouse operates with
only one public entrance, which creates bottlenecks and heightens security vulnerabilities. The
mailroom, which lacks proper screening, poses a potential threat, and Central Court, located near the
prison at 77 Water Street, is described as unsafe, with inadequate waiting areas and frequent
incidents of intimidation.
Navigation and accessibility within the courthouse compound these problems. Poor signage leads to
confusion for visitors, and steep marble stairs combined with limited elevator access hinder mobility.
Central Court’s shed-like entrance is particularly unwelcoming and confusing for those unfamiliar
with the facility. The administration plans to relocate Central Court to another building on Water
Street that now houses elections storage including voting machines. New voting machines will not
require the same space.
The condition of the facilities themselves is another area of concern. Some courtrooms and
chambers are in disrepair, suffering from water damage and outdated infrastructure.
The courthouse’s placement on the National Register of Historic Places also might complicate
efforts to modernize. Depending on the nature of the renovations, the project could trigger a review
by the Wilkes-Barre Historic Architecture Review Board. Use of federal funds for renovation most
likely would also carry restrictions based on the designation. The building’s period physical structure
itself also creates impediments to modern improvements.
Technological limitations further hinder operations. Wi-Fi and cell signals are weak due to the
building’s thick concrete walls, and the IT infrastructure is outdated and difficult to upgrade. These
issues are exacerbated by disjointed court operations, with key departments scattered across multiple
buildings. This lack of centralization hampers coordination and efficiency.

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Human Services Building
The bulk of Human Services offices are in the 70,000 square foot Human Services building at 111
North Pennsylvania Avenue, Wilkes-Barre, which was built in 1940. The three-story building is
owned by Luzerne County and includes a large parking lot with ample space. The entrance that
fronts on North Penn Avenue and leads directly to Aging’s first floor offices is closed to the public.
All visitors must go through a side entrance adjacent to the parking lot that is staffed with security.
The building itself is disjointed with numerous staircases and doors connecting the “front” and
“back” halves with a narrow atrium in between. There are two floors in the front half and three
floors in the back half. The maze-like situation makes it difficult to maneuver. As an example, there
is no way to get directly from the second floor of the “front” to the second floor in the “back.”
The entrance and security are located in a small area adjacent to Children, Youth & Families
reception. However, there is no main reception for the entire building. Aging, located on the first
and second floors in the building’s front half, has a receptionist on the first floor that is accessed
through a series of doors once leaving security.
Drug and Alcohol, located on the second floor of the building’s front half, has a reception area that
is not staffed given the logistics of the building entrances. The front portion of the building also
includes Human Services administration offices and an elevator that is considered unreliable.
Funding for elevator repairs has been identified.
The back portion of the building has Children, Youth & Families on the first and second floors, and
Mental Health/Developmental Services on the third floor.
Navigating the building for the public was described as “confusing,” with the problem being “no
one knows where to go.” Veterans Affairs is in its own two-story building at 61-63 Water Street
even though there is an abundance of space in the Human Services building.
In terms of employees, the layout has contributed to the various departments being “siloed” since
there is little interaction. Attempts have been made to create an employee lounge type space in the
atrium to bring employees from different departments together. The space, which can get
uncomfortably warm, did not appear to be well used.
The six attorneys assigned to Children, Youth & Families are in nearby rented offices. It was unclear
why the attorneys were not in the Human Resources building given the abundance of space.
Poor use of space is one of the building’s main problems. There are a significant number of vacant
offices on certain floors, at least more than 20 on one, while others have been renovated to create
palatial offices and break areas that waste space. There are also numerous large conference rooms
that are underused. In particular, the third floor only houses about 20 to 25 employees. Actual
vacancy counts are somewhat of a moving target given the amount of turnover and related factors.

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Penn Place
Penn Place at 20 North Pennsylvania Avenue, Wilkes-Barre, is an 88,000 square foot, County-owned
building constructed in the 1970s. The building was described as having multiple areas of wasted and
inefficiently used space such as outside of elevators and in certain offices like the controller, in
addition to security concerns related to the fact that the building sits on stilts above a parking lot.
There has been turnover in the building recently as the Office of Law moved out to another County
facility and the credit union is expected to vacate its space by the end of 2025. In addition, an office
formerly used by a local representative was empty.
Information Technology has also recently relocated there from the County Annex Building.
There is also discussion of creating a department to include community development, GIS/Planning
& Zoning. Community development is in rented space at 93 State Street and GIS is in the
courthouse basement. This new department potentially could be located in the Operations Building
or another County owned building.
The multi-purpose building has three floors:
Use

Comments

First Floor
Licensing Office

Near entrance and behind glass

Sheriff’s Holding Cell
Storage Areas

General County storage

Sheriff’s Station

Security with metal detector

Second Floor
Controller’s Office

Large amount of underutilized space

Former Office of Law Suite

Vacant; includes five offices and a reception area

Former Rep. Cartwright’s Office

Vacant

Credit Union

Vacated by end of the year

Planning and Zoning Office

Occupied and functioning

Elections Office

Includes a storage room for poll books.

Accounts Payable (AP)

Located in the back hallway.

HR Conference Room

Used for orientation and meetings

Purchasing Department

Described as occupying a large space

Human Resources (HR)

Described as occupying a large space

Public Defender’s Office

Described as occupying a large space

DUI Coordinator’s Office

Small office near elections

Third Floor
County Manager’s Office

Includes Budget and Finances while under renovation

Budget and Finance Department

Under renovation

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Comments

Treasurer’s Office
Payroll Department

Located in a small office in the back hallway

Probation Department

Occupies most of the third floor

Retirement Office

Located near the elevator, in a small, converted space

Break Room

Small room used by staff.

Courtroom and Chambers

Vacant but maintained as an emergency courtroom

Elite Revenue

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Operations Building
The Operations Building, 1199 Wyoming Avenue, Wyoming, is a newly renovated 9,500 square foot
structure with a media room that houses the recycling/solid waste and engineering departments.
Reportedly five individuals work from the building. The media room is available for public rentals.
The building is not in the County’s center city footprint and instead it is approximately a 10 to 15
minute drive from the courthouse.
Funds for the $4 million renovation were obtained through recycling grants, and the renovation
made extensive use of recycled materials. The building, formerly an Air Reserve Center, is located
near the Wilkes Barre Wyoming Valley Airport.
There have been discussions about moving the proposed GIS/ planning/zoning/community
development division to the Operations Building, as noted previously. One consideration is the
amount of public traffic that would be needed between this department and the other County
offices located in downtown Wilkes-Barre.

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Correctional Facilities
The main prison facility at 99 Water St, Wilkes-Barre, built in 1867, has a capacity of 540 beds, with
a current population of around 443 inmates. The Minimal Offender Unit (MOU), 40 Reichard St.,
has a capacity of 240 but houses only 111 inmates. Mental health and medical needs can require
inmates to be housed alone, reducing cell capacity. The outdated facility layout hampers staffing
efficiency. A feasibility study for a new facility or annex is under discussion. Prison facilities are
currently concentrated on Water Street, including the Training Building at 61-63 Reichard St.

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Quantitative Data
Occupancy Target and Number of Office Spaces
The data below provides a rough estimate of the amount of space in each building that is available for occupancy. The table was developed
using federal space utilization standards. The federal standard uses a formula of 60 percent of total usable space, which excludes halls,
break rooms, conference rooms and similar areas. However, total usable space was not provided for these buildings, and so total square
footage was used as a substitute. The Occupancy Target was then used to calculate the available Number of Office Spaces.
Table 1 Select Luzerne County Buildings, 2025
Name

Street Address

Year
Built

Square
Footage

Calculated
Occupancy
Target 7

Annex

N River And Jackson Streets

1880

7,036

4,222

Human Services

111 N Pennsylvania Ave

1940

70,000

Penn Place

20 N Pennsylvania Ave

1991

Operations

1199 Wyoming Ave, Wyoming

Courthouse

200 N River St

Calculated #
Office
Spaces 8

Occupancy

Comments

28

Prothonotary/Recorder of
deeds/Register of Wills

Prothonotary lacks space

42,000

280

CY&F, Aging, Mental
Health/Developmental
Services, Drug & Alcohol,
Human Services

Lots of vacant and
wasted space

88,000

52,800

352

AP, HR, Elections,
Manager, Probation,
Treasurer, Purchasing,
Controller, Planning &
Zoning, Public Defender,
Budget & Finance,
Controller, IT, Licensing,
Admin Services

GIS/Planning, Zoning,
Community Development,
to form new division.
Possibly move to
Operations Building or
Human Services? Wasted
and potentially vacant
space. Security concerns.

1985

9,500

5,700

38

Recycling and Engineers

Only 5 people in building

1906

154,612

92,767

618

Courts, DA, Sheriff, GIS

Lack of space for court
functions. Includes
council offices and
chambers.

7 Occupancy target is a minimum average annual occupancy of 60% of total square footage.
8 Occupancy footage was divided to determine number of offices the building could hold using the design standard of 150 square feet

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Brominski Building

North And Water St.

4,200

2,520

May 2026

17

Courts, Domestic
Relations

Domestic relations moved
or moving to rented
building. Plan to renovate
for Family Court

Usable Square Footage Needs
The table below calculates the number of Full Time Equivalent employees (1,563 FTEs) and uses that to calculate the amount of Usable
Square Footage (234,438 sq. ft.) that is needed to house those employees.
Table 1 Select Luzerne County Buildings, 2025
Division/Department

Count of Emp ID

Sum of FTE

Sum of USF Calculation

10-General Government
4111-County Council

12

3.75

562.5

4112-County Manager

3

3

450

5

5

750

4194 - District Attorney

106

92

13800

4199-DA Highway & Dui

3

2

300

4183 - District Justice Courts

50

50

7500

4184 - Courts

93

94

14100

4187 - Domestic Relations

55

55

8250

4237 - Probation Services

109

111

16650

4151 - Office Of Law

16

12.5

1875

4154 - Special Legal Services

3

1.5

225

11-Controller
4133-Controller
12-District Attorney

13-Courts

16-Office Of Law

20- Budget & Finance

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Division/Department

Count of Emp ID

May 2026

Sum of FTE

Sum of USF Calculation

4114-Budget & Finance

11

11

1650

4136-Assessors

16

16

2400

4137-Tax Collection

69

69

10350

4139-Treasurer

4

4

600

4113-Human Resources

12

11.67

1750.5

4120- Bureau Of Elections

9

9

1350

4140-

6

6

900

4142-Purchasing

4

4

600

4172-Information Technology

11

11

1650

4489-Licensing

2

2

300

4650-Community Development

10

10

1500

4670-Convention & Visitors

5

4.5

675

4233-Lccf-Admin

7

7

1050

4234-Mou

60

60

9000

4235-Lccf

247

247

37050

4171-GIS/Planning & Zoning

5

6

900

4174-Building & Grounds

24

24

3600

4177-Boiler Plant

1

1

150

4286-Luzerne County 911

92

90.25

13537.5

4291-Emergency Management

7

7

1050

4310-Road & Bridge

15

15

2250

4315-Engineers

6

6

900

30-Administrative Services

40-Correctional Services

50-Operational Services

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Division/Department
4320-Solid Waste Management

Count of Emp ID

May 2026

Sum of FTE

Sum of USF Calculation

1

1

150

4153-Recorder Of Deeds/Reg Of Wills

12

12

1800

4193-Coroner

5

5

750

4195 - Prothonotary

28

28

4200

4197-Sheriff

63

59

8850

4198-Records Retention

1

1

150

5

5

750

9100 - Area Agency On Aging

123

106.5

15975

9200-Children Youth & Families

203

201

30150

9400-MH-DS

25

25

3750

9500-Human Services

12

11.5

1725

9600-Drug & Alcohol

12

12

1800

47

42.5

6375

4144-Retirement

2

1.25

187.5

4171-

1

1

150

1618

1562.92

234,438

60-Judicial Records

70-Human Services
4491-Veteran Affairs

80-Public Defender
4152-Public Defender
90-Retirement
N
Grand Total

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Movement Summary
From December 2024 to May 2025, the CH Prisoner Entrance consistently recorded the highest traffic, ranging from 8,292 to 9,792 entries
per month. The Domestic Relations checkpoint showed a dramatic surge starting in April, jumping from under 1,000 to over 2,600 entries,
indicating a significant operational change. Penn Place entrances, particularly the Sally Port and Stairwell, experienced sharp declines after
December, suggesting restricted access or policy adjustments. Aging and C Y&F entrances remained relatively stable with slight upward
trends, while C Y&F North Emergency Exit showed steady growth, reaching 2,000 in May. Overall, the data highlights consistent
courthouse activity, sudden spikes in Domestic Relations, and notable drops at Penn Place.

Dec 24

Jan 25

Feb 25

Mar 25

Apr 25

May 25

North Penn Ave
Aging Penn Ave Main Entrance

390

380

365

441

474

466

Aging Penn Ave North Emergency Exit

1,713

1,886

1,715

1,826

1,880

1,822

CY&F Penn Ave North Atrium Door

318

321

323

371

414

376

CY&F Penn Ave North Emergency Exit

1,778

1,919

1,944

1,998

1,871

2,000

CY&F Penn Ave South Main Entrance

417

393

332

432

424

512

8,292

8,868

8,278

9,339

9,792

9,403

627

687

569

963

2,587

2,680

PP 1st Fl Employee Entrance

404

375

403

461

389

509

PP 1st Fl Sally Port Entrance

438

304

186

161

204

255

PP 1st Fl Stairwell By Parking Gate

704

108

144

64

88

86

Courthouse
CH Prisoner Entrance
Domestic Relations
Domestic - Lower Level Security Checkpoint Entrance
Penn Place

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Key Challenges
•

Fragmented services across buildings

•

Poor signage and navigation

•

Security risks (mailroom, courthouse parking, Central Court)

•

Outdated infrastructure and technology

•

Overcrowded or underutilized spaces

•

Resistance to relocation/consolidation

•

Costly leased spaces

•

Limited sheriff presence after hours

Recommendations
Conduct a Comprehensive Space Audit
•
•
•
•
•
•
•

Conduct a formal space utilization study to optimize building use, reduce overcrowding, and
eliminate unnecessary leases.
Map all County-owned and leased buildings.
Identify vacant, underused, and inefficient spaces.
Consider relocating affinity groups that frequently work together
Evaluate prison facility layout and infrastructure for long-term planning, ensuring any
feasibility study aligns with STMP funding eligibility.
Apply for STMP Phase II funding to conduct feasibility, architectural, and space utilization
studies.
Use study results to guide short-term and long-term planning and budgeting.

Evaluate Facility Options through a Feasibility Study
Deciding whether to build a new government center or renovate older, dysfunctional buildings
involves balancing upfront costs against operational efficiency and community value.
Generally, building a new center is better for long-term functionality, modern efficiency, and lower
maintenance, while renovation is often faster and better for preserving historical character or
meeting tighter immediate budgets.
Building new is often preferred when the older buildings have significant structural, electrical, or
environmental issues that make renovation costs approach or exceed new construction. Points to
consider:
•

Superior Efficiency: New buildings are significantly more energy-efficient and cost less to
operate in the long run.

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•

Modern Functionality: A new, centralized building can be specifically designed for modern
technology, security, and accessibility standards (ADA), which is often impossible in old
structures.

•

Long-Term Value: New construction has a longer lifespan and higher long-term value,
preventing a cycle of ongoing, expensive repairs.

•

Consolidation: Bringing employees from two separate, inefficient buildings into one site can
increase productivity and improve service delivery to the public.

Renovation is usually the better option if the building holds significant community value (historical,
cultural) or if the shell of the building is sound and only needs system updates.
•

Lower Upfront Cost: Renovations are often less expensive initially and can be done in
phases to spread out capital expenditures.

•

Sustainability: Reusing existing materials is generally more environmentally sustainable than
tearing down and building new, as it avoids waste.

•

Faster Timeline: Renovations can sometimes be completed faster, as they don't require the
same level of site development and permitting as new builds.

•

Preservation: Renovating maintains the historic aesthetic and character of the community.

Option 1: Consider a Centralized Government Campus Plan
•

•

•
•

Explore the feasibility of a new government center near the river that would serve as a onestop shop for County business incorporating, at a minimum, current departments in the
Human Services and Penn Place buildings.
Improve customer relations and revitalize downtown by creating a gateway building to the
city of Wilkes-Barre that is potentially in easy walking distance of the Court campus, as
opposed to the current confusing array of buildings in scattered locations.
Consolidate departments with overlapping functions (e.g., GIS,/Planning & Zoning,
Community Development) to improve functionality.
Consider selling buildings like Penn Place and Human Services for funds.

