Accomack County Strategic Plan

INTRODUCTION

In the Summer of 2004 the Accomack County Board of Supervisors agreed to develop a strategic plan to guide important policy and investment decisions over the next three years. During the Fall of 2004 and early Winter 2005 they held a series of meetings to develop the plan. Discussion focused on patterns and trends, strengths and weaknesses, and needs and opportunities in the county. The Board also identified elements of a long-term vision for Accomack County.

The Board used the outcomes of these discussions to develop a set of priorities for the next three years. These were refined in consultation with senior staff and finalized in this plan. The Board recognizes that the county will continue to provide a wide range of ongoing services not specifically addressed in this plan. The purpose of this particular document is to:

- identify a set of high priority policy and spending initiatives for Accomack County over the next three years; and

- focus a significant portion of Board and staff time and county resources on achieving the priority goals and benchmarks set forth in the plan.

Patterns and Trends

As a first step in the planning process, Board members identified the following patterns and trends affecting the county that county government needs to be aware of as it plans for the future.

Demographics

· There is a steady but not dramatic increase in population.

· Forty percent of Accomack's population is low to moderate income.

· Retirement age population is expected to increase over time.

· The Hispanic population is increasing significantly.

Housing

· The pace of residential development is increasing, with more and larger subdivisions.

· Much of the new housing development is second homes.

· Residential property values are increasing dramatically.

· The rise in real estate values is pricing low-to-moderate income residents out of the housing market.

· The county has a limited supply of affordable housing, no multi-family rental housing and a limited number of sites for mobile homes.

Economic Development

· Only about 1% of total county land is in business or industrial use.

· There is a general lack of employment diversification in the county.

· Most new jobs in the county come from small business development.

· The largest employers in the county are poultry processing plants and NASA.

· Tourism is the sector where the most economic growth is taking place.

· Farming is a major contributor to the local economy. Some farms are being sold for development but other farmers are leasing land to farm more acreage.

· Commercial and recreational fishing are important parts of the local economy.

· The county's industrial park has difficulty competing with economic incentives available in Maryland and Virginia Beach.

· Skilled workers often have to be brought in from Maryland and the Virginia Beach area to meet local needs.

· Local salaries are not competitive with those in localities off the Eastern Shore.

Transportation

· Traffic on Route 13 is increasing.

· If traffic continues to increase and no improvements are made, it will get harder for Route 13 to handle traffic efficiently.

· The state has very limited funds for construction of new roadways or upgrades of current roadways for the foreseeable future.

Natural Resources

· Growth is putting additional pressure on limited groundwater resources.

· County shoreline is eroding steadily on both the ocean and bay sides.

· The Chesapeake Bay Preservation Act protects resources, but is costly to administer.

· There is some use of conservation easements to protect land and water quality.

Government Services

· Growth in population and activities are putting pressure on county services and can be expected to add more pressure in the future.

· Many of the county's new residents bring expectations of higher levels of services but the revenues are not there to provide these services.

· Responsibility for drainage problems has been shifting from V-DOT to the county as the V-DOT budget has been cut back.

· The state provides limited assistance in key areas like economic development.

· Accomack has been a major beneficiary of federal grant money and will be particularly vulnerable if less of that money is available in the future.

Strength and Weaknesses

In addition to identifying patterns and trends, the Board identified county strengths and weaknesses that need to be considered in developing strategic priorities for the next three years.

Strengths

People. The people who live in Accomack County are one of its greatest strengths. They are friendly and have strong family ties and values. People are thrifty and the presence of many long-term residents contributes to a real sense of community.

Quality of Life. Accomack's rural heritage has survived due to the relative isolation of the county. The county's history and cultural resources provide a strong sense of place. Individual towns and hamlets in Accomack have their own distinct character. The county's slow pace and good climate are attractive to both residents and visitors.

Natural Resources. Accomack has a wealth of natural resources. It has 400 miles of Atlantic and Bay shoreline, rich soils and an abundance of wildlife.

Small Businesses. The county has many successful small businesses, including many service businesses and a growing number of artisans.

Local Government Employees. Accomack has dedicated local government employees who stay with the county a long time and provide continuity in the delivery of services.

Weaknesses

Isolation. The county's isolation leads to higher costs for businesses to operate and limited choices for consumers who have to travel outside the county for many goods and services. Limited competition in many areas of business also leads to higher prices.

