In municipal jargon, the term "paper street" usually means a road or an alley which exists only on paper, hence the name, "Paper Street." Because such "street" appears only on paper, i.e., an old plan of homes, possibly an old deed, or maybe an old borough map with dotted lines, "paper streets" aren't really streets at all.
In reality, a "paper street" may be part of a neighbor's yard, the woods at the end of a paved street of maybe even where you practice your golf game. Gas, water, sewer and electrical utility lines may or may not be in a "paper street". And "paper streets" may or may not be on a borough map.