Option 2: Explore Renovation and Reconfigure Existing Buildings
•
•
•
•
•

Reconfigure Human Services building layout and signage and establish a centralized
reception area to improve visitor experience and interdepartmental flow.
Repurpose underutilized space in Human Services building, especially the Mental
Health/Developmental Services third floor, for administrative or programmatic use.
Relocate off-site staff, such as Children Youth & Families attorneys, to County-owned
facilities to reduce leasing costs.
Move Veteran’s Affairs to the Human Services building as part of reconfiguring the
building’s layout.
Hire architects/engineers to redesign problematic layouts.

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Courts Facilities
As this report was being finalized, Luzerne County was already taking steps to complete certain of
these initiatives, particularly with respect to the courts including Central Court, Family Court and the
Brominski Building.
•
•
•
•
•

Convert Brominski Building into a full family court facility.
Relocate PFA office to a safer, more spacious location.
Renovate existing courtrooms and chambers, prioritizing safety and usability.
Consider creating a centralized booking and court processing center near the prison.
Consider moving non-court County services to other County facilities to free up courthouse
space

Safety & Security
•
•
•
•
•
•

Add sheriff presence during peak hours and after 4:30 PM.
Install better lighting and secure parking for judges and staff.
Consider separate entrances for judges at Courthouse.
Screen mail offsite to reduce risk.
Improve signage for entrances, parking, and navigation at all County buildings.
Address vulnerabilities in buildings like Penn Place and the parking garage.

Technology & Infrastructure
•
•
•
•

Upgrade Wi-Fi and IT systems throughout the courthouse.
Digitize records to reduce paper storage and improve access.
Use technology to better connect departments
Use capital funds and STMP Phase II grants for tech and facility improvement studies.

Review and Renegotiate Leases
•
•

Evaluate cost-effectiveness of leased spaces.
Plan to relocate departments once leases expire.

Engage Stakeholders Early
•
•

Include department heads, council members, and legal advisors in planning discussions.
Address resistance with data-driven justifications and collaborative solutions.

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Chapter 6
Labor and Personnel
Introduction
Luzerne County (“County”) has a sound but guarded fiscal condition, particularly when compared
with its fiscal condition prior to 2020. As noted elsewhere in this report, however, the County has
had recent significant increases in personnel costs and debt service. The growth in the County’s
primary revenue source, real estate taxes, grew but at a pace that lagged far behind the growth in
personnel costs.
Although such a condition is not uncommon for local government in the Commonwealth of
Pennsylvania (the “Commonwealth” or “Pennsylvania”), the County’s real property tax is by far the
largest source of funding. Further, personnel costs account for a majority of the County’s total
general fund expenditures. Personnel costs are largely impacted by the cost of wages and benefits,
particularly healthcare insurance costs, for County employee.
The County employs approximately 1,550 employees, and it appears that more than two-thirds of
those employees work in a bargaining unit represented by at least 13 different bargaining
representatives (i.e. unions). Since the County’s non-bargaining unit and bargaining unit employees
account for a far greater share of the County’s budget than any other budget category, personnel
costs must be one of the County’s key areas of focus to control its future costs.
This is particularly important with respect to the provision of health insurance due to the uncertainty
of health care renewals, which already are high and might be on the increase for the foreseeable
future. It is important for the County to maintain a competitive compensation structure and
workplace in order to recruit and maintain the necessary workforce.
The County has been successful in maintaining reasonable and competitive wages and benefits in its
collective bargaining agreements (CBAs) and policies in recent years; however, if the County is to
sustain fiscal health, it is imperative for the County to maintain a focus on and carefully manage
personnel costs. This section of the report will address such issues and provide a menu of options
for the County to consider moving forward. The suggestions in this report will provide the County
with a blueprint to develop a strategy to control future labor and personnel costs for all of its
employees. It also will address other managerial issues for the County to consider when making such
decisions in the future.
Compensation and Legacy Employee Costs
Wages
With more than three-quarters of County employees represented by unions, the development and
maintenance of a consistent collective bargaining strategy is vital to County’s ongoing workforce
cost management. Each of these CBAs are important and the County must focus on the issues
applicable to each bargaining unit; however, other than the individual employee head count in each
bargaining unit, most of the provisions that impact the County’s fiscal health are similar and feature

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the same concerns.9 For this reason, with the exception of the Corrections CBA and detective’s
employed in the District Attorney Office, this report will address the issues that are cost drivers
individually without focusing on specific bargaining units or CBAs.
It appears that since 2020, the County has focused on increasing the wages of some bargaining unit
employees due to recruitment and competitiveness issues. Overall, however, the County appears to
have successfully limited wage growth while providing competitive salaries. That effort should
continue to be the focus for the County in the coming years. Bargaining representatives and
employees will continue to cite inflation as a reason the County must increase wages, but the current
inflation rate should not be allowed to control the County’s compensation decisions.
Inflations is an important consideration, but it should not be viewed as a moment in time.
Historically, employee wages have outpaced and exceeded the relevant consumer price index (CPI)
data. The County cannot take a short term approach by focusing on the current rate of inflation.
Statistics from one or two years can be misleading. If the data reveals a prolonged period of time
where wages trail inflation, the County will have to reconsider its approach, but while inflation is
typically transitory, wage growth is permanent and compounding which can have a significant
negative long term impact on the County’s finances.
This is not to suggest that the County should not provide reasonable wage increases or competitive
salaries. The County also has to maintain a focus on total compensation, particularly benefits such as
generous healthcare and defined benefit pension plans that are becoming rarer in the workplace. The
compensation analysis must factor those costs to the County, as well as the value to employees.
In this regard, while maintaining a focus on limiting year-to-year wage growth, the County must be
cognizant of whether its wages are competitive based on educational and other professional
requirements as well how salaries compare to comparable positions.
While a formal wage and compensation study can be helpful, such studies can be misleading unless
completed with a focus on truly comparable positions in the public sector, mainly counties in
Pennsylvania, and maintains a disciplined analysis of comparing only like positions in the public
sector. Without such a disciplined focus, a wage study might be misleading. A compensation study
also must consider the cost/value of all forms of cash compensation, such as longevity and shift
differential and leave time buyouts, and benefits such as a defined benefit pension plan and
employee health insurance.

9 For similar reasons, this section will not focus on a commonly used data point known as the average cost per

employee. Such a statistic is certainly an interesting and relevant date point but focusing on that data point can be
misleading and may not be helpful. The average cost of an employee data point overlooks the cost drivers behind that
statistic, and it ignores the issue of how competitive the County is among comparable positions. Both of those
considerations are at least just as important of a consideration for the County when determining how to address labor
costs. While not irrelevant, focusing on the average cost per employee data points can lead to a overall or global
approach to cost reduction and take the focus away from each induvial department, the needs of each department, and
how wages and benefits and staffing can be altered in each such department in a manner that reduces costs while still
allowing the County to provide adequate services that the taxpayers deserve.
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One anecdotal data point is that in recent years, many public employers have increased wages in
order to recruit and retain employees. Some employers have done so in a knee-jerk and reactive
fashion by, for example, increasing wages equal to the CPI increase or by the amount of a newly
implemented healthcare cost sharing formula. Such efforts have not only disproportionately
increased costs for the taxpayers, they also have not achieved the desired goal: increasing
recruitment and retention of employees.
The lesson is that before increasing compensation in a way that may not benefit the taxpayers, the
County must attempt to ascertain the real cause of the recruitment or retention issue. It is not
uncommon for other factors to be at play that will not be addressed by higher compensation. This is
particularly important in the area of law enforcement and social services.
When focusing on compensation, it is important for the County to focus on the total compensation
package, which includes the cost of other tangential compensation, such as longevity, which is
discussed below, and the cost and value of other benefits such as healthcare and pension. Wages
should not be viewed in isolation. Any increase in wages directly impacts pension costs in the future
as well as overtime and other tangential forms of compensation.
It does not appear that the County’s employee wages, standing alone, are unreasonable, but future
wage growth must be controlled and with the compounding impact of wages over time and other
tangential forms of compensation, it is easy for compensation costs to become fiscally problematic
for the taxpayer.
One aspect of compensation in which the County must exercise caution is paying longevity or shift
or other differentials or any other tangential form of compensation. This is particularly true where
such compensation is based upon a percentage of base salary. While longevity pay is common, it is
not wise to base such compensation (or any other form of tangential compensation such as a shift
differential) on a percentage of base wages.
Annual general wage increases (GWI) are typically based on a percentage, but basing increases in
tangential forms of cash compensation on a percentage is problematic and causes wage
compounding that is not planned or controlled. It is suggested that the County resist any such
practice.
As discussed above, in the coming years, it is likely the employee groups will insist on significant
wage increases to catch up for wage growth and buying power lost during the inflation since 2021,
including the sneaky inflation that is currently creeping back into the economic picture. While the
County has to remain competitive, such arguments must be viewed in light of past wage increases
that exceeded inflation for many years and, most importantly, the current fiscal burden placed on the
taxpayers and the impact increased taxes will have on the economic development and fiscal health of
the County.
The County can seek to control wages by “drawing a line in the sand” with future new hires by
seeking a new, expanded lower wage scale for all new employees, particularly uniformed employees.
This new wage scale should consist of annual “step” increases over a five or six year period. The
employee’s salary should be subject to those step increases until the new employee reaches the
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maximum salary step. The step increases should not be based on a percentage of full salary; they
should be set dollar amounts which the employee receives once a year. Only when the employee
completes that last step should the employee receive a general wage increase.
The County has such a scale in some CBAs, for example, the LIUNA CBA, but it typically is based
on a percentage of full salary. The better approach is to base it on a fixed dollar amount, which
might start at a higher salary but end at a lower salary. This results in lower wage costs over the long
term, but it can be difficult for some payroll functions to administer.
The new hire step increases should not be subject to the GWI. If the new hire salary scale becomes
dated, it can be adjusted, but that should not be done on an annual basis. While it is not possible to
totally escape the salary creep that plagues all budgets, this new graduated step increase schedule will
provide new employees with reasonable wage increases each year without escalating the salary at
each step.
This new salary structure is an essential element in the overall effort to control wage growth over
time. By not applying the GWI to the new graduated wage structure until an officer reaches that
maximum salary, the County will be able to control salaries at a reasonable level for a longer period
of time while still providing wage increases through step increases.
In addition, the County should consider a new wage scale for all current and future employees in
which salary is based upon the employee’s training and certifications and not just seniority. Allowing
all employees to progress in a lock step fashion fails to encourage or reward employees for obtaining
skills that are of value to the taxpayers. This new scale will include annual increases but there will be
different grade levels for employees based upon the employees’ training and skills. Another
suggestion is to negotiate a “max salary,” after which all increases are based on a bonus, none of
which or not all of which is included in base salary.
Wage Recommendations
A. Consider a compensation study focusing on counties of the same statutory class. While other
counties can be considered, the focus should be on counties located in the immediate
geographical area or that feature similar demographics.
B. Wage increases should continue to be moderate. While comparable counties and public
employers are relevant, the County has to remain focused on its economics and revenue.
C. The County also must remain aware that non-unionized employees cannot be ignored. While
the County does not have a bargaining obligation with such employees, it is not a wise longterm fiscal decision to treat such employees in a manner that is not at least as advantageous
as unionized employees of similar training, duties and educational background.
D. While wage increases are likely necessary in some areas, taking a blind, knee-jerk approach
without a deeper analysis may not be the best fiscal decision. Thus, another data point to
consider is the County’s actual experience in employee retention and the average tenure of
employees. This data point should not only be reviewed not as an average, i.e., average
employee tenure, because a minority of long-tenured employees can throw off that data
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point or vice-versa. The County should attempt to analyze this statistic on a more nuanced
level by focusing on how many employees the County employs at various longevity points.
Exit interviews should also be employed to determine why employees, especially short-term
employees, are leaving. Conversely, long-term employees should be consulted on what has
kept them on staff. 10
E. Consider basing wage increases for the most tenured/senior employees on credentials or by
providing some form of bonus not to be included in base after such employees meet a
“maximum salary” point.
F. Consider negotiating an expanded lower wage scale for all new employees in the different
bargaining units. This new wage scale should consist of annual “step” increases over a five or
six year period. The GWI applicable to all other employees will not apply until the newly
hired employe reaches the to pay scale on the graduated pay scale.
Pension
With respect to pensions, the County has one defined benefit pension plan covering all full-time
employees, regardless of union representation. The plan is covered by the County Pension Law,
which establishes requirements including employee contributions of 5 percent of their salary and
employer contributions at an actuarially determined rate.
As of the May 2025, actuarial study, Luzerne County’s pension fund appeared to be 78 percent
funded. While the funding level can vary depending upon a drawdown of assets and changing
investments, the County’s current pension plan funding ratio is not critical but should remain a
focus. Based on the recent actuarial study, the Plan’s funding status is expected to improve in the
coming years.
The Pennsylvania Municipal Pension Plan Funding Standard and Recovery Act (Act 205) grades
public pension plans according to distress levels. 53 Pa. Stat. Ann. § 895.601. Act 205 provides that
the distress level is based on “the ratio of the actuarial value of assets to the actuarial accrued
liability, expressed as a percentage known as the funding ratio, and shall be applied in accordance
with the following actuarial distress scoring system:
Funding Ratio

Score

90% or over

0

70-89%

1

50-69%

2

Less than 50%

3

53 Pa. Stat. Ann. § 895.503. The County’s funding level of just under 80 percent is in the middle of
“Minimal Distress” range, e.g., Category or Score 1 above. The plan actuaries have stated that this