Inadequate services. The county lacks many services it needs including centralized wastewater treatment, especially in growing commercial and industrial areas, adequate medical expertise, group homes for juvenile offenders and shelters for the homeless.

Lack of recreational facilities. While the county has a wealth of natural recreational opportunities, it has limited cultural, recreational and entertainment facilities for youth and others. Also, despite its extensive shoreline, there is only one public beach in the county.

Limited financial resources. Accomack is one of the poorest counties in the state. Most jobs are relatively low-paying. The county is heavily dependent on outside funding from the state and federal governments to meet its service needs.

Environmental vulnerability. The county has limited groundwater and the groundwater is vulnerable to contamination. The shoreline is subject to erosion and drainage is a major problem.

Inadequate attention to countywide issues. Election by district has led local officials to focus on district rather than county-wide issues, resulting in failure to adequately address infrastructure development, waste disposal, planning, zoning and other key county-wide issues.

Issues and Opportunities

Board members identified major issues and opportunities facing the county over the next 3-5 years. They agreed it was important to focus on issues with county-wide implications in setting top priorities for the next three years and they identified twelve major issue /opportunity areas for consideration.

Land-use planning and zoning. The county's zoning ordinance needs a number of changes to address things like density and lot size for residential growth and appropriate locations for mobile homes. The use of proffers needs to be revisited. The county's comprehensive plan needs to be updated. This is an area that includes both short and long-term issues and is crucial to addressing growth, affordable housing and other related issues.

Waste Management. The county faces many waste management issues: trash collection, landfill closure and financial liability, and centralized wastewater treatment to facilitate economic development. This area includes things that can be addressed in the near term as well as a number that are long-term issues.

Transportation. The recent Route 13 study identified a number of issues and opportunities related to this corridor. Short-term the county could take steps to manage development in the corridor using such things as an entrance corridor over-lay district to limit curb cuts and maintain an attractive and well-functioning corridor. Major improvements to Route 13 are a longer-term issue that will require significant state funds.

EMS Services. Changes in county demographics have created major issues in staffing and response times for EMS services. There are also volunteer/career and salary and benefit issues. Staffing and response time adjustments are one of several issues that require the Board to take a county-wide perspective to resolve them. Board members believe some of the EMS related issues can and will be addressed in the short-term.

Drainage. This is a county-wide problem and not one that can be addressed one small section of ditch at a time. There needs to be a county-wide plan and strategy for how to address this. This is a long-term issue for Accomack, but a committee has been appointed and development of a plan could be a short-term priority.

Resource Protection. This will always be an issue in Accomack given its wealth of natural resources, its limited groundwater supply, and other environmental vulnerabilities. There are a number of groups and programs already in place to address this including the Bay Act and the regional groundwater committee.

Affordable Housing. Accomack county needs more affordable housing. The county needs to explore a variety of ways to achieve this through zoning, performance standards, proffers, and other strategies. This is both a short and a long-term problem.

Economic Development. The county has had difficulty marketing its industrial park and planning for the Wallops business park. Developing centralized wastewater treatment capacity in key locations is important to all kinds of economic development in the county. Without it, economic development planning and marketing are likely to meet with limited success. Developing this infrastructure will take time and major federal, state and local funding, but the process could begin in the near-term.

Cultural Heritage Preservation. Accomack's history and historic resources are among its greatest assets but there is no inventory of historic buildings and sites. This makes them more vulnerable to being lost to future development. Properties listed on the national and state registers of historic places could serve as a starting point for this inventory.

Recreation. The county is rich in natural recreational resources but does not have adequate community recreation opportunities for youth. Some recreational programs and activities exist for young people but they are not fully coordinated or easily accessible to everyone in the community. There is also limited public access to the waterfront.

Capital Improvements. The county has a number of capital improvement needs it will have to address in the near future. It needs to complete the allocation of funds for the Chincoteague School renovation. Other capital needs that were identified include new waste collection sites, additional county office space, public boat launch improvements and wastewater treatment. It was agreed this list is not exhaustive and includes both short and long-term needs.

Government Administration. There are at least two county administration issues that need to be addressed. One is the need for a formal capital improvements program (CIP) that integrates capital spending priorities into the budget process. The other is the need to revisit how the property assessment process will be carried out in the future on a regular basis.

