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July 25 2018 Board_Agenda_PacketAGENDA REGULAR MEETING FREDERICK COUNTY BOARD OF SUPERVISORS WEDNESDAY, JULY 25, 2018 7:00 P.M. BOARD ROOM, COUNTY ADMINISTRATION BUILDING 107 NORTH KENT STREET, WINCHESTER, VIRGINIA Call to Order Invocation Pledge of Allegiance Adoption of Agenda Consent AgendaAttachment ----------------------------------------------------------------------------------------------------- A 1.Minutes Called Meeting and Closed Session of June 27, 2018 2.Committee Reports --------------------------------------------------------------- B Code and Ordinance Committee -------------------------------------------------------------------------------- C Finance Committee ------------------------------------------ D Parks and Recreation Commission(two reports) ------------------------------------------------------------------------- E Public Safety Committee ----------------------------------------------------------------------- F Transportation Committee --------------------G Resolution adding Business Boulevard to Secondary Road System ---------H Northwestern Community Services’ FiscalYear 201PerformanceContract Resolution Supporting Conceptsfrom theCommission on Local ----------------------------------- I Government Draft Report on Annexation Alternatives REGULAR MEETING AGENDA PAGE 2 Frederick County Board of Supervisors Wednesday, July 25, 2018 Citizen Comments – Agenda Items that are not the subject of a Public Hearing Board of Supervisors Comments County Officials 1.Report to the Board by Karen Beck-Herzog, Site Manager ----------------------------------------- J Cedar Creek and Belle Grove National Historical Park ------------------------------------------------------------------------------- K 2.Committee Appointments a.Historic Resources Advisory Board Member-At-Large Representative 4-year term,Applications pending b.Winchester Regional Airport Authority 4-year term of Gene Fisher ended 6/30/18 (Eligible for reappointment) 4-year term of Robert Bearer ended 6/30/18 (Eligible for reappointment) c.Conservation Easement Authority 3-year term of Elaine Cain, Co. Representative, ends 8/24/18 (Eligible for reappointment) 3-year term of Robert Solenberger, Co. Representative ends 8/24/18 (Eligible for reappointment) 3-year term of Charles Triplett, Planning Comm. Representative ends 8/24/18 (Eligible for reappointment) ------------------------------L 3.Requests from the Commissioner of the Revenue for Refunds Acar Leasing LTD – $ 2,520.83 BMW Financial Services NA LLC --$ 2,789.61 Bowman Properties LLC -- $ 3,282.61 Capital Meats, Inc. --$ 23,136.35 Committee Business Tab B Code and Ordinance Committee(See foradditional information) 1.Amendment to Chapter 48 (Animals and Fowl), Article I (Dog Licensing; Rabies Control), Section 48-18 (License Taxes), of the County Code, to allow for lifetime licensing of dogs. The Committee recommends that the Board set a public hearing on the matter. REGULAR MEETING AGENDA PAGE 3 Frederick County Board of Supervisors Wednesday, July 25, 2018 Tab B Code and Ordinance Committee, continued(See for additional information) 2.Amendments to Chapter 52 (Building Construction), Section 52-5 (Issuance of Permits) and Chapter 143 (Stormwater/Erosion and Sediment Control), Section 143-194 (Issuance, time limit, modification, maintenance, transfer and/or termination of Frederick County land-disturbing permit and VSMP authority permit), of the County Code, to require payment of delinquent real estate taxes before issuance of certain permits. The Committee recommends that the Board set a public hearing on the matter. 3.Amendments to Chapters 48and 118, of the County Code, to adopt a “plainly audible” standard with respect to certain prohibited noise. The Committee recommends that the Board set a public hearing on the matter. 4.An amendment to Chapter 155 (Taxation), Article VIII (Tax on Purchasers of Utility Service), Section 155-34 (Tax Imposed), of the County Code, to correct a typographical error with respect to the tax on electric service. The Committee recommends that the Board set a public hearing on the matter. Tab C Finance Committee(See foradditional information) ()Items 3, 5, 6, 7, 8, 9, 10, and 12 were approved underthe Committee’s consent agenda. 