10 If the County has not commenced such a study in the past, one resource that might be helpful is the County

Commissioners Association of Pennsylvania, including its Society of County Human Resource Professionals of
Pennsylvania (SCHRPP) program.
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funding level is predicted to increase to 80 “within a few years.” While this is not considered severely
distressed by most experts, the County should review its Plan with its actuary, pension consultant
and labor counsel, as needed, to determine the cause of its distress level and address those causes to
the extent possible under the County Code and through bargaining, as necessary. The County’s
annual contribution obligation to the plan is significant, currently $13.8 million. That contribution is
expected to increase to more than $14 million and remain relatively constant until approximately
2036, when it is projected to decline.
The pension funding must be closely monitored. While the County is limited in its options by the
provisions of the County Code and must provide pension benefits consistent with the County Code,
the County should be careful before it increases any pension benefit.
Pension Recommendations
A. At a minimum, no new benefits should be added in the future unless it is clear that any such
new benefit will not reduce the pension plan’s funding percentage to below 95 percent on a
market value basis.
B. If any new benefit is added, a sunset provision should be included that causes the benefit to
terminate for nonparticipants after several years or if the plan reaches a certain funding level,
e.g., 95%.
C. Public employees who have the benefit of a defined benefit pension plan at the taxpayers’
expense should always be paying up to the legal maximum for that benefit, even if the Plan is
“fully funded.” Based on the fluid nature of pension funding, it is best to maintain employee
contributions consistently. This is particularly true under the County Pension Code because
due to the benefit calculation formula, there is not always a direct correlation between the
increase in employee contributions and a reduction in the County contribution or the
funding status of the plan. A change in employee contributions also might require a change
in the Pension Classes or to maximize the contribution within the current class. The County
should consistently engage in this type of analysis with an actuary.
D. The County should not enter any future negotiations without close consultation with its
pension actuary, pension administrator, and experienced labor counsel. The pension plan
should be reviewed before the next round of bargaining to determine what current benefits,
if any, can be reduced or eliminated, particularly for current employees. The County should
consult legal counsel regarding what existing benefits can be changed for current officers.
This will be a tough fight, but there is existing law to support the alteration of such benefits.
Post-Retirement Health Benefits
The County offers post-retirement health benefits (OPEBs) by providing retiree medical and
prescription benefits to eligible corrections officers and detectives who meet age and service
requirements.
While offering OPEBs to police and law enforcement is common across the Commonwealth,
proving such benefit to correction offices is not, even though such officers do technically work in
the law enforcement system.
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The County provides such benefits on a pay-as-you-go basis and does not maintain an OPEB trust
dedicated to funding such benefits. A County OPEB actuarial valuation or cost study, which is
envisioned under the guidelines of the Government Accounting Standards Board (GASB), is
designed to ascertain the County’s OPEB current and future cost liabilities. Such a report is
analogous to a pension funding audit, and it recognizes the costs of the benefits that are currently
due and that are owed to current employees.
The most recent County OPEB study demonstrates the significant cost of such benefits. It reveals a
total OPEB liability of more than eight figures, $11,185,877, and between $755,558 and $1,091,281
annual required contribution (ARC) in 2017 and 2014, respectively. The County does not have to
and does not make its ARC payment, but the County does pay for such benefits on a pay-as-you go
basis from its General Fund. Those payments have ranged from $315,335 in 2015 to a high of
$1,091,282 in 2023. The payment in 2024 was $516,032.
Although the foregoing highlights that providing OPEBs benefits are expensive and can even
become financially crippling, the County has taken commendable steps to control OPEB
expenditures. First, OPEB benefits for correction officers hired after January 1, 2017, were
terminated. The elimination of this benefit was a significant and fiscally wise decision.
Second, the language of the benefit applicable to County detectives is less clear but appears to only
apply to detectives who were both a current detective as of March 22, 2017, and who were on the
County payroll as of November 3, 2017. The detective OPEB benefit seemed to target a certain
individual or individuals and appears to have been awarded as part of an interest arbitration award.
In any event, the benefit was limited in time. Other limitations were also applicable, but the County
took a significant step to eliminate the benefit and under no circumstances should they consider
reinstating the benefit.
In this regard, the trend in bargaining (and interest arbitration) is limiting and eliminating such
benefits so if a union or employee group insists on such a benefit, the County should steadfastly
resist; the benefits is just too costly for taxpayers to afford. In addition, with respect to any current
employee who is entitled to an OPEB benefit, the County should carefully consider adopting any of
the changes mentioned in the healthcare section below.
Health Insurance for Current Employees.
The County provides health insurance to its employees at great expense to the taxpayers. This is a
very high-cost area for the County, and the cost is likely to continue to increase greatly in the
coming months and years. The County has to continue to monitor the market to ensure it is getting
the best deal possible from its provider.
The County currently requires cost sharing on a percentage of premium basis. Generally, that rate
ranges between 12 percent or 15 percent of premium depending on employee group and date of
hire. Such contribution rates are normal for public sector employers but low compared to employers
overall and as compared to the overall premium cost. There is debate over whether cost sharing
based on a percentage of salary or premium is best. The latter can result in higher cost sharing, but
the former can be increased to provide similar revenue and theoretically provides employees with an
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incentive or “skin in the game” to allow benefit or plan changes to lower the cost sharing payments
in terms of dollars. 11
Increasing deductibles, even gradually, has also led to lower healthcare costs. In fact, increasing
deductibles and co-pays are the primary methods, if not the only methods, of reducing premium
costs in today’s healthcare market, except for reducing covered procedures or reducing benefits.
The County has retained the right to replace the current health plans with some units but not others.
For example, the CBA with the corrections officers (represented by the Laborers’ International
Union of North America (LIUNA), Local 1310, contains good language on this issue. It essentially
allows the County to change to a comparable plan after satisfying a meet and discuss obligation (i.e.
not a bargaining obligation). Conversely, the County does not appear to have negotiated any such
language with the Luzerne County Detectives’ Association. The County should attempt to have such
language in all of is CBAs.
In addition, such language should provide the right to increase co-pays, deductibles, and other out of
pocket costs and address how such additional costs will be handled.12 Such language will have to be
negotiated with any bargaining unit.
The County also provides an option to receive an opt out payment in lieu of healthcare benefits.
The opt out option is legal, but the County must ensure that the opt out saves money. Those
employees who opt out of healthcare receive a fixed dollar amount of an opt out payment, which is
a large amount based upon current premium costs. That allows the County to save a portion of the
premium cost when there is no need for an employee to receive health benefits.
The opt out payments are generally between $1,200 and $1,500 annual. This amount is reasonable as
long as it remains an annual payment. The County must avoid any attempt to change this payment
to a percentage of premium. In addition, one aspect to any cost analysis for the County regarding
the opt-out payment is to make sure that it is administering its opt out payment in accordance with
applicable law, including the FLSA. The County also has to make sure that the opt out payment is
not included in any pension calculation.13

11 This report will not specify a preference, but it will note that the cost-sharing arrangement should be examined

carefully and periodically to insure the most beneficial arrangement is in place for the taxpayers.
12 Increasing the deductible will not only lower the premiums but also require the employees to fund the deductible or a

substantial portion of it to help encourage behavior that will lower health care costs overall. The County can reimburse
some of the deductible expenses, at least initially, expenses through an appropriate funding mechanism, for each
employee, into which the County can contribute a portion of the deductible. However, the County should resist sharing
the cost of any deductible or at the very least, phase out its funding of the deductible fairly quickly. Overtime, the cost
savings of such an arrangement is typically lost.
13

There is debate whether opt-out payments are even needed because the employee does not need the healthcare
benefit and an eligibility requirement could not negotiate so that employees who have access to comparable health

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With the foregoing issues in mind, the County should continue to work with its healthcare broker or
provider on an annual basis to find ways to provide the most cost-effective benefits.
Health Care Recommendations
A. Increase cost-sharing based on a higher percentage of premium or salary.
B. Increase cost sharing overall and based on the type of coverage selected, such as single,
family or employee child, etc.
a. Alternatively, provide low cost employee coverage but higher cost sharing for
dependent or family coverage.
b. Offering several plans, including one at low costs but others at a higher cost or a
“buy up” option.
C. Implementing a defined contribution approach to funding health benefits by the elimination,
reduction, or capping the County contributions to any health plan or health plan
reimbursement account or savings account.
D. Health, prescription, and vision plan changes/redesign to lower premium costs. Investigate
if such changes can be targeted to eliminate or reduce underutilized specific plan benefits.
E. Increases in co-pay amounts for prescriptions and office visits.
F. Mandatory generic drug requirements.
G. Negotiating healthcare coordination with the availability of other coverage and enforcing
such requirements. The CBAs have language mandating the coordination of coverage, but
better language should be negotiated.
Laborers’ International Union of North America (LIUNA), Local 1310
This report is designed to discuss general issues appliable to all employees and bargaining units. It
does not focus on specific CBAs. Such an organizational approach would lead to a highly redundant
report, and it would inevitably be viewed by some unions as targeting their CBAs, which is not the
intent.
Nevertheless, the corrections facility presents unique issues and the labor issues relating to such
facilities can be troublesome. The following is a summary of some of the challenging provisions in
the ILUNA CBA:
A. Shift Coverage. The CBA has manning requirements for shifts. Shift manning is bargainable
to the extent it relates to safety and that issue is often somewhat amorphous and vague,
requiring expert analysis. While the County can and clearly has decided the manning levels
and the 15-1 ration staffing requirements are appropriate, staffing in correctional facilities is
often difficult for a variety of issues unrelated to compensation issues and beyond the
County’s control. In light of that concern, the County should seek in future CBA
insurance through another source, with the exception of Medicare, are not eligible for County provided
healthcare. There is logic to this position, but as long as the opt-out payment is a reasonable fixed dollar
amount, as it currently appears to be, and is cost effective when analyzed consistent with applicable law, as
noted above, the benefits is not unreasonable from a taxpayer cost perspective.
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negotiations to ease the staffing requirements to better match the County’s lack of control
and finances. The County has to be able to operate and fund its correctional services within
its limited budget and options to do so should be negotiated. For example, the provision that
allows union stewards to call in correctional officers should be eliminated.
B. Although not expressly evident from the CBA, it appears that overtime is a significant issue
in the correctional facility, as it is in virtually all such facilities. In this regard, the County
should investigate what causes the overtime. For example, if it is tardiness or absenteeism, as
is often the cause, steps should address those causes, which may include, among other
things, firmer discipline. Likewise, if the cause is that employees are absent to avoid
overtime, other staffing options might be applicable if operationally feasible, such as split
shifts or adjusting the length of a mandated overtime requirement
C. The CBA contains a Switching Policy, allowing officers to voluntarily switch shifts. The
penalties for violating this policy should be more severe and this policy should be carefully
reviewed to ensure it is working properly.
D. Correctional facilities often exhibit what is characterized as excessive protected leave usages,
such as that provided by intermittent use of the Family and Medical Leave Act. This is a
difficult issue to address due to the FMLA regulations and the close relationship with ADA
accommodation issues. One issue is that the facility has to make sure that it is fully vetting
any FMLA request to make sure the needed leave or accommodation is actually medically
necessary. One other cause of this type of issue is that there is so much overtime available in
most correctional facilities, employees take unpaid intermittent FMLA leave and make up for
the lack of pay with overtime worked in the same pay period.
E. The County should carefully consider making a switch to a 12-hour shift schedule and be
willing to go to arbitration, if necessary, to obtain that change. Before doing so, however, a
full staffing analysis will have to be completed.
F. The facility should have a FMLA policy that applies to its unique needs. For example,
regardless of the County’s general FMLA policy, concurrent use of leave time should be
required to help reduce the uses of paid leave that many correction facilities experience. This
targeted policy should also be compliant with the FMLA and its regulations but aggressive in
the management of FMLA leave to help the facility manage such leave.
G. Childbirth Leave. This provision needs to be re-examined. If it is to apply to leave to care for
a newborn, it cannot be limited to female officers only. As written, this provision applies
only to females. Obviously, females are the only people who can bear children, but this
policy is more of a parental leave policy under the guise of “childbirth.” Any issue relating to
a disability related to childbirth or other requested accommodation must be dealt with in the
same manner other employees would be treated who request an accommodation for a
disability.
H. Promotional Policy. The qualifications for a promotion are a managerial right under
Pennsylvania law, as is the decision of whether to maintain a position or to fill a vacant
position. As referenced above, the County has seeded a lot of control over promotions to
collective bargaining. The management prerogatives lost in such bargaining should be
reasserted in the next round of bargaining.
I. OPEB. Discussed above.
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J. Preservation Provision: The CBA contains a provision that memorializes rights, privileges
and benefits that existed at the time of certification. While the County could not change any
benefits during the bargaining of the first CBA, or a subsequent CBA, this provision is not
necessary and essential preserves past practices and issues that the County may not know
exist. This provision should be eliminated and replaced with a clause that removes all past
practices. That will be a difficult task at this point, but this provision is not helpful.
K. Drug Testing. The CBA lacks a drug testing procedure and the ramifications of a positive
drug test. This is an important provision for a correctional facility and for law enforcement
officers. In a County that has sworn officers, which must be MPOETC certified, as well as
non-uniformed employees, the policy cannot be a one size fits all policy. The County must
be mindful that marijuana remains a Schedule I controlled substance under federal law.
However, the process to reclassify it to a Schedule III narcotic appears to be underway
following a presidential executive order. Putting aside the impact of the presidential
executive order, even if/when marijuana is reclassified, it does not mean that its use will
necessarily be “legal” or that it will not remain as a controlled substance under regulations of
MPOETC or the Department of Transportation (DOT), at least for some period of time.
Close monitoring of that situation is necessary.
L. Discipline. While a disciplinary matrix is not desirable, the County should provide a listing of
offenses that will result in discipline and immediate discharge. This is very important to
maintain discipline in a correctional facility. While the list must expressly state that it is not
an exclusive list, certain offenses are very serious in such a facility.
General Labor Recommendations
While the County can reduce overall expenditures by eliminating positions or employees from the
workforce, the County should focus on specific areas of concerns regarding wages and benefits.
Wages, pension, and healthcare for current employees and retirees are addressed above. The
following discussion addresses other important concerns that the County must address. In doing so,
the County must work closely with its finance experts, actuaries, solicitor, and labor counsel if it is
going to be successful in obtaining the relief that is needed.
Longevity
Wage compensation was addressed above, but one item of compensation that the County provides
to some employees is longevity. Longevity adjustments are also problematic and often amount to
nothing more than a hidden wage increase often overlooked by the public.
The longevity pay structure that the County has agreed upon in the CBAs is better than many in the
Commonwealth. Generally, it is not and should not be paid based on a percentage. Basing longevity
or any tangential pay category on a percentage of base pay results in uncontrolled compounding and
is very expensive.
Current longevity structures are organized in a manner that has nothing to do with “longevity” or
years of service and appears to be a hidden wage increase. There is no need for such “longevity pay,”
as longevity is typically part of the officer’s base salary, but it is a practice many if not most public
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employers follow. Unless the increase is based on an added certification or other added value that
the employee brings to his or her service to the taxpayer, there is no need for such compensation.
Rewarding tenure is the purpose of the GWI.
If the County maintains longevity pay it should consider two ideas. First, it should not base the
payment on a percentage of salary. The rationale for longevity pay is questionable enough without
the compounding impact of it being based on a percentage. If longevity pay is continued, the
County should freeze longevity and convert the current longevity pay formula to a fixed dollar
amount. The cap should also be a fixed dollar amount.

Overtime
The County appears to pay overtime for hours worked in excess of 40 in a week and eight (8) in a
day. Paying overtime for working more than a certain number of hours in a day is not required for
any group of employees, and the County should seek to change these provisions to pay overtime
when required under applicable law.
It is legal and a best practice to not pay overtime for hours worked in a day or in excess of a
scheduled shift. Such a practice is particularly problematic if it is utilized for part time employees,
and it defeats the benefit of using part time employees. It also is unnecessary from a legal
perspective and from a contractual perspective and not a good management practice from a fiscal
perspective. This practice is not advisable and is contrary to the purpose of utilizing part time
officers. The County does this but should attempt to negotiate that provision out of its CBA,
especially with its more costly departments or those that tend to or cannot avoid working overtime,
such as with its law enforcement units, i.e., corrections and detectives, and some of the social
services units.
The County also should make sure that it does not count any paid (or unpaid) time off as “time
worked” for the purposes of calculating whether an employee reached the applicable hours worked
threshold for the payment of overtime. The County is doing so and should negotiate with its
bargaining units to eliminate or limit this practice. If nothing else, sick time or other nonmandatory
leave time, such as vacation and personal time, should not count as time worked. The County also
should make sure that time off is not considered as time worked for meeting the applicable overtime
hours threshold under the Fair Labor Standards Act.
There are other options that that County can consider for controlling overtime, which include:
A. Converting to a 12-hour shift and exploring the public safety personnel exception contained
in the Fair Labor Standards Act which is applicable to correctional facilities.14 This will
14

Under the FLSA, non-exempt employees generally must be paid overtime pay for any week in which they work more
than 40 hours. 29 C.F.R. § 778.104. However, the regulations permit employers to adopt an alternate overtime period for
employees engaged in law enforcement activities. With such employees an employer can adopt an overtime period

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require an evaluation of the current schedule worked by correctional offices and consultation
with facility command staff and labor counsel.
B. Eliminate premium pay for all employee groups to the extent possible. To ensure
compliance with applicable law, the County should evaluate paying employees their regular
pay for the hours they spend while working and even providing a minimum guaranteed
amount of hours of pay for the inconvenience of being called in to work. Such time will be
added to the officer’s weekly hours and paid accordingly. While it may be necessary as a
practical matter to pay the overtime rate in emergency situations, in order to ensure that the
County has enough personnel for the emergency, such premium pay should not be paid in
non-emergency situations. In addition, if a guaranteed amount is paid for any task regardless
of how much time is worked, such as for call-in pay, the County must ensure that only the
time actually worked is counted as time worked for the purpose of calculating overtime.
C. The County provides compensatory time only for certain employees. Regardless of whether
the County provides compensatory time to uniformed or non-uniformed employees, the
same protocols to safeguard against excessive costs apply. The FLSA permits such time to

ranging from 7 to 28 days using a higher overtime threshold based on 171 hours during a 28 day period. 29 C.F.R. §
553.230; 29 U.S.C.A. § 207(k).
The regulations specifically indicate that the higher overtime threshold for employees engaged in law enforcement
activities includes “security personnel in correctional institutions” who “have responsibility for controlling and
maintaining custody of inmates and of safeguarding them from other inmates or for supervising such functions[.]” 29
C.F.R. § 553.211; see also 29 U.S.C.A. § 207(k) (permitting higher overtime thresholds for employees engaged in law
enforcement activities including “security personnel in correctional institutions”). See also Gallagher v. Lackawanna
County, No. 3:CV-07-0912, 2010 WL 1342922, at *4–9 (M.D. Pa. Mar. 31, 2010) (applying FLSA Section 207(k)
exemption to County corrections officers and noting that “Courts have recognized that corrections officers are indeed
law enforcement personnel for purposes of the § 207(k) exemption”); Woodburn v. City of Henderson, No.
219CV01488JADVCF, 2021 WL 5605177, at *6 (D. Nev. Nov. 29, 2021) (noting that “public agencies employing law
enforcement and corrections officers may take advantage of a law-enforcement exception found in 29 U.S.C. § 207(k),
which allows public employers to define longer work periods with a higher overtime threshold”); Adderly v. City of
Atlanta, No. CIV.A 108CV2111 TWT, 2010 WL 2662719 (N.D. Ga. June 30, 2010) (employer properly adopted a
twenty-eight day work period for correctional officers under Section 207(k) FLSA); Alexander v. City of Chicago, 994
F.2d 333, 337 n. 5 (7th Cir.1993) (noting that “Section 207(k) obviously is intended to address the unique employment
circumstances of a law enforcement officer, fire fighter, or corrections officer”); Edwards v. City of New York, No. 08
CIV. 3134 DLC, 2011 WL 3837130 (S.D.N.Y. Aug. 29, 2011) (holding that the 207(k) law enforcement exemption
applied to corrections officers); McBride v. Cox, 567 N.E.2d 130 (Ind. App. Ct. 1991) (rejecting an FLSA claim by
County jail guards who argued they were entitled to overtime for working over 40 hours in a week and holding that the
higher FLSA Section 207(k) overtime thresholds that apply to employees engaged in law enforcement activities apply to
jail guards). It is likely that based on the language of the FLSA and regulations, in future cases a Pennsylvania state and
federal courts would likewise conclude that the 207(k) exemption applies to corrections officers. Of course, changes
from the current practices would be a mandatory subject of bargaining that would have to be negotiated with the Union.