Long-term Vision

After identification and consideration of the patterns and trends, strengths and weaknesses, and issues and opportunities facing the county, Board members were asked to identify elements of their long-term vision for the county. There was general consensus on the following desired vision for the future of the county.

· The rural character and natural beauty of the county will be preserved.

· Growth and development in the county will be well managed.

· There will be employment growth in tourism, service industries and through business and industrial park development.

· There will be growth in housing, cultural, and recreational opportunities that will meet the needs of families, youth and young professionals.

· Route 13 will be an attractive travel corridor that serves the needs of residents, businesses and tourists.

· The county will balance growing service needs with the revenue available to fund those needs.

Board members agreed it will take policy and organizational changes and targeted spending on the part of local government to achieve this desired future. They expressed particular concern that unmanaged growth could threaten the character and quality of life in the county. They also emphasized the need to rise above parochial or district concerns and take actions needed to promote the well being of the entire county and all of its residents and businesses.

The Board recognized it could not address all issue and opportunity areas they identified over the next three years. After considerable discussion, they identified six priority action areas:

- planning and zoning;

- solid waste collection;

- centralized wastewater treatment;

- capital improvement program;

- property reassessment process; and

- strategic thinking integrated into decision-making.

The next section of this plan outlines the strategic priorities the Board has agreed to pursue in these six areas over the next three years. It includes specific goals, actions and benchmarks for addressing these priorities. In developing and adopting this plan, the Board is committing itself to work together with staff to see that substantial energy and resources are committed to carrying out this agenda over the next three years. The plan will be reviewed annually to assess progress and revise the agenda as needed to reflect new circumstances and conditions.

THREE-YEAR PRIORITIES: 2005-2007

GOAL #1: Revise the County Comprehensive Plan and Zoning Ordinance to strengthen the County's ability to guide and manage growth and development.

Actions

Timeframe

1. Develop and adopt an initial over-lay district for Route 13 corridor as recommended in the Route 13/Wallops Island Access Management Study.

2. Prepare staff report on full range of tools available to the county to manage growth: location of infrastructure, zoning proffers, etc. and make recommendations to the Board on actions to take

3. Develop transportation element to add to county comprehensive plan.

4. Complete revision of county comprehensive plan.

5. Revise county land use plan to reflect desired growth patterns

6. Revise county zoning ordinance to implement the plan and address growth management, economic development, affordable housing and other concerns.

7. Develop countywide drainage element to add to comprehensive plan.

2005, 2006

2005

2005, 2006

2006, 2007

2007

Benchmarks:

· Adopt initial Route 13 corridor over-lay district by December 2005.

· Adopt transportation element for comprehensive plan by December 2005.

· Complete staff report on growth management tools by December 2005.

· Adopt revised comprehensive plan by December 2006.

· Adopt revised land-use plan by December 2006.

· Adopt revisions to county zoning ordinance to implement the comprehensive. plan and address growth management concerns by May 2007.

· Adopt drainage element of comprehensive plan by May 2007.

Goal #2: Establish strategically located solid waste convenience centers to improve the efficiency and effectiveness of solid waste collection in the County.

Actions

Timeframe

1. Begin construction on a staffed convenience center at Fisher's Corner.

2. Complete development of criteria to guide decisions regarding the number and location of additional convenience centers needed to provide countywide service

3. Based on the criteria, identify the general areas in which the additional collection sites should be located to meet the needs of the county.

4. Develop staff proposal for how to finance additional centers.

5. Develop and begin implementation of an anti-litter education and outreach program to implement along with the new collection system.

6. Continue to identify potential sites for additional collection centers within the general areas identified by the criteria, including but not limited to former school sites and other county-owned property.

7. Purchase, lease or take other steps to secure appropriate sites as they become available.

8. Establish one additional center per year as funding allows until the system is fully in place

2005

2005, 2006, 2007

2006, 2007

Benchmarks:

· Have convenience center under construction at Fisher's Corner by December 2005.

· Have criteria and a plan for future convenience centers adopted by December 2005.

· Have staff proposal for financing additional centers complete by December 2005.

· Have anti-litter campaign underway by December 2005.

· Have one or more additional convenience centers called for in the plan established by May 2007 or as funding allows.

Goal #3: Develop centralized wastewater treatment capacity in key locations to address economic development and environmental quality concerns.

Actions

Timeframe

1. Carry out feasibility studies to determine how to meet centralized wastewater treatment needs for the Onancock area in central Accomack County and for northern Accomack in the vicinity of the NASA facility.