1.The VJCCCA Director requests an FY18 General Fund budget transfer in the amount of $20,700from a salary line item. This amount represents funds needed to cover May and June services. The Committee recommends approval. 2.The Winchester Regional Airport Director requests an FY18 General Fund budget transfer in the amount of $21,924 from salaries and fringes. This amount represents funds needed to cover fuel deliveries. The Committee recommends approval. 3.()The Planning Director requests an FY19 General Fund supplemental appropriation in the amount of $59,066.50.This amount represents a carry forward of unspent budgeted FY18 funds for completion of the Capital Impact Study and Model. Approved by Committee consent agenda. 4.The Sheriff requests an FY18 General Fund supplemental appropriation in the amount of $13,700.This amount represents traffic control reimbursements. No local funds required. The Committee recommends approval.The committee also recommends forwarding the topic to the Public Safety Committee for discussion to determine the need for a policy. 5.()The Sheriff requests an FY18 General Fund supplemental appropriation in the amount of $4,713.36.This amount represents reimbursements from the Treasury Department. No local funds required. Approved by Committee consent agenda. REGULAR MEETING AGENDA PAGE 4 Frederick County Board of Supervisors Wednesday, July 25, 2018 Tab C Finance Committee, continued (See foradditional information) 6.() The Sheriff requests an FY18 General Fund supplemental appropriation in the amount of $5,155.01.This amount represents travel reimbursements from the State. No local funds required. Approved by Committee consent agenda. 7.() The Sheriff requests an FY19 General Fund supplemental appropriation in the amountof $15,191.16.This amount represents a carry forward of unspent FY18 funds from auto insurance claims. Approved by Committee consent agenda. 8.() The Parks & Recreation Director requests the funds received in FY18 for the PLAY Fund in the amount of $6,488.62 be reserved, subject to future appropriations. The balance will be reduced by the financial assistance provided during FY18 in the amount of $1,270.50. No local funds required. Approved by Committee consent agenda. 9.() The Parks & Recreation Director requests an FY19 General Fund supplemental appropriation in the amount of $121,807.This amount represents a carry forward of unspent FY18 funds for Northwest Sherando Park project, Clearbrook Park parking lot, Frederick Heights trail and parking lot, and Abrams Creek trail. Approved by Committee consent agenda. 10.() The Parks & Recreation Director requests an FY19 General Fund supplemental appropriation in the amount of $531,589.70.This amount represents a carry forward of unspent FY18 funds for the Northwest Sherando Park project. Approved by Committee consent agenda. 11.An FY18 F&R Expense Recovery Fund (Fund 30) supplemental appropriation in the amount of $697,923.95is requested. This amount represents $433,487.95 in FY18 revenue received over budgeted revenue, and $264,436 in fund balance funds for prior years distributions. No local funds are required. The Committee recommends approval. 12.() The Fire & Rescue Chief requests an FY18 General Fund supplemental appropriation in the amount of $13,915.40.This amount represents an auto claim reimbursement. No local funds required. Approved by Committee consent agenda. 13.The Fire & Rescue Chief requests approval to move forward with hiring two (2) additional training officers. Funds have been budgeted in FY19. The Committee recommends approval. REGULAR MEETING AGENDA PAGE 5 Frederick County Board of Supervisors Wednesday, July 25, 2018 Tab F Transportation Committee(See foradditional information) 1.SmartScale Project Support Resolution:The Committee recommends approval of the Resolution of Support for Frederick County and Regional SmartScaleApplications. 2.Intersection of Route 50 and Independence Agreements:The Committee recommends approval of theupdated language drafts of the Transportation Partnership Opportunity Fund Agreement and Backstop Agreement. 