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be accrued to certain maximum depending on the type of employee, i.e. public safety or nonuniformed. It is highly recommended that the County does not go near that cap.
Compensatory time earned each year should be capped and the County should have the
option (and practice) of paying out all compensatory time annually, which is the proper and
best management practice.
D. If compensatory time is permitted, it is important to maintain controls on compensatory
time to ensure that such time is not carried forward from year-to-year and that
compensatory time is not a taxpayer funded savings account for the employee.
Compensatory time allows the County to avoid paying overtime when it is worked, but it
also can increase overtime costs when compensatory time is used. Equally troubling is the
fact that compensatory time actually increases overtime costs in that the accrued time is paid
out at the employee’s rate of pay in the future, which will be an at an increased rate due to
pay raises. This taxpayer funded increase should be avoided.
E. Each department should be allotted an overtime budget if it has the need for overtime. The
overtime budget in each department must be carefully monitored. Each department head
should obtain prior approval for exceeding the allotted overtime budget. If such prior
approval is not sought, the department head must be held responsible and explain the need
for such an overrun. The overtime practices of each department should be reviewed.
Overtime should be authorized and scheduled only when truly needed.
One final caution regarding overtime is that in addition to being cautious regarding employee
classifications under the FLSA, the County should periodically review its overtime methodology and
calculations to ensure that overtime is being paid accurately.
The FLSA requires that non-exempt employees be paid “at a rate not less than one and one-half
times the regular rate at which [the employee] is employed” for all hours worked over forty (40) in a
workweek. Many employers conflate an employee’s “regular rate” with the employee’s “base rate of
pay,” but these terms have different meanings and might be different. The “regular rate” is a
mathematical calculation, derived by dividing the compensation paid to an employee by the hours
worked in that same workweek. “All remuneration” received by the employee is to be included in
the calculation of the regular rate, subject to certain statutory exclusions.
In this regard, there are two principles that are important to remember. The first is that an
employee’s regular rate may vary from week-to-week, depending on the pay received by the
employee and the hours worked in that workweek. The second is that compensation is presumed to
be includable in the regular rate, unless it can be shown that a statutory exclusion applies. This is
particularly problematic with respect to any type of “bonus” or opt out payments or other forms of
extra compensation paid to employees. The County should periodically review how it is
compensating employees and calculating the regular rate and discuss this topic with labor counsel to
avoid liability under the FLSA.
Layoff and Privatization.

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With few exceptions, the County does not have any no layoff clauses, and it should avoid such
provisions. To the extent any union seeks such a provision, or the County currently has one, the
County should seek to delete such a provision in the next round of bargaining in that the decision to
lay off employees is a managerial prerogative and a nonmandatory subject of bargaining.
The LIUNA CBA contains a prohibition on privatizing the corrections facility. This should be
removed in the next round of bargaining. There are bargaining issues under the law related to any
decision to privatize, regionalize or contract out services, but typically the decision to lay off or
privatize is a managerial prerogative, although impact issues are subject to bargaining. In either case,
any such prohibition should not be in the CBA because its significantly limits the County’s options
which it should keep open to be able to deal with the unknown in the future. Likewise, the
“successors” clause in the LIUNA CBA amounts to an unnecessary contractual obligation at best,
and a stealth prohibition on privatization, at worse.
While this report does not take any position regarding privatization of any public service, it is an
option that may have to be evaluated by elected officials at some point or that they may want to
consider. While there are many philosophical, political and policy issues involved with privatizing
any public service, those issues permeate any consideration of privatizing a corrections facility.
Likewise, there are many cost issues related to operating a correctional facility. Regardless of the
outcome of any such discussion, and without intending to inject any suggestion on the outcome of
any discussion regarding those issues, the prohibition in the CBA should be removed so that the
County can have such discussions if it so desires and make the decision the taxpayers elected the
County’s elected officials to make.
Grievance Procedure.
The grievance and arbitration procedures in the CBAs appear to be well written and to create few
concerns. One issue that seemed to apply to some CBAs, but not all was that some allowed an
employee to move a grievance to the next step of the grievance procedure. It is recommended that
after one of the early steps in the grievance procedure only the union should be able to move the
grievance to the next level. This could eliminate unnecessary grievance hearings. This should
certainly be (and appears to be) the requirement to move a grievance to arbitration. In addition,
although no CBA has a “forfeit clause,” which requires that a grievance be granted if the County
does not answer within the applicable time period, the language could be made clearer to
affirmatively state that no answer mean a denial and the matter can be moved to the next step (or as
a compromise, is deemed to be moved automatically to the next step).
Employee Bill of Rights
None of the law enforcement related CBAs contained what is often characterized as a “Bill of
Rights.” It is common for such a provision to be demanded by some law enforcement bargaining
units, but it not only is unnecessary overall, but also portions of the typical “bill of rights” provision
interfere with management prerogatives and are not advisable from a risk management perspective.
Any such request should be firmly denied.

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Establish an Overall Bargaining Strategy and Pattern
The County must develop a cost consistent containment strategy that applies to all employee groups.
This strategy should reflect a consistent pattern of an overall fiscally responsible cost containment
strategy. In its current fiscal state, while not nearly distressed, the County should not expand any
benefit, especially in the areas of healthcare for current employees, OPEBs and pension funding
obligations. It appears that the County recently started this responsible approach to reigning in costs
by electing to undergo this SMRT process but the recommendations in this report should not be
ignored.
This approach should be adopted with respect to non-bargaining unit employees as well. Certainly,
all employees deserve to be protected, but the County should begin to eliminate the problematic
language in all of its CBAs that fall within the recommendations of this report. If any new benefit is
provided, it is suggested that it be tied to a sunset provision so it can be re-evaluated.
Short Term CBAs
Until the County is comfortable with its revenues and personnel costs, and until it has effective cost
controls in place, new CBAs should be kept to the shortest possible term. Further, benefits should
be tied to sunset provisions based on a term of years, such as the CBA term, or conditions based
upon the funding status, and costs of such benefits. Such a strategy will provide the County with
flexibility to contain costs on an ongoing basis and achieve the mandated cost reductions and
controls in order to achieve much needed flexibility and avoid a reduction in services.
Personnel Manual
The purpose of this report is not to provide a detailed review of the personnel manual, but the
County should make sure that it updates its manual periodically and that all of the content of the
manual applies to the County and its operations. Some forms in the manual appear to not apply but
those forms are not harmful. One issue of note is that the handbook does contain a reference to the
FMLA.
Benefits Audit
The County should conduct a thorough benefits audit to determine the total level of benefits
provided to each employee group and retirees, and to determine the actual cost of such benefits.
The audit must also analyze the total cost of all compensation and benefits provided to each
bargaining unit and look for other providers that can offer similar benefits in a less expensive
manner or structure. Periodic eligibility audits should be conducted. The audit should also ensure
that the County has coordination and carves outs for certain contingencies. If an employee can get
comparable coverage elsewhere or his or her dependents can do so, the County should not be

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obligated to provide coverage. Having this option is useful, but its utility is limited if there is no
effective periodic audit or enforcement procedure in place.15
Regionalization and Shared Services
Regionalization of any service should be considered and fully evaluated if it makes sense from an
operational, service and fiscal standpoint. Regionalization is a complicated issue generally for legal,
political and operational reasons on any level of government, but particularly on the County level.
While it might be unrealistic or not possible to regionalize with another County, working with
municipalities in the County could provide a novel approach to regionalization, at least in
Pennsylvania. The County has such arrangements in place, as noted elsewhere in this report, but
such arrangements should be fully explored for the benefit of the County and the municipality. Any
such decision cannot be rushed and would require a thorough operational, legal, and fiscal analysis.
At first blush, some County services, including but not limited to the Sheriff’s Department, Courts,
Coroner, Corrections, and social service functions would not lend themselves to regionalization, but
the expansion of such arrangements with municipalities in other areas of operation, where
logistically practical, would be worth exploring to determine if it would be beneficial for the County
and the municipality.
For the reasons stated above, any current limitation on regionalization and shared services should be
eliminated from all CBAs. Any CBA applicable to a new regionalized service must be carefully
analyzed, however, to determine if it would reduce County personnel expenses. This option also
includes the possibility of not actually forming a new regionalized service, but perhaps just sharing
equipment and personnel in some cases in the future. The latter option could implicate the County’s
obligation to bargain with its unionized personnel and would also create potential legal issues such as
joint employer and insurance issues, but there is no harm in honestly contemplating the option.
Proper Employee Classifications
Although not apparent from a review of the documents, the County should take steps to ensure that
employees are in the proper bargaining unit, but more importantly that positions that are supervisory
or otherwise inappropriate for inclusion in a bargaining unit are not in the bargaining unit. This is
applicable to FLSA classifications as well.
Promotions
A decision to promote or even to fill a vacancy is a managerial prerogative that impacts the size of
the workforce and the level of service provided. The language in some CBAs does not waive this
right, but it does use loose language from which a waiver issue could be argued. The County should
15 As noted above, the same ideas should be applied to post-retirement health care. Although legal obstacles may be

raised by the applicable unions, creative ideas should be evaluated. At the very least, the County should pursue the
elimination or significant reduction of such benefits, particularly for new hires, and consider requiring retirees to pay
a meaningful contribution as a condition to receiving retiree healthcare. It is recommended that under no
circumstances should this benefit be expanded for current employees.
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review such language and remove any reference to “shall” promote or “shall” fill a vacancy and
replace it with, “if the County decides to promote [or fill a vacancy] …. ”
The language should clearly preserve the County’s management right to make any decision it
chooses. In addition, the ILUNA contract contains language reflecting that the County bargained
over the qualifications for promotions or positions. Such an issue is a managerial prerogative. While
the procedures for a promotion are bargainable, qualifications are not and should not be listed in a
CBA. The ILUNA CBA particularly conflates the two issues.
Section 1620 (now Section 14720) Rights
Although often a very misunderstood and confusing issue, the County has included language in the
appropriate CBAs preserving such rights of the courts and row officers where appropriate. It is
suggested, however, that each such CBA also includes such language in every grievance and
arbitration provision and as a separate provision in those CBAs. Even though the County is home
rule, that statutory provision is still very important and the County must remain alert to protect it
where appropriate.
Leave and Workers Compensation and Heart and Lung
One issue that can potentially increase compensation costs and ultimately pension costs is the
mishandling of work-related injuries and benefits under the Heart and Lung Act (HLA) and
Workers Compensation Law (WCL). In the County, the WCL would apply to all employees, but the
HLA would apply to the uniformed employees of the Park Police and Sheriff’s Department and the
County detectives. 16 However, the LIUNA CBA contains a provision that requires the County to
pay the difference between the WCL benefits and the “employee’s [i.e., correction officer’s] “wage”
for a period of 26 weeks or until the employee returns to work, whichever occurs first.” 17 Such
benefits are often the precursor to disability benefits from the pension plan. Thus, it is critical to

16 The HLA generally covers County police, sheriffs, deputies, and certain investigative/law enforcement agents,

providing full salary/benefits for temporary work-related injuries. The phrase County detective is not listed verbatim, it
falls under these broader law enforcement/investigative classifications, especially after recent expansions for County
corrections and probation officers. The HLA covers temporary work related injuries suffered while performing law
enforcement duties.
17 Through Act 60 in 2023, the Pennsylvania General Assembly extended eligibility for HLA benefits to "corrections

officers or jail guards employed by a participating County and whose principal duty is the care, custody and control of
inmates" and "probation officers employed by a participating County." 53 P.S. § 637 (version effective April 12, 2024). The
term “participating County” is defined as "[a] County that elects or bargains to participate in this act by posting a notice on
the County's publicly accessible Internet website, which election shall be irrevocable after participation commences." 53
P.S. § 638.1 (version effective April 12, 2024 (emphasis added). The County does not appear to have opted into
providing his benefits, and due to the high cost of Heart and Lung Act benefits and the potential complications that can
arise with Heart and Lung Act leave, this will be an issue on which the County should be extremely careful. It is
recommended that the County resist agreeing to adopting the application of the law. Although WCL and HLA benefits
are essentially tax free for the employee, and the supplemental payment noted above and in the ILUNA CBA would not
be tax free, the supplemental benefit provides a logical reason for the Count to resist the adoption of the Act 60 benefit.

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manage such cases carefully from the start by denying all claims that should be denied and
monitoring any claims that are accepted through necessary medical follow up.
At the same time, the County should have a policy or even a CBA provision detailing how such
claims are handled from the obligation for an employee to file a report before the end of his or her
shift to the development of a swift hearing body, short of arbitration. All non-WCL claims, such as
HLA claims for County uniformed employees, may end up in arbitration, but the goal is to have
such claims decided before a local agency hearing body so a decision can be made quickly, and
which will be effective if the parties agree that such claims should ultimately be decided in
arbitration (which will typically be much more time-consuming).
Such policies can also provide hearing procedures and timelines to ensure the prompt resolution of
such claims, and to clarify that such procedures apply to all claims for benefits by an employee and
to all claims by the County to terminate such benefits. The County should work closely with its
WCL carrier in the administration of all WCL claims and encourage periodic follow up to properly
manage such claims.
The County should have internal policies regarding the management of work-related injuries, but
such policies must be carefully drafted in conjunctions with legal counsel to avoid waiving a
managerial prerogative. In light of that fact, the following should be considered:
A. Review how the County is administering its work related disability leave requests. The
County should ensure that it is using the most aggressive approach possible to ensure that
only truly disabled employees are receiving the County’s generous disability benefit. When a
detective or other HLA covered employee is claiming HLA benefits, the County must be
mindful that while the HLA and workers compensation are very similar, there are nuanced
differences in eligibility rules that must be enforced because HLA claims can lead to a work
related disability claim which will cost the County and the pension plan well into the future.
B. All current disability cases, including those receiving a benefit from the pension plan, should
be carefully reviewed periodically. If the recipient is no longer disabled or other issues are
discovered, appropriate action should be taken, which could include recalling the officer to
work.
C. The County must avoid increasing its disability benefit beyond the minimum required by
law.
D. The County should resist opting into providing the Act 60 expanded HLA benefits for
certain correctional employees.
E. Subject to the caveat noted in paragraph A above, all HLA claims should be administered in
conjunction with the accompanying workers’ compensation claim. While there is a nuanced
difference in the type of injury covered, it is especially important to understand the
difference and to apply it correctly. Thus, while it is important to manage an HLA claim in
conjunction with a workers compensation claim, and the two claims should be pursued

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simultaneously, if appropriate, the two claims must be analyzed and managed separately as
well in close conjunction with the County’s labor counsel.
F. The County also must remember that the decision to provide modified duty to any employee
is a managerial prerogative and not a bargainable issue. There are a few “impact” issues, but
the decision itself is not bargainable. The decision also will be influenced by considerations
under the Americans with Disabilities Act (ADA) and Pregnancy Discrimination Act (PDA).
Drug Testing
Some CBA’s have a drug testing policy, but many do not reference the issues surrounding medical
marijuana. Likewise, some do not clearly reflect the result of a positive test. In the Detective
Association CBA there also are two issues that can be problematic.
Article 18.8(C)(3) of the Detective Association CBA refers to a detective who returns to work after a
positive test. This is potentially problematic if the detectives must be Act 120 certified because the
Municipal Police Office Educational and Training Commission generally will deny or revoke the
MPOETC certification of an officer who tests positive for illegal drugs or uses medical marijuana,
which is still illegal under federal law. Until such officer is certified by MPOETC again, he or she
cannot resume employment after testing positive for illegal drugs.
Article 18.8(D) of that CBA imposes a requirement applicable to employment applications for new
hires and pre-employment drug testing. Applicants are not part of the bargaining unit until hired and
may not be until they graduate from the academy and become a corrections officer. Although not a
significant restriction, the County should not include a provision in a CBA relating to individuals
who are not in the bargaining unit.