2. Work with NASA and other partners to identify the most appropriate way to govern and manage the new wastewater treatment capacity.

3. Use the information in the feasibility studies to pursue funding to support engineering and construction of the proposed new facilities.

4. Based on the results of the feasibility studies, identify service area boundaries and initiate preliminary engineering for the new facilities

5. Adopt local laws and procedures related to hook-up and use of the new facilities.

6. Complete final engineering and begin the construction of the new infrastructure in central and northern Accomack as soon as funding is secured.

2005

2005, 2006

2006

2007 and beyond

Benchmarks:

· Complete needs assessments for new capacity in central and northern Accomack by September 2005.

· Have staff recommendation on governance structure(s) for the new facilities by July 2005 and the Board's decision by December 2005.

· Have the new governance structure in place and secure funding to do preliminary engineering by June 2006.

· Make decisions on service area boundaries and begin preliminary engineering by December 2006.

· Adopt local policies related to hook-up and use of the system by December 2006.

· Complete final engineering and begin construction in 2007 or as funding allows.

Goal #4: Develop a formal Capital Improvement Program (CIP) for the County and update it annually.

Actions

Timeframe

1. Hold a work session with the Planning Commission to discuss the CIP purpose and planning process.

2. Have staff develop an initial CIP framework to bring to the Planning Commission and the public.

3. Work with the Planning Commission to develop and adopt an initial CIP.

4. Use the CIP to guide capital spending decisions in Spring 2006 budget deliberations.

5. Revisit the CIP in late 2006 and early 2007 and amend it as necessary.

6. Use the CIP to guide capital spending decisions in Spring 2007 budget deliberations.

2005

2005, 2006

2006

2006, 2007

2007

Benchmarks:

· Adopt an initial CIP in late 2005 or early 2006 to guide capital spending decisions in Spring 2006.

· Adopt a revised CIP and use it to guide Spring 2007 capital spending decisions.

Goal #5: Develop and implement a process for regular property reassessment in the county .

Actions

Timeframe

1. Have staff prepare a report on options for handling regular property reassessments in the county.

2. Adopt a method and schedule for carrying out reassessments.

3. Use multidisciplinary teams to identify ways to maximize service and efficiency in providing development related services to individuals and businesses doing development in the County.

4. Implement recommended changes in how development services are delivered.

5. Carry out property reassessment according to the method and schedule adopted by the Board.

2005

2005, 2006

2006, 2007

Benchmarks:

· Adopt a method and schedule for carrying out regular reassessments by December 2005.

· Implement changes to maximize the quality and efficiency of development related county services by December 2006.

· Conduct one property reassessment according to the process and schedule adopted by the Board by May 2007.

Goal #6: Integrate strategic thinking about major issues facing the county into county planning and decision-making.

Actions

Timeframe

1. Adopt a strategic plan to set major county-wide priorities for the next three years and use this plan to set work agendas for the Board and staff.

2. Share Board strategic priorities with the PDC, other partners and the public at large and use these as a basis for adopting policies setting spending priorities, applying for grants, etc.

3. Schedule quarterly work sessions on strategic issues as identified by Board members, staff, VACO or members of the public to anticipate problems and opportunities before they occur. (Strategic issues suggested for consideration include long-term waste disposal planning with Northampton County, proposed caps on kinds of effluent being discharged into the Bay, time management for Board members, staff retirement issues, and opportunities for cost savings through technology.)

4. Set staff performance standards based on the Board's strategic priorities and use these in conducting annual evaluations.

5. Conduct six month reviews of the strategic plan, assess progress and make changes as needed.

2005

2005. 2006, 2007

2005, 2006, 2007

Benchmarks:

· Adopt three-year strategic plan by April 1, 2005.

· Hold four strategic work sessions by December 2005 and another four by December 2006.

· Complete reviews of progress on the strategic plan in June 2005, January and June 2006, and January 2007.

· Conduct annual staff performance reviews in 2005 and 2006 that include evaluation of progress on the strategic plan.

Conclusion

The Accomack County Board of Supervisors is committed to completing the activities and achieving the goals outlined in this plan over the next three years. We believe that making these strategic priorities a reality will improve the services provided to county residents and businesses and will prepare the county to manage future growth and development in ways that will preserve and enhance the quality of life in the county.