Chapter 7
Debt
Overview
Luzerne County has demonstrated strong fiscal discipline in managing its outstanding debt and
limiting the long-term burden on County taxpayers, particularly over the past decade. As discussed
throughout this chapter, both the total amount of County debt outstanding and the related annual
debt service obligations remain at levels that are considered manageable and appropriate given the
County’s size and financial capacity.
Like many medium-sized counties in Pennsylvania, the County does not maintain staff dedicated
exclusively to long-term debt management. Responsibility for the administration and monitoring of
the County’s debt portfolio rests with the Budget & Finance Department, with all debt issuances and
any General Obligation guarantees subject to approval by County Council.
Based on current market interest rates, the terms of the County’s existing debt, and applicable call
provisions, there are no practical opportunities at this time to refinance outstanding obligations for
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cost savings. The County’s overall debt levels remain manageable and are modestly lower than in
prior years, primarily as a result of a refunding completed toward the end of 2025. Annual debt
service requirements represent approximately 15 percent of the County’s FY 2026 General Fund
budgeted revenues.
General Obligation Debt
The County currently has outstanding General Obligation (“GO”) debt consisting of publicly issued
bonds, a bank loan, and a small loan through the Pennsylvania Infrastructure Investment Authority
(“PENNVEST”). At present, the County has four (4) outstanding long-term GO debt obligations,
including three (3) publicly issued bond series and one (1) bank loan provided by Webster Bank.
Historically, the County also utilized annual short-term Tax and Revenue Anticipation Notes
(“TRANs”) to address seasonal cash-flow needs at the beginning of the fiscal year, prior to the
receipt of property tax revenues. Beginning in 2025, the County did not require the issuance of a
TRAN. As of the start of the FY 2026 budget year, a TRAN has not been required; however, the
County retains the flexibility to issue a TRAN should future cash-flow needs warrant. All TRANs
previously issued by the County were fully repaid within the fiscal year in which they were issued.
For fiscal year 2026, the County’s net annual debt service on its long-term General Obligation debt
is approximately $25.5 million. The table below summarizes the County’s General Obligation debt
service requirements for FY 2026, presented by individual debt issue.

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Table 7.1 General Obligation Debt Service Requirements, Fiscal Year 2026
Debt Series

FY 2026 Debt Service

2017A Bonds

$5,170,250

2017B Bonds*

1,924,000

2019 Note

962,000

2025 Bonds

17,174,875

Total FY 2026 Net Debt Service

$25,485,390

*The debt service on the 2017B Bonds is payable in equal parts by the County and the Luzerne County
Community College. The amount shown above is the County’s portion.
Source: County debt documents and County FY 2026 adopted Budget.

From a gross perspective, the County’s annual debt service obligations remain relatively level
through fiscal year 2028, decline by approximately $400,000 in fiscal year 2029, and decrease
significantly in fiscal year 2030, when all outstanding long-term debt is scheduled to fully mature.
As a result, 100 percent of the principal amount of the County’s current debt portfolio is amortized
over the fiscal years 2026 through 2030. The table below presents the County’s General Obligation
debt service requirements, by individual issue, for fiscal years 2026 through 2030.
The fact that all outstanding County debt is scheduled to mature by 2030 is both notable and
atypical for a County of this size. While this structure reflects conservative financial management
and places the County in a strong near-term position, it also creates significant future debt capacity.
As existing obligations mature, the County will have the ability to undertake new capital investments
with minimal incremental impact on taxpayers, provided that future borrowings are structured to
align with the declining debt service profile.
While a portion of this capacity may be used to support operational or short-term needs, the
majority of the available capacity should be strategically reserved for future capital improvement
projects, allowing the County to address long-term infrastructure and facility needs in a sustainable
and fiscally responsible manner.
Table 7.2 General Obligation Debt Service Requirements, Fiscal Years 2026 through 2030
Debt Series

2026

2027

2028

2029

2030

2017A Bonds

$5,170,250

$4,179,000

$346,250

$7,161,000

$-

2017B Bonds*

1,924,000

1,926,750

-

-

-

2019 Note

2,178,265

4,040,397

420,008

15,314,909

6,174,889

2025 Bonds

17,174,875

16,300,250

25,675,250

3,551,625

-

Total

$26,447,390

$26,446,397

$26,441,508

$26,027,534

$6,174,889

* The debt service on the 2017B Bonds is payable in equal parts by the County and the Luzerne County
Community College. The amounts shown above are the County’s portions.

Source: Bond Official Statements and County debt documents.

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All of the County’s outstanding debt obligations are traditional, fixed-rate instruments and therefore
are not exposed to interest-rate volatility. This conservative approach to debt issuance has insulated
the County from market fluctuations and interest-rate risk.
The entire principal amount of the County’s outstanding debt is fully amortized over the next five
years, with all debt service obligations scheduled to mature by 2030. Fixed interest rates on the
County’s outstanding obligations range from 1.90 percent to 5.00 percent, as illustrated in the table
below.
Table 7.3 Debt Series, Maturity Year, Outstanding Principal, and Interest Rate
Debt Series

Maturity Year

Outstanding Principal
Amount

Interest Rate

2017A Bonds

2029

14,905,000

5.000%

2017B Bonds

2027

1,790,000

5.000%

2019 Note

2030

26,175,000

1.980%

2025 Bonds

2029

57,530,000

5.000%

Source: Bond Official Statements and County debt documents.

The graph below illustrates the County’s General Obligation debt service through final maturity.
Debt service remains relatively stable over the next several years, followed by a modest reduction in
2029 and a significant decline in 2030, when all outstanding long-term debt is fully paid off. This
structure reflects the County’s deliberate approach to managing debt in a predictable and responsible
manner, while positioning the County with meaningful capacity for future capital needs
Figure 7.1 Luzerne County General Obligation Debt Service 2026 through 2030
30,000,000
25,000,000
20,000,000
15,000,000
10,000,000
5,000,000
-

2026

2027

2017 A BONDS

2017 B BONDS

2028
2019 NOTE

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2025 BONDS

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As shown in the table below, the County currently has $102.19 million of General Obligation debt
outstanding. Based on the County’s 2024 estimated population of 331,379, this equates to
approximately $308 of debt per capita. The County’s total market value of taxable property is
approximately $20.8 billion, resulting in total outstanding General Obligation debt equal to just 0.49
percent of market value.
When evaluated using commonly accepted measures, including total debt outstanding, debt per
capita, and debt as a percentage of market value, the County of Luzerne exhibits a comparatively
low overall debt burden relative to other similarly situated counties in Pennsylvania. As illustrated in
Table 7.4, Luzerne County’s debt metrics are well below those of several peer counties, reflecting a
conservative and disciplined approach to long-term debt management.
Table 7.4 County Debt Comparison
County

Outstanding
GO Debt(1)

Population(2)

Debt per
Capita

Market Value of
Property(3)

Debt as a
Percentage of
Market Value

Luzerne

$102,190,000

331,379

$308.38

$20,781,580,790

0.49%

Lackawanna

213,162,695

216,859

982.96

15,690,651,909

1.36%

Northampton

83,450,000

322,989

258.37

34,375,691,571

0.24%

Schuylkill

23,352,000

144,523

161.58

8,189,381,071

0.29%

Westmoreland

174,475,000

350,935

497.17

27,834,959,737

0.63%

(1) Source: Pennsylvania Department of Community and Economic Development as of January 2026
(2) Source: US Census Bureau, 2024: ACS 1-Year Estimates
(3) Source: Market Value of Property – PA State Tax and Equalization Board

Credit Rating Update
In September 2025, the County received an ‘A’ rating with a Stable Outlook from S&P Global
Ratings on its 2025 General Obligation bonds and the County’s other outstanding debt obligations.
The rating reflects the agency’s recognition of the County’s improved financial performance in
recent fiscal years, balanced against structural and economic limitations, including comparatively low
market value per capita relative to peer counties.
S&P noted that, on a nationwide basis, municipalities are facing increasing fiscal pressure as
pandemic-era federal funding is fully depleted. As a result, rating agencies have placed heightened
emphasis on reserve levels, operating performance, and management’s willingness to implement
structural solutions to maintain long-term balance. In this context, the County’s decision to increase
property tax millage was identified as a credit positive, reflecting proactive and thoughtful financial
management.
The chart below illustrates Luzerne County’s full value per capita relative to S&P’s rating category
medians. Based on this metric, the County falls within the single-A category. Because this measure is
closely tied to regional economic activity, the County’s ability to materially improve this metric in the
near term is inherently limited. As such, future rating improvement would be driven primarily by
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performance in other rating factors, including sustained operating balance, growth in available fund
balance, and continued adherence to conservative financial management practices.
Figure 7.2 Luzerne County Full Value Per Capita Relative to S&Ps rating category medians

Full Value Per Capita ($)
$180,000
$160,000
$140,000
$120,000
$100,000
$80,000
$60,000
$40,000
$20,000
$-

$170,689
$134,699
$115,800
$97,339
$63,096

$80,570

$86,461
$68,244

$63,105

As discussed above, the County’s outstanding debt fully matures by year-end 2030. Because the debt
was issued at relatively low interest rates and has a short remaining maturity, principal amortizes
rapidly. Of the County’s $102.19 million in outstanding principal, approximately 22 percent will be
repaid in 2026, 45 percent by year-end 2027, 69 percent by year-end 2028, 94 percent by year-end
2029, and 100 percent by year-end 2030. The following table summarizes the County’s principal
amortization schedule.

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Table 7.5 Principal Payments, Beginning of the Year Outstanding Principal, End of the Year Outstanding
Principal and Aggregate Principal Paid as Percentage of Current Total Outstanding
Annual Principal
Payments

Year

Beginning of the Year
Outstanding
Principal

End of the Year
Outstanding
Principal

Aggregate Principal
Paid as % of Current
Total Outstanding

2026

22,495,000

102,190,000

79,695,000

22%

2027

23,565,000

79,695,000

56,130,000

45%

2028

24,890,000

56,130,000

31,240,000

69%

2029

25,185,000

31,240,000

6,055,000

94%

2030

6,055,000

6,055,000

-

100%

Debt Compared to Select Revenues and Expenditures of the County
The County’s annual debt service is manageable in comparison to select, projected, major revenue
and expenditure line items of the County. The annual debt service of the County is approximately
19 percent of the annual property tax collected by the County and approximately 15 percent of the
County’s total annual revenues.
Figure 7.3 Projected Revenues and Debt Service, 2026 to 2030

Millions

Projected Revenues and Debt Service
Fiscal Years 2026-2030
200
180
160
140
120
100
80
60
40
20
-

2026

2027
Debt Service

2028
Taxes

2029

2030

Revenues

Source: County’s FY 2026 adopted Budget and consultants revenue projections for fiscal years 2027 through 2030.

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The County’s total annual debt service for fiscal year 2026 represents approximately 15% of total
budgeted expenditures and 26% of budgeted personnel expenditures, as illustrated in the table
below.
Figure 7.4 Projected Expenditures and Debt, 2026 to 2030

Millions

Projected Expenditures and Debt
Fiscal Years 2026-2030
200
180
160
140
120
100
80
60
40
20
-

2026

2027
Debt Service

2028
Expenditures

2029

2030

Personnel Exp.

Source: County’s FY 2026 adopted Budget and the Consultant’s expenditure projections for fiscal years 2013 through
2016.

Recommendations
1. Expand and Formalize the Existing Capital Improvement Plan. Luzerne County
should continue to further formalize its existing capital planning efforts by having the
Operations & Budget and Finance Department continue to maintain and annually update a
rolling three- to five-year Capital Improvement Program (CIP) that explicitly aligns future
capital needs with the County’s substantial debt retirement through 2030.
Luzerne County’s current debt profile characterized by rapid principal amortization and full
retirement of outstanding debt by fiscal year 2030 creates an opportunity to build upon
current capital planning practices and take a more structured, forward-looking approach to
future capital investment.
Under the leadership of the Budget and Finance Department, the CIP should continue to
evolve into a comprehensive planning tool that identifies, prioritizes, and sequences capital
projects in advance of future borrowing. The program should clearly outline project scope,
estimated costs, anticipated funding sources, and timing relative to the County’s declining
debt service requirements.
By aligning the CIP with the County’s long-term financial plan and post-2030 debt capacity,
Luzerne County can ensure that future capital investments are deliberate, affordable, and
strategically timed rather than reactive to deferred maintenance or emergency needs.
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Why It Matters
An expanded and formalized CIP reinforces current proactive financial management,
strengthens long-term budgeting discipline, and signals to rating agencies that future
borrowing will be planned, affordable, and aligned with capacity.
2. Formalize Existing Centralized Capital and Debt Review Process. Luzerne County
should continue to formalize its centralized Capital and Debt Review process, led by the
Budget and Finance Department, in coordination with Administration and operating
departments.
As the County’s financial position continues to strengthen and future capacity increases, a
centralized review of capital requests remains essential to maintaining fiscal discipline.
Existing coordination efforts should be formalized into a structured internal process led by
the Budget and Finance Department to ensure consistency, transparency, and accountability.
This process should continue to evaluate capital requests based on operational need, project
readiness, affordability, and long-term financial impact. Centralized review also improves
coordination across departments, reduces the risk of duplicative or overlapping projects, and
enhances oversight of project delivery and cost control.
Formalizing this structure supports clear communication with the County Council and
external stakeholders while reinforcing strong internal governance.
Why It Matters:
Strong internal coordination and disciplined review processes reduce execution risk and
support consistent, well-informed decision-making, key qualitative considerations in credit
evaluations.
3. Tie Capital Project Approval to Defined Debt Affordability Metrics. Luzerne County
should include the practice of linking capital project approval to defined debt affordability
and capacity metrics, maintained and updated annually by the Budget and Finance
Department.
The County’s current debt burden, measured by debt per capita, debt as a percentage of
market value, and rapidly declining annual debt service, compares favorably to peer counties.
Building upon existing analysis, the Budget and Finance Department should continue to
maintain formal affordability benchmarks to guide future decision-making.
Clearly defined metrics provide elected officials with a transparent framework to evaluate
how proposed projects affect long-term flexibility, taxpayer exposure, and overall financial
sustainability. This approach ensures that new capital investments are evaluated not only on
immediate need but also on long-term affordability.
Why It Matters:
Formal affordability guidelines help preserve strong debt metrics over time and align capital
decision-making with rating agency expectations for prudent financial management.

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4. Continue Ongoing Monitoring of the Debt Portfolio and Market Conditions. Luzerne
County should continue ongoing monitoring of its outstanding debt portfolio, with
responsibility housed within the Budget and Finance Department.
Although the County’s debt portfolio is relatively straightforward and rapidly amortizing,
continued active monitoring remains important. The Budget and Finance Department with
the help of its Financial Advisor should continue to provide periodic reviews of debt service
schedules, call features, bank loan terms, and compliance requirements while monitoring
market conditions for potential refinancing or restructuring opportunities.
This ongoing oversight supports strong cash-flow planning and ensures the County remains
prepared to act strategically, rather than reactively, should favorable market conditions arise.
Why It Matters:
Active debt oversight reduces financial risk, supports budget stability, and demonstrates
continued fiscal vigilance to investors and rating agencies.
5. Use Pay-As-You-Go Funding and Capital Reserves for Appropriate Projects. Luzerne
County should utilize pay-as-you-go funding and capital reserves for smaller, recurring, or
shorter-lived capital needs, subject to oversight by the Budget and Finance Department and
contingent upon capital reserves meeting or exceeding 25% of budgeted annual
expenditures.
As debt service declines over the next several years, the County will gain additional
budgetary flexibility. Building on existing practices, the Budget and Finance Department
should continue to evaluate opportunities to fund routine equipment replacement,
technology upgrades, and minor facility improvements with current revenues or dedicated
reserves rather than new debt.
This approach limits interest costs, preserves long-term borrowing capacity, and better aligns
funding sources with asset life.
Why It Matters:
Reducing reliance on debt for smaller capital needs strengthens long-term financial flexibility
and demonstrates prudent fiscal stewardship.
6. Integrate Grant Strategy and Compliance Into Capital Planning. Luzerne County
should integrate and formalize grant planning, monitoring, and compliance into its capital
programming process, with coordination between the Operations Division and the Budget
and Finance Division.
State and federal grant funding already plays an important role in offsetting local capital
costs. Continued integration of grant strategy early in the capital planning process improves
project feasibility and reduces reliance on tax-supported debt.

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Equally important, formal coordination between the Operations Division and the Budget
and Finance Division should ensure adequate internal capacity for grant compliance,
reporting, and reimbursement timing to protect cash flow and minimize financial risk.
Why It Matters:
Strong grant management lowers local cost burdens while avoiding compliance issues that
could negatively affect financial performance or liquidity.
7. Require Ongoing Services to Be Supported by Recurring Revenues. Luzerne County
should continue and formalize a policy requiring that all ongoing programs and services be
supported by recurring and sustainable revenue sources, with oversight by the Budget and
Finance Department.
While one-time revenues and fund balance may be appropriate for capital projects or
limited-duration initiatives, they should not be used to support ongoing operating costs. The
Budget and Finance Department should continue to evaluate budget proposals to ensure
that recurring expenditures are matched with recurring revenues.
This discipline protects long-term structural balance and avoids future budget gaps once
non-recurring funding sources are exhausted.
Why It Matters:
Maintaining structural balance is a core indicator of fiscal health and a key consideration for
rating agencies.
8. Follow GFOA Best Practices for the Use of One-Time Revenues. County Council
should continue to follow and formalize best practices published by the Government
Finance Officers Association (GFOA) regarding the use of one-time revenues, with analysis
and recommendations provided by the Budget and Finance Department.
Consistent with GFOA guidance, one-time revenues, such as surplus fund balance, asset
sales, non-recurring grants, or legal settlements, should be used only for one-time purposes
and not to support ongoing operations. The Budget and Finance Department should
continue to evaluate and advise Council on the appropriate use of these resources during the
budget and financial planning process.
GFOA best practices recommend that one-time revenues be prioritized for the following
uses:
•

Capital expenditures, including infrastructure, facilities, equipment, and technology
investments

•

Debt reduction, including early principal repayment or defeasance where legally
permissible

•

Establishment or replenishment of reserves, including stabilization (“rainy day”)
funds and capital reserves

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•

One-time strategic initiatives, such as start-up costs for programs with a clearly
identified ongoing funding source

•

Addressing deferred maintenance or known liabilities, where the cost is finite and
non-recurring

•

Paying down unfunded liabilities or other long-term obligations, where applicable

The Budget and Finance Department should continue to clearly distinguish between
recurring and non-recurring revenues in budget documents and provide explicit
recommendations to Council regarding the long-term implications of proposed uses.
Why It Matters:
Adherence to GFOA best practices promotes structural balance, reduces fiscal risk, and
signals strong governance and financial discipline—key considerations for rating agencies
and other external stakeholders.
9. Consider Credit Rating Impact When Evaluating Budget Initiatives and Long-Term
Commitments. Luzerne County should continue to incorporate credit rating considerations
into the evaluation of budget initiatives, new services, and long-term debt commitments, led
by the Budget and Finance Department.
When analyzing new programs, service expansions, or long-term debt issuance, the Budget
and Finance Department should assess potential impacts on key credit factors, including
operating performance, fund balance levels, debt metrics, and long-term liabilities.
Incorporating rating considerations into financial decision-making helps ensure that growth
and investment decisions support—not undermine—the County’s improving credit profile.
Why It Matters:
Awareness of rating impacts promotes disciplined decision-making and supports continued
credit stability and potential future rating improvement.

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Chapter 8
Observations and Recommendations
Introduction
Luzerne County faces a combination of fiscal pressures, operational challenges, aging infrastructure,
and workforce capacity issues that collectively threaten long-term stability. The recommendations
outlined across financial management, operations, facilities, human services, and other departments
form a unified roadmap to strengthen the County’s fiscal health, modernize its systems and
infrastructure, and build an effective, sustainable workforce.
Three overarching priorities emerge from the analysis: stabilizing long-term finances, modernizing
infrastructure and technology, and strengthening organizational capacity and workforce
management.
Strengthening long-term fiscal stability is the County’s most urgent priority. Recommendations call
for implementing expenditure-reduction initiatives, addressing personnel cost drivers, diversifying
and updating revenue sources, and maximizing reimbursements. The plan emphasizes the need to
build a sustainable fund balance, formalize the use of one-time revenues, and avoid overreliance on
temporary debt service reductions.
Strengthening long-range forecasting, incorporating credit-rating considerations, and ensuring
recurring revenues support ongoing services will help the County mitigate volatility and avoid
structural deficits. Additional recommendations focus on modest tax adjustments when needed,
reinstituting the Act 89 fee, pursuing PILOT agreements, and maintaining discipline in debt
planning and capital investment.
The second priority—modernizing infrastructure and technology—acknowledges that current
facilities, systems, and digital capabilities are outdated or inefficient. Key recommendations include
conducting a Countywide space utilization audit, undertaking comprehensive feasibility studies for
renovation or consolidation, and evaluating options for a new modern government center or
reconfigured existing buildings.
Critical emergency and public-safety infrastructure needs are highlighted, particularly planning and
constructing a joint Emergency Services facility and updating 911 technology. Across departments,
the County is encouraged to expand digitization efforts, modernize IT hardware and software, and
improve systems related to judicial files, zoning, timekeeping, communications, and
interdepartmental data sharing. These upgrades are essential to service delivery, efficiency, and
long-term cost control.
Finally, strengthening organizational capacity and workforce management is vital to ensuring
effective operations. Many departments report staffing shortages, turnover, compensation
challenges, and training gaps. Recommendations include streamlining hiring processes, adjusting
staffing structures as needed, improving compensation where needed, and strengthening FMLA
oversight to reduce misuse.

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Building internal capacity—through succession planning, expanded training programs,
standardization of policies and procedures, and improved HR practices—will support employee
retention, reduce operational disruptions, and enhance overall service performance. The creation of
the Infrastructure, Community, and Economic Development Division, along with new
communications and marketing positions, reflects an emphasis on better coordination, public
engagement, and strategic planning.
Across all areas, the recommendations underscore the need for coordination, documentation, and
long-range planning. Many initiatives can be supported through Strategic Management Planning
Program (STMP) Phase II funding and other state grants, which will be critical to managing costs
while advancing improvements.
Collectively, these actions position Luzerne County to improve financial resilience, modernize its
physical and technological infrastructure, and build a more capable and stable workforce,
establishing a stronger foundation for the County’s long-term success.
The Pennsylvania Economy League advises the County to consider implementing the recommended
initiatives as outlined in the remainder of this chapter. Recommendations and target dates for
initiatives are generally categorized by immediate, short term (one to two years) and long term (two
years or more). Budget impact refers to the General Fund unless otherwise noted. Please see
individual chapters in this report for additional details regarding recommendations.
While various initiatives have already been highlighted, PEL encourages the County to seek
Strategic Management Planning Program Phase II funding for any initiatives as
appropriate. Certain initiatives will require funding that might be obtained through STMP Phase II
or other state grants and programs.
Financial
FIN 01

Implement plan initiatives

Target Date

Immediate

Responsible Party

County Manager

Budget Impact

Improved financial management

Implement plan initiatives that impact expenditure reductions or increase productivity. Throughout
the plan, the County should undertake those initiatives and recommendations as policy and
operational priorities, particularly those that will have near term expenditure reductions or
operational changes leading to enhanced efficiency.
FIN 02

Address rising personnel costs

Target Date

Immediate and/or in conjunction with collective bargaining negotiations

Responsible Party

County Manager

Budget Impact

Expenditure control

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Negotiate healthcare cost-containment measures, such as plan design adjustments, wellness
incentives, and prescription management programs. Evaluate staffing efficiency, particularly in highcost departments such as Correctional Services and General Government. Expand shared services
or cross-departmental functions to reduce duplicative administrative roles.
FIN 03

Diversify and modernize revenue sources

Target Date

Immediate

Responsible Party

County Manager and County Council

Budget Impact

Increased revenue; balanced annual budgets

Evaluate and implement modest real estate tax adjustments as needed to maintain balanced annual
budgets and prevent residents from facing significant one-year increases caused by deferred fiscal
action. Explore updates to fee schedules that have remained flat but may no longer reflect service
delivery costs. Identify grant opportunities for areas currently funded by the General Fund.
FIN 04

Target efficiency improvements in high-growth departments

Target Date

Immediate

Responsible Party

County Manager and Budget and Finance Director

Budget Impact

Improved fiscal management

Departments showing 10 to 22 percent spending growth should be reviewed for potential savings.
FIN 05

Build a sustainable fund balance strategy

Target Date

Immediate

Responsible Party

County Manager and Budget and Finance Director

Budget Impact

Improved fiscal management

Use any temporary surpluses (notably in 2030) to increase reserves. Target a minimum fund balance
that protects against personnel cost spikes or economic volatility and delays in state and federal
funding from budget impasses at those levels.
FIN 06

Continue proactive land development efforts to strengthen the tax base

Target Date

Immediate

Responsible Party

County Council and County Manager

Budget Impact

Stabilize and improve the tax base

Given the County’s dependence on property taxes as its primary General Fund revenue source, the
County should focus on strategies that enhance long-term property values. To advance this work,
the County should pursue necessary studies and planning activities using STMP Phase II funds and
eligible state grant opportunities.

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FIN 07

Reinstitute the Act 89 fee

Target Date

Immediate

Responsible Party

County Council

Budget Impact

Increased GF revenue

May 2026

Given Luzerne County’s limited revenue-raising authority and its heavy reliance on property taxes,
which account for roughly 80 percent of General Fund revenues, restoring the Act 89 fee ($5 fee on
vehicle registration earmarked for roads and bridges) represents a practical and equitable option.
FIN 08

Seek an increase in Payments in Lieu of Taxes (PILOT)

Target Date

Immediate

Responsible Party

County Council and County Administration

Budget Impact

Increased GF revenue

The County should initiate or continue discussions with nonprofit institutions to secure annual
Payments in Lieu of Taxes (PILOTs) that support County services.
FIN 09

Reduce reliance on 2030 debt service decline

Target Date

Immediate

Responsible Party

County Manager and Budget and Finance Director

Budget Impact

Improved Fiscal Management

The projected surplus in 2030 results almost entirely from a one-time reduction in debt payments.
To avoid a future fiscal cliff, begin pre-planning for renewed borrowing cycles or capital needs after
2030 and consider establishing a debt service stabilization fund using part of the 2030 surplus.
FIN 10

Review status of tax exempt properties in the County.

Target Date

Short Term

Responsible Party

County Manager and Assessment Office

Budget Impact

Increased GF revenue

The County should ensure that all properties receiving the exemption are still eligible for that
exemption.
FIN 11

Study impacts of LERTA and/or other tax incentives

Target Date

Short Term

Responsible Party

County Manager

Budget Impact

Improved Fiscal Management

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To better inform future policy decisions, the County should consider undertaking a comprehensive
study, supported by STMP Phase II funds or other state grant programs, to evaluate the impacts of
LERTA, identify benefits and challenges, and develop clear policy recommendations.
FIN 12

Review the hotel room rental tax rate

Target Date

Long Term

Responsible Party

County Council and County Manager

Budget Impact

Increased revenue for tax base stabilization activities

The County should evaluate raising the current 5 percent hotel room rental tax to generate
additional resources for tourism promotion and related activities that contribute to economic growth
and a stronger tax base.
FIN 13

Consider hiring a licensed financial advisor

Target Date

Immediate

Responsible Party

Budget and Finance Director

Budget Impact

Improved fiscal management

The County would benefit from a professional to assess debt, determine financial opportunities and
risks, and develop a fiscal plan that aligns with County goals and needs. The County should use
STMP Phase II funding for this activity as appropriate.
FIN 14

Plan for a County-wide reassessment

Target Date

Long Term

Responsible Party

County Manager

Budget Impact

Improved fiscal management

Luzerne County last completed a reassessment in 2009, more than a decade and a half ago. During
that time, the County has experienced substantial development, shifting market values, and changes
in land use. For these reasons, it is prudent for the County to begin planning now for a new,
modernized assessment.
Debt
DEBT 01

Require Ongoing Services to Be Supported by Recurring Revenues

Target Date

Immediate

Responsible Party

Council, Administration, Finance and Budget Department

Budget Impact

Improved fiscal management

Luzerne County should continue and formalize a policy requiring that all ongoing programs and
services be supported by recurring and sustainable revenue sources, with oversight by the Budget
and Finance Department.

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DEBT 02

Follow GFOA Best Practices for the Use of One-Time Revenues

Target Date

Immediate

Responsible Party

Council, Administration, Finance and Budget Department

Budget Impact

Improved fiscal management

County Council should continue to follow and formalize best practices published by the
Government Finance Officers Association (GFOA) regarding the use of one-time revenues, with
analysis and recommendations provided by the Budget and Finance Department.
DEBT 03

Consider Credit Rating Impact When Evaluating Budget Initiatives and Long-Term
Commitments

Target Date

Immediate

Responsible Party

Council, Administration, Finance and Budget Department

Budget Impact

Improved fiscal management

Luzerne County should continue to incorporate credit rating considerations into the evaluation of
budget initiatives, new services, and long-term debt commitments, led by the Budget and Finance
Department
DEBT 04

Expand and Formalize the Existing Capital Improvement Plan

Target Date

Short term

Responsible Party

Budget and Finance Department

Budget Impact

Improved fiscal management

Luzerne County should continue to further formalize its existing capital planning efforts by having
the Budget and Finance Department continue to maintain and annually update a rolling three- to
five-year Capital Improvement Program (CIP) that explicitly aligns future capital needs with the
County’s substantial debt retirement through 2030.
DEBT 05

Formalize Existing Centralized Capital and Debt Review Process

Target Date

Short term

Responsible Party

Budget and Finance Department

Budget Impact

Improved fiscal management

Luzerne County should continue to formalize its centralized Capital and Debt Review process, led
by the Budget and Finance Department, in coordination with Administration and operating
departments.

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DEBT 06

Tie Capital Project Approval to Defined Debt Affordability Metrics

Target Date

Short term

Responsible Party

Budget and Finance Department

Budget Impact

Improved fiscal management

Luzerne County should include the practice of linking capital project approval to defined debt
affordability and capacity metrics, maintained and updated annually by the Budget and Finance
Department.
DEBT 07

Continue Ongoing Monitoring of the Debt Portfolio and Market Conditions

Target Date

On going

Responsible Party

Budget and Finance Department

Budget Impact

N/A

Luzerne County should continue ongoing monitoring of its outstanding debt portfolio, with
responsibility housed within the Budget and Finance Department.
DEBT 08

Use Pay-As-You-Go Funding and Capital Reserves for Appropriate Projects

Target Date

Short term

Responsible Party

Budget and Finance Department

Budget Impact

Useful life matching

Luzerne County should utilize pay-as-you-go funding and capital reserves for smaller, recurring, or
shorter-lived capital needs, subject to oversight by the Budget and Finance Department and
contingent upon capital reserves meeting or exceeding 25% of budgeted annual expenditures.
DEBT 09

Continue to Integrate Grant Strategy and Compliance Into Capital Planning

Target Date

Short term

Responsible Party

Administration

Budget Impact

Improved Project Management

Luzerne County should integrate and formalize grant planning, monitoring, and compliance into its
capital programming process, with coordination between the Operations Division and the Budget
and Finance Division.
Key Division and Personnel Recommendations
DPR 01

Expand the Division of Community, Planning, and Economic Development, Division

Target Date

Immediate

Responsible Party

County Council

Budget Impact

N/A

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The manager’s intent to expand the Community, Planning and Economic Development Division is
a strategic response to Luzerne County’s evolving needs in planning, development, and service
coordination.
DPR 02

Create a Marketing Specialist Position

Target Date

Immediate

Responsible Party

County Council

Budget Impact

STMP Phase II Match

While a Communications Director was created to manage internal messaging and crisis
communication, there is a distinct need for a Marketing Specialist focused on external engagement
and strategic promotion of Luzerne County.
Administration
ADMIN 01

Infrastructure Investment

Target Date

Immediate

Responsible Party

County Manager and Operations Division Head

Budget Impact

STMP Phase II match

Seek STMP Phase II funding for studies for the sewer conveyance system (including GIS mapping),
courthouse internet upgrades, and bridge bundling. Explore feasibility of bringing engineering work
in-house to reduce outsourcing costs.
ADMIN 02

Staffing and Compensation Strategy

Target Date

Immediate and/or in conjunction with collective bargaining

Responsible Party

County Manager and Budget and Finance Division Head

Budget Impact

Improved financial management and expenditure reduction

Streamline non-represented positions and reallocate savings to increase salaries. Continue to review
FMLA practices and negotiate changes as needed through collective bargaining.

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ADMIN 03

Intergovernmental Collaboration

Target Date

Immediate and ongoing

Responsible Party

County Manager and Operations Division Head

Budget Impact

Expenditure control

May 2026

Expand partnerships with neighboring counties for shared services and infrastructure planning.
ADMIN 04

Hire permanent part-time election workers

Target Date

Immediate

Responsible Party

Administrative Services Division Head

Budget Impact

Cost control

Consider hiring permanent part-time workers specifically to work the primary and general elections
to reduce overtime and promote consistency in procedures rather than reallocating existing
employees
ADMIN 05

Election Bureau written policies and procedures

Target Date

Immediate and ongoing

Responsible Party

Administrative Services Division Head

Budget Impact

STMP Phase II match

Ensure that the Elections Bureau has written policies and procedures, as well as appropriate training,
to reduce the occurrence of errors going forward. Training and the review and update of policies
and procedures should be ongoing.
ADMIN 06

Establish Election Bureau Protocols

Target Date

Immediate

Responsible Party

Administrative Services Director

Budget Impact

N/A

Continue to establish appropriate protocols between the Elections Bureau and the volunteer
Election Board as needed to preserve and protect the integrity of the election process and guarantee
that elections are safe and secure for all County residents.
ADMIN 07

Emergency Services Expansion

Target Date

Short Term

Responsible Party

County Manager and Operations Director

Budget Impact

STMP Phase II match

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Develop a new building to house Emergency Services. Secure funding for equipment upgrades and
engineering/design studies.
ADMIN 08

Technology and Digitization

Target Date

Short Term

Responsible Party

County Treasurer

Budget Impact

Improved financial management

Invest in software and equipment to digitize judicial files and enable electronic filing with appellate
courts. Upgrade IT infrastructure in the courthouse and other facilities.
ADMIN 09

Economic Development and Planning

Target Date

Short Term

Responsible Party

County Manager

Budget Impact

Maintain and improve the tax base

Continue collaboration with Penn Northeast and evaluate their impact. Pursue a comprehensive
plan if not already underway, to guide land use and development. Leverage the outdoor recreation
economy and tourism assets to attract investment.
ADMIN 10

Improve Staffing

Target Date

Short Term

Responsible Party

Administrative Services Director

Budget Impact

Improved fiscal management

Fill existing positions as needed; increase salaries as able and necessary to attract qualified candidates
and reduce turnover.
ADMIN 11

Use tools to control FMLA spending

Target Date

Short Term

Responsible Party

Administrative Services Director

Budget Impact

N/A

Implement a robust internal FMLA management system, possibly supported by technology or
additional staff.

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ADMIN 12

Improve and expand training

Target Date

Immediate and ongoing

Responsible Party

Administrative Services Director

Budget Impact

Expenditure

May 2026

Establish a dedicated training director and expand training programs using CCAP and AI tools.
Expand training and onboarding programs, especially for new hires and supervisory roles, to
improve retention and performance.
ADMIN 13

Technology investment

Target Date

Ongoing as needed

Responsible Party

Administrative Services Director

Budget Impact

STMP Phase II match

Invest in technology upgrades, including tablets and digital systems for paper-heavy departments
and for County council members.
ADMIN 14

Eliminate leases

Target Date

Ongoing as needed

Responsible Party

Administrative Services Director

Budget Impact

Cost control

Consolidate division facilities in County-owned buildings to reduce rental costs and improve
efficiency.
ADMIN 15

Written policies and procedures

Target Date

Immediate and ongoing

Responsible Party

Administrative Services Director

Budget Impact

STMP Phase II match

Ensure that County policies and procedures in all divisions are in writing and distributed, read and
signed as appropriate.
Human Services
HS 01

Fund CY&F vacancies

Target Date

In conjunction with annual budget

Responsible Party

Human Services Director and County Manager

Budget Impact

Expenditure

Fund additional vacancies in Children, Youth & Families to reduce caseloads and improve retention.

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HS 02

FMLA control

Target Date

Immediate and/or conjunction with collective bargaining

Responsible Party

Human Services Director

Budget Impact

Cost control

May 2026

Implement targeted FMLA policy revisions to prevent misuse and ensure fair coverage.
HS 03

Improve on call incentives

Target Date

Immediate and/or in conjunction with collective bargaining

Responsible Party

Human Services Director

Budget Impact

N/A

Improve on-call incentives and support structures, possibly through flexible scheduling or shared
coverage models.
HS 04

Expand interdepartmental collaboration

Target Date

Short Term

Responsible Party

Human Services Director

Budget Impact

Cost control

Expand interdepartmental collaboration, building on the success of the Response Team and weekly
coordination meetings. One goal is to provide support for parents so that children do not require
costly placements.
HS 05

Appropriate budgeting

Target Date

Immediate

Responsible Party

Human Services Director

Budget Impact

Cost control

Ensure appropriate budgeting to avoid the potential for costly overruns that become the County’s
responsibility.
HS 06

Improve training

Target Date

Immediate and ongoing

Responsible Party

Human Services Director

Budget Impact

Improved fiscal management

Standardize fiscal and training systems where possible to improve oversight and efficiency across
divisions

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Budget and Finance
BUD 01

Raise taxes as needed

Target Date

Ongoing

Responsible Party

County Council, County Manager, Budget and Finance Director

Budget Impact

Increased revenue

Continue educating the County council on the importance of phased tax increases to adequately
fund operating costs and preserve long‑term fiscal stability.
BUD 02

Continue to Invest in IT

Target Date

Short Term

Responsible Party

Budget and Finance Director

Budget Impact

Potential STMP Phase II match

Invest in IT infrastructure, prioritizing both hardware and software upgrades to support operational
efficiency.
BUD 03

Reform FMLA

Target Date

Immediate and ongoing in conjunction with collective bargaining as necessary

Responsible Party

County Manager and appropriate division and department heads

Budget Impact

Cost control

Reform FMLA management, possibly through contract revisions or updated policies, to reduce
abuse and ensure fairness.
BUD 04

Sell underused properties.

Target Date

Short Term

Responsible Party

County Manager and appropriate department heads

Budget Impact

Potential revenue and expenditure reduction

Sell underutilized County-owned properties to reduce maintenance costs and generate revenue.
BUD 05

Improve CY&F cash flow

Target Date

Immediate

Responsible Party

Budget and Finance Director

Budget Impact

Improved financial management

Support CYS with cash flow solutions, particularly in light of delayed state reimbursements.

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Operational Services
OPER 01

Consider an in-house engineer

Target Date

Short Term

Responsible Party

Operational Services Director

Budget Impact

Potential STMP Phase II Match

Evaluate hiring an in-house engineer.
OPER 02

Consider contracting services

Target Date

Short Term

Responsible Party

Operational Services Director

Budget Impact

Potential STMP Phase II match

The County could consider a study to determine if contracting services such as custodial services
would have benefits in terms of service improvement and/or cost containment. Funds to explore
options can be obtained through STMP Phase II or through the MAP.
OPER 03

Plan for employee succession

Target Date

As needed

Responsible Party

Operational Services Director

Budget Impact

N/A

Plan for succession in Solid Waste/Recycling and skilled trades (electrician, plumber) to ensure
continuity.
OPER 04

Improve IT

Target Date

Short Term

Responsible Party

Operational Services Director

Budget Impact

Potential STMP Phase II match

Improve IT systems and software as needed.
OPER 05

Create and maintain written policies and procedures

Target Date

Immediate and ongoing

Responsible Party

Operational Services Director

Budget Impact

N/A

Create and maintain written policies and procedures across all departments to standardize
operations.

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OPER 06

Evaluate cleaning services

Target Date

Short Term

Responsible Party

Operational Services Director

Budget Impact

Expenditure reduction

May 2026

Evaluate contracting out cleaning services versus maintaining in-house staff to improve service
quality and efficiency
OPER 07

Develop a joint Emergency Services center

Target Date

Short Term

Responsible Party

County Manager

Budget Impact

Potential expenditure

Develop a New Emergency Services Facility by co-locating EMA and 911 services in a modern,
purpose-built facility. Ensure the new space supports expanded staff, upgraded technology, and
secure operations.
OPER 08

Upgrade 911 equipment and technology

Target Date

Long Term

Responsible Party

County Manager

Budget Impact

Increased revenue

Upgrade 911 equipment and technology by replacing aging systems with modern communications,
dispatch, and coordination tools. Ensure compatibility with regional and state emergency systems.
OPER 09

Secure funding and partnerships

Target Date

Ongoing

Responsible Party

Operational Services Director

Budget Impact

Potential revenue

Secure funding and partnerships by engaging private sector partners (e.g., data centers) to contribute
to infrastructure costs. Pursue state and federal grants for emergency services expansion
OPER 10

Expand staffing and training

Target Date

Immediate and ongoing

Responsible Party

Operational Services Director

Budget Impact

Potential expenditure

Increase personnel to meet growing service demand and provide ongoing training in emergency
response, technology use, and coordination protocols.

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Corrections
CORRECT 01

Explore a medial/mental health annex

Target Date

In conjunction with facilities review

Responsible Party

Warden and County Manager

Budget Impact

Potential expenditure

Explore the feasibility of a medical/mental health annex to reduce hospital transports and improve
inmate care.
CORRECT 02

Reassess staffing

Target Date

Immediate and/or in conjunction with collective bargaining

Responsible Party

Warden

Budget Impact

Cost control

Reassess staffing levels and consider the targeted use of part-time or retired staff for roles like
hospital duty or transport.
CORRECT 03

Continue training

Target Date

Immediate and ongoing

Responsible Party

Warden

Budget Impact

Potential expenditure

Continue investment in training and inmate programs, expanding partnerships with educational and
community organizations
CORRECT 04

Monitor and manage overtime

Target Date

Immediate

Responsible Party

Warden

Budget Impact

Cost control

Monitor and manage overtime through staffing analysis, contract review, and operational
adjustments
CORRECT 05

Continue policy and procedures reviews

Target Date

Immediate and ongoing

Responsible Party

Warden

Budget Impact

N/A

Continue SOP review to ensure policies are efficient, current, and aligned with best practices.

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Judicial Services
JS 01

Create supervisory role

Target Date

Short Term

Responsible Party

Judicial Services Director and County Manager

Budget Impact

Potential expenditure

Create deputy or assistant manager roles in union-heavy offices to ensure continuity and support
when primary supervisors are unavailable.
JS 02

Expand training

Target Date

Immediate and ongoing

Responsible Party

Judicial Services Director

Budget Impact

N/A

Expand training programs and implement formal succession planning to preserve institutional
knowledge and improve onboarding
JS 03

Review salaries and change as appropriate

Target Date

Immediate

Responsible Party

Judicial Services Director

Budget Impact

Potential expenditure

Increase salary competitiveness to attract and retain qualified staff, particularly in high-turnover
departments.
JS 04
Target Date

Make IT upgrades
Short Term

Responsible Party

Judicial Services Director

Budget Impact

Potential STMP Phase II match

Invest in technology upgrades, including hardware and software improvements, and prioritize the
digitization of deteriorating records
JS 05

Seek grants

Target Date

As needed for IT upgrades

Responsible Party

Judicial Services Director

Budget Impact

Potential expenditures and/or grant match

Address budget constraints that limit technology investments, through STMP grants.

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Office of Law
LAW 01

Continue recruitment efforts

Target Date

Immediate

Responsible Party

Chief County Solicitor

Budget Impact

Potential expenditure

Continue efforts to recruit full-time attorneys for Children, Youth & Families
LAW 02

Internal litigation oversight

Target Date

Ongoing

Responsible Party

Chief County Solicitor

Budget Impact

Expenditure control

Maintain and expand internal litigation oversight.
LAW 03

Ensure proper budgeting

Target Date

In conjunction with annual budget process

Responsible Party

Chief County Solicitor

Budget Impact

Improved fiscal Management

Ensure the legal budget is sufficient to meet obligations.
LAW 04

Review staffing

Target Date

Long Term

Responsible Party

Chief County Solicitor

Budget Impact

Potential expenditure

Consider additional support staff as workload grows.
LAW 05

Leverage IT

Target Date

Short Term and in conjunction with other IT improvements

Responsible Party

Chief County Solicitor

Budget Impact

Potential STMP Phase II match

Continue to leverage technology and interdepartmental communication.

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Facilities

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•
•
•
•

FAC 01

Conduct a comprehensive space audit

Target Date

Immediate

Responsible Party

County Manager

Budget Impact

Potential STMP Phase II match

Conduct a formal space utilization study to optimize building use, reduce overcrowding, and
eliminate unnecessary leases.
Map all County-owned and leased buildings.
Identify vacant, underused, and inefficient spaces.
Consider relocating affinity groups that frequently work together
Evaluate prison facility layout and infrastructure for long-term planning, ensuring any feasibility
study aligns with STMP funding eligibility.
Apply for STMP funding to conduct feasibility, architectural, and space utilization studies.
Use study results to guide short-term and long-term planning and budgeting.
FAC 02

Evaluate Facility Options through a Feasibility Study

Target Date

Immediate

Responsible Party

County Manager

Budget Impact

Potential STMP Phase II match

Deciding whether to build a new government center or renovate older, dysfunctional buildings
involves balancing upfront costs against operational efficiency and community value.
Generally, building a new center is better for long-term functionality, modern efficiency, and lower
maintenance, while renovation is often faster and better for preserving historical character or
meeting tighter immediate budgets.
Building new is often preferred when the older buildings have significant structural, electrical, or
environmental issues that make renovation costs approach or exceed new construction. Points to
consider:
•

Superior Efficiency: New buildings are significantly more energy-efficient and cost less to
operate in the long run.

•

Modern Functionality: A new, centralized building can be specifically designed for modern
technology, security, and accessibility standards (ADA), which is often impossible in old
structures.

•

Long-Term Value: New construction has a longer lifespan and higher long-term value,
preventing a cycle of ongoing, expensive repairs.

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Consolidation: Bringing employees from two separate, inefficient buildings into one site can
increase productivity and improve service delivery to the public.

Renovation is usually the better option if the building holds significant community value (historical,
cultural) or if the shell of the building is sound and only needs system updates.
•

Lower Upfront Cost: Renovations are often less expensive initially and can be done in
phases to spread out capital expenditures.

•

Sustainability: Reusing existing materials is generally more environmentally sustainable than
tearing down and building new, as it avoids waste.

•

Faster Timeline: Renovations can sometimes be completed faster, as they don't require the
same level of site development and permitting as new builds.

•

Preservation: Renovating maintains the historic aesthetic and character of the community.

FAC 03

Consider a Centralized Government Campus Plan

Target Date

In conjunction with FAC 02

Responsible Party

County Manager

Budget Impact

Potential STMP Phase II match

Explore the feasibility of a new government center near the river that would serve as a one-stop
shop for County business incorporating, at a minimum, current departments in the Human Services
and Penn Place buildings.

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•

FAC 04

Explore Renovation and Reconfigure Existing Buildings

Target Date

In conjunction with FAC 02

Responsible Party

County Manager

Budget Impact

Potential STMP Phase II match

Reconfigure Human Services building layout and signage and establish a centralized reception
area to improve visitor experience and interdepartmental flow.
Repurpose underutilized space in Human Services building, especially the Mental
Health/Developmental Services third floor, for administrative or programmatic use.
Relocate off-site staff, such as Children, Youth & Families attorneys, to County-owned facilities
to reduce leasing costs.
Move Veteran’s Affairs to the Human Services building as part of reconfiguring the building’s
layout.
Hire architects/engineers to redesign problematic layouts.
Consolidate departments with overlapping functions (e.g., GIS, Planning & Zoning, Community
Development).

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FAC 05

Courts Facilities (Underway)

Target Date

Ongoing

Responsible Party

County Manager and courts

Budget Impact

Potential STMP Phase II match

May 2026

As this report was being finalized, Luzerne County was already taking steps to complete certain of
these initiatives, particularly with respect to the courts including Central Court, Family Court and the
Brominski Building.
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•
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•

Convert Brominski Building into a full family court facility.
Relocate PFA office to a safer, more spacious location.
Renovate existing courtrooms and chambers, prioritizing safety and usability.
Consider creating a centralized booking and court processing center near the prison.
Move non-court County services to other County facilities to free up courthouse space
FAC 06

Safety & Security

Target Date

In conjunction with facility upgrades

Responsible Party

County Manager and courts

Budget Impact

Potential STMP Phase II match

Add sheriff presence during peak hours and after 4:30 PM.
Install better lighting and secure parking for judges and staff.
Consider separate entrances for judges at Courthouse.
Screen mail offsite to reduce risk.
Improve signage for entrances, parking, and navigation at all County buildings.
Address vulnerabilities in buildings like Penn Place and the parking garage.
FAC 07

Technology & Infrastructure

Target Date

Immediate and in conjunction with facility upgrades

Responsible Party

County Manager and courts

Budget Impact

Potential STMP Phase II match

Upgrade Wi-Fi and IT systems throughout the courthouse.
Digitize records to reduce paper storage and improve access.
Use technology to better connect departments
Use capital funds and STMP Phase II grants for tech and facility improvements.
FAC 08

Review and Renegotiate Leases

Target Date

As needed based on lease terms

Responsible Party

County Manager and courts

Budget Impact

Expenditure control

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Evaluate cost-effectiveness of leased spaces.
Plan to relocate departments once leases expire.
FAC 09

Engage Stakeholders Early

Target Date

Ongoing

Responsible Party

County Manager

Budget Impact

N/A

Include department heads, council members, and legal advisors in planning discussions.
Address resistance with data-driven justifications and collaborative solutions.

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Labor and Personnel
Task

Responsible Party

Budget Impact

Target Date

Labor 01

Wages and Compensation

County Manager/Labor Attorney

Expenditure Control

Short Term or In Conjunction with Labor Negotiations

Labor 02

Pension

County Manager/Labor Attorney

Expenditure Control

Short Term or In Conjunction with Labor Negotiations

Labor 03

Post Retirement Health
Benefits

County Manager/Labor Attorney

Expenditure Control

Short Term or In Conjunction with Labor Negotiations

Labor 04

Health Insurance for Current
Employees

County Manager/Labor Attorney

Expenditure Control

Short Term or In Conjunction with Labor Negotiations

Labor 05

Laborers’ International
Union of North America
(LIUNA), Local 1310

County Manager/Labor Attorney

Expenditure Control

Short Term or In Conjunction with Labor Negotiations

Labor 06

Longevity

County Manager/Labor Attorney

Expenditure Control

Short Term or In Conjunction with Labor Negotiations

Labor 07

Overtime

County Manager/Labor Attorney

Expenditure Control

Short Term or In Conjunction with Labor Negotiations

Labor 08

Layoff and Privatization

County Manager/Labor Attorney

Expenditure Control

Short Term or In Conjunction with Labor Negotiations

Labor 09

Proper employee
classification

County Manager/Labor Attorney

Expenditure Control

Short Term or In Conjunction with Labor Negotiations

Labor 10

Promotions

County Manager/Labor Attorney

Expenditure Control

Short Term or In Conjunction with Labor Negotiations

Labor 11

Workers Comp/Heart & Lung

County Manager/Labor Attorney

Expenditure Control

Short Term or In Conjunction with Labor Negotiations

Labor 12

Drug Testing

County Manager/Labor Attorney

Expenditure Control

Short Term or In Conjunction with Labor Negotiations

Labor 13

Grievance Procedure

County Manager/Labor Attorney

Expenditure Control

Short Term or In Conjunction with Labor Negotiations

Labor 14

Bill of Rights

County Manager/Labor Attorney

Expenditure Control

Short Term or In Conjunction with Labor Negotiations

Labor 15

Establish a bargaining
strategy

County Manager/Labor Attorney

Expenditure Control

Short Term or In Conjunction with Labor Negotiations

Labor 16

Short Term CBAs

County Manager/Labor Attorney

Expenditure Control

Short Term or In Conjunction with Labor Negotiations

Labor 18

Personnel Manual

County Manager/Labor Attorney

Expenditure Control

Short Term or In Conjunction with Labor Negotiations

Labor 19

Benefits Audit

County Manager/Labor Attorney

Expenditure Control

Short Term or In Conjunction with Labor Negotiations

Labor 20

Regionalization and shared
services

County Manager/Labor Attorney

Expenditure Control

Short Term or In Conjunction with Labor Negotiations

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Appendix

Manager Duties Under the Luzerne County H ome Rule Charter
The Luzerne County Home Rule Charter outlines duties for the manager in Home Rule Charter
Section 4.07—Powers and Duties.
A. The County Manager shall have and may exercise such executive and administrative powers
and duties as are conferred or imposed upon him/her by this Charter, the Administrative
Code, other County ordinances or resolutions, and those generally conferred upon County
government in the Commonwealth of Pennsylvania by applicable law to the extent they are not
inconsistent with the provisions, spirit, and purpose of this Charter. Specifically, the County
Manager shall:
1. See that all relevant laws, provisions of this Charter, ordinances, resolutions, and other
actions of County Council, and all policies established by County Council for the
administration of County operations, are faithfully executed.
2. Supervise and direct, or delegate the power to supervise and direct, the administration,
operation, and the internal organization of all divisions, departments, bureaus, offices,
agencies, boards, commissions, and other administrative units of the County government
not specifically placed under the jurisdiction of any elective County official, the Judiciary, or
Office of Court Administration by this Charter or applicable law.
3. Appoint, promote, discipline, suspend, and remove, or delegate the power to appoint,
promote, discipline, suspend, and remove, subject to the terms and conditions of the
County Personnel Code, other personnel policies, applicable labor contracts, and applicable
laws, all County employees who have not been specifically placed under the jurisdiction of
any elective or appointed County official, the Judiciary, or Office of Court Administration
by this Charter or applicable law.
4. Prepare or cause to be prepared the annual General Fund, capital, and other required
County budgets and the long-range operational, fiscal, and capital plan and submit them to
County Council for its consideration in accordance with the provisions of this Charter.
5. Prepare or cause to be prepared the Administrative Code, Personnel Code, Accountability,
Conduct, and Ethics Code, and any other code required by this Charter or desirable for the
efficient and effective administration of County government and submit them to County
Council for consideration in accordance with the provisions of this Charter.
6. Keep County Council informed as to the financial condition of the County, the activities
and operations of all divisions, departments, bureaus, offices, agencies, boards,
commissions, and other administrative units of the County under his/her direction and
supervision, and the future needs of the County.

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Luzerne County

Strategic Management Planning Program Draft

March 2026

7. Subject to the provisions set forth in Section 2.09 of this Charter, negotiate, award, and
sign on behalf of the County, or cause to be negotiated, awarded, and signed on behalf of
the County, all agreements and other instruments to which the County is a party including
those which prior to the adoption of this Charter required the signature of the chair or any
member of the Board of Commissioners.
8. Present an Annual “State of the County” Report at a meeting of County Council within 60
days after the close of the fiscal year.
9. Hold at least one public forum annually for the purpose of providing a reasonable
opportunity for the public to offer comments and suggestions directly to the County
Manager. Each forum shall be held in the evening. The date, time, and place of each forum
shall be advertised and posted on the County website and/or other electronic medium as
shall be provided for in the Administrative Code.
10. Represent the County in intergovernmental relationships, in meetings and negotiations with
the heads of other governmental or quasi-governmental bodies, and in matters relating to
economic development, or designate a County employee to represent the County in his/her
place.
B. Further, the County Manager shall have and may exercise, but shall not be limited to, the
following powers:
1. To recommend to County Council for its consideration such ordinances, resolutions,
policies, and other actions he/she deems appropriate and in the best interests of the
County.
2. Except as may otherwise be provided for in this Charter, to request in writing that County
Council reconsider ordinances or resolutions pursuant to Section 2.12 of this Charter.
3. To initiate and/or settle litigation involving the County, subject to the approval of County
Council as set forth in Section 2.09 B. 5. of this Charter.
4. To attend and participate in meetings of County Council, but he/she shall not have the
right to vote at these meetings.
5. To attend and participate in meetings of any County board, commission, or agency of
which any member of County Council is a member in the absence of that person or to
designate someone to represent him/her at these meetings unless County Council
designates otherwise.
6. To declare a state of emergency whenever there is an immediate threat to life and/or
property in Luzerne County and, in the absence of a quorum of County Council, to take
appropriate action to meet the declared emergency, including action of a legislative nature.
PENNSYLVANIA ECONOMY LEAGUE

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Luzerne County

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March 2026

A state of emergency as declared by the County Manager shall not exceed a period of five
days unless extended by the County Manager for subsequent periods not to exceed five
days each. Any legislative action taken by the County Manager shall continue only until
County Council takes appropriate action or until the declared emergency expires, whichever
comes first.
C. The County Manager shall have all necessary, inherent, implied, and incidental powers to
perform and execute the duties and functions specified in this Section, elsewhere in this
Charter, or in applicable law. The County Manager shall have the power to make provisions for
any administrative matters relating to County government not otherwise provided for,
including, but not limited to, those desirable for the smooth, orderly, and seamless transition to
the government structure provided for in this Charter.

PENNSYLVANIA ECONOMY LEAGUE

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RESOLUTION R-2026-___
LUZERNE COUNTY COUNCIL
A Resolution of Luzerne County Council Confirming the Appointment
of Division Head of Correctional Services
WHEREAS, Section 4.08.A. of the Luzerne County Home Rule Charter states that the
County Manager shall appoint the heads of the Executive Branch divisions subject to Section
2.09.B.4. of the Charter; and
WHEREAS, Section 2.09.B.4. of the Home Rule Charter states that County Council shall
have the power to confirm appointments made by the County Manager as provided for in Section
4.08.A.; and
WHEREAS, Luzerne County Manager Romilda P. Crocamo has presented for Council
confirmation a recommendation for the appointment of Stanley Fiedorczyk as Division Head of
Correctional Services.
NOW, THEREFORE, BE IT RESOLVED, the County Council wishes to confirm the
appointment of Stanley Fiedorczyk as Division Head of Correctional Services for Luzerne County
at a salary set by the County Manager of $101,269.79 per year plus benefits in keeping with the
current Luzerne County plan for division heads and shall be responsible for the Division of
Correctional Services as set forth in section 6.03 of the Administrative Code; and
BE IT FURTHER RESOLVED, that Stanley Fiedorczyk shall commence employment as
the Division Head of Correctional Services as soon as practicable.
This Resolution shall become effective immediately.
ADOPTED by Luzerne County Council at a meeting held on _____________, 2026.
LUZERNE COUNTY COUNCIL
ROLL CALL VOTE:
AYES:
NAYS:
By:________________________
Jimmy Sabatino, Chair
Attest:____________________________
Sharon Lawrence, Clerk of Council
By:________________________
Romilda P. Crocamo
County Manager

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AGENDA SUBMITTAL TO LUZERNE COUNTY COUNCIL
ITEM TITLE
Approve Resolution Approving ARPA Project
Modification Requests for the Lower South Valley
Land Bank and Larksville Borough
Dept:
County Manager’s Office
Contact:
Romilda Crocamo & Michele Sparich
Phone:
570-825-1635

COUNCIL MEETING
DATE
Voting Session
June 23, 2026

AGENDA
NUMBER

DEPARTMENTAL RECOMMENDATION:

It is recommended that County Council approve the requests for project modifications related to two
American Rescue Plan Act (ARPA) awards. Two requests have been made by the Lower South
Valley Land Bank and Larksville Borough.
SUMMARY:

Attached are information packets for the following sub-recipients:
• Lower South Valley Land Bank – Period of Performance
• Larksville Borough – Project Scope and Budget
FINANCING:

The only funding impacted, if any, is the ARPA funds that were awarded by Luzerne County Council.
No general fund monies will be impacted by this request as this is limited to the ARPA funds.
DISCUSSION:

Luzerne County Council is encouraged to approve these modification requests so that the ARPA
funds can be spent in a timely manner ensuring that Luzerne County can meet the deadlines put in
place by the U.S. Treasury.
ALTERNATIVES:

County Council could choose not to approve these modification requests. The result would be that
these projects may not get completed on time and/or as these were originally presented in the
American Resue Plan Act application.
OTHER AGENCY INVOLVEMENT:

Not Applicable

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RESOLUTION R-2026LUZERNE COUNTY COUNCIL
A Resolution of Luzerne County Council Approving a Modification to an American Rescue
Plan Act Funds Awarded Project – Lower South Valley Land Bank
WHEREAS, on March 28, 2023, Luzerne County Council passed Resolution R-2023-57
which awarded American Rescue Plan Act (ARPA) grant monies to applicants identified in
Exhibit ‘A’ at the amounts set forth therein; and
WHEREAS, Lower South Valley Land Bank was awarded $500,000.00 for Affordable
Housing in Lower South Valley; and
WHEREAS, on March 12, 2024, Luzerne County Council passed Resolution R-2024-58
approve a period of performance extension; and
WHEREAS, Lower South Valley Land Bank is requesting to modify the project that was
awarded ARPA grant funds as outlined in the modification request; and
WHEREAS, in accordance with 2 CFR 200.309, Lower South Valley Land Bank is
requesting to extend the grant period of performance to expend the funds from June 30, 2026, to
September 30, 2026. See Exhibit A for the modification request form and supporting
documentation; and
WHEREAS, Luzerne County Council approved the modification at the Council meeting
on June 23, 2026.
NOW, THEREFORE, BE IT RESOLVED, Luzerne County Council approves the
modification request for the American Rescue Plan Act awarded grant submitted by Lower
South Valley Land Bank.
This Resolution shall become effective 6 days after adoption.
ADOPTED at a meeting of Luzerne County Council held on June 23, 2026.
ROLL CALL VOTE ( )
LUZERNE COUNTY COUNCIL
By: ___________________________
James Sabatino, Chair
Attest: ____________________________
Sharon Lawrence, Clerk of Council

LUZERNE COUNTY MANAGER

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By: ____________________________
Romilda P. Crocamo, Esq.
County Manager

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AGENDA SUBMITTAL TO LUZERNE COUNTY COUNCIL
ITEM TITLE
Approve Addendum #4 to Lease Agreement
between Luzerne County and Luzerne County
Community College
Dept:
Contact:
Phone:

COUNCIL MEETING DATE
Work Session
June 23, 2026

AGENDA
NUMBER

Operations
Michele Sparich
570-830-5112

RECOMMENDATION:
It is recommended that County Council approve Addendum #4 to the existing lease agreement
(CAFY2019-188) between Luzerne County and Luzerne County Community College.
SUMMARY:
Luzerne County Community College is requesting an extension to their current lease for space located
in the Broad Street Exchange Building. Since ownership of the Broad Street Exchange Building has not
yet been transferred, the Office of Law received the “Buyer’s” permission to offer the six (6) month
extension.
Addendum #4 will extend the current lease period from July 1, 2026 through December 31, 2026 at a
rate of $21,171.90 per month.
FINANCING:
Luzerne County Community College will pay $21,171.90 per month from July 1, 2026 through
December 31, 2026. A total of $127,031.40 will be received by the County.
ALTERNATIVES:
The Council could choose not to approve Addendum #4 to the lease agreement. This is not
recommended as the Co