3.Interstate 81 Corridor Study: The corridor study is under the direction of the SB 971 for Interstate 81. The Committee recommends approval of the Resolution for the Board of Supervisors to Comment on the Interstate 81 Corridor Study. Public Hearings (Non Planning Issues) 1.Outdoor Festival Permit Request of Concern Hotline – ------------------------------------- M 19th Annual Friday Fish Fry Pursuant to the Frederick County Code, Chapter 86, Festivals; Section 86-3, Permit Required; Application; Issuance or Denial; Fee, for an Outdoor Festival Permit.Festival to be Held on Friday, September 7, 2018, from 4:00 P.M. to 9:00 P.M.; on theGrounds of Grove’s Winchester Harley-Davidson, 140 Independence Drive,Winchester, Virginia. Property Owned by Jobalie, LLC. 2.Amendment to the 2018-2019 Fiscal Year Budget -------------------------------------------- N Pursuant to Section 15.2-2507 of the Code of Virginia, 1950, as Amended, the Board of Supervisors will Hold a Public Hearing to Amend the Fiscal Year 2018-2019 Budget to Reflect: School Construction Fund Supplemental Appropriation in the Amount of $45,500,000 for the Acquisition of Land, Design and Construction of a Replacement Robert E. Aylor Middle School. Request for Appropriation of funds for replacement Aylor Middle School Building REGULAR MEETING AGENDA PAGE 6 Frederick County Board of Supervisors Wednesday, July 25, 2018 Planning Commission Business Public Hearings 1.Rezoning #05-17 for O-N Minerals (Chemstone)--------------------------------------------- O d/b/a Carmeuse Lime & Stone, CONTINUED from March 14, April 25, May 23,and June 13, 2018 Submitted by Lawson and Silek, PLC., to Amend the Proffers for this Property; Rezoning 394.2 Acres from the EM (Extractive Manufacturing) District with Proffer to the EM (Extractive Manufacturing) District with Revised Proffers. The Properties are Situated Generally West of the Town of Middletown. Specifically, the MiddleMarsh Property is Located East of Belle View Lane (Route 758), and West and Adjacent to Hites Road (Route 625) and is Further Traversed by Chapel Road (Route 627). The Northern Reserve is Bounded to the South by Cedar Creek and is West and Adjacent to Meadow Mills Road (Route 624). The Properties are Identified with Property Identification Numbers 83-A-109 and 90-A-23 in the Back Creek Magisterial District. 2.Conditional Use Permit #07-18 For Winchester 101 LLC---------------------------------- P For a Revision to the Conditions of Conditional Use Permit #13-96 Submitted to Changethe Hours of Operation. The Property is Located at 4780 Northwestern Pike, Winchester,Virginia and is Identified with Property Identification Number 40-A-66D in theGainesboro Magisterial District in the RA (Rural Areas) Zoning District. Note: On July 19, the Applicant requested a deferral of the public hearing. Other Planning Items 1.Request for Joint Board of Supervisors – Planning Commission Meeting --------- Q Board Liaison Reports Citizen Comments Board of Supervisors Comments Adjourn CONSENT AGENDA APPROVAL CONSENT AGENDA APPROVAL + + + + + + + + + + + + Frederick County Board of Supervisors Called Meeting & Closed Session *June 27, 2018 RESOLUTION DECLARING A LOCAL EMERGENCY IN FREDERICK COUNTY, VIRGINIA WHEREAS, the Board of Supervisors of the County of Frederick does hereb 1.Due to severe weather that was forecasted for Frederick County adirectly related to heavy and prolonged rainfall that impacted Frederick County from May 14, 2 2.Due to the flooding associated with the severe weather and the r 3.Due to severe prolonged rainfall and flooding, systems failure occurred in the county creating hazardous and perhaps life-threatening conditions; 4.Associated flooding and near record rainfall has impacted local NOW, THEREFORE, IT IS HEREBY PROCLAIMED by the Board of Supervisors of the county of Frederick, Virginia that an emergency exists throughout the coun IT IS FURTHER PROCLAIMED AND ORDERED that due to the above stated circumstances, and after consultation with the Coordinator and Deputy Coordinator(s) of E Emergency Management declared a local emergency pursuant to Secta on June 14, 2018. This local emergency declaration shall remain time the powers, functions, and duties of the Director of Emerge Services Organizations of the County of Frederick shall be those ordinances, resolutions, and approved plan of the County of Fred emergency. + + + + + + + + + + + + Frederick County Board of Supervisors Called Meeting & Closed Session *June 27, 2018 + + + + + + + + + + + + Frederick County Board of Supervisors Called Meeting & Closed Session *June 27, 2018 Frederick County Board of Supervisors Called Meeting & Closed Session *June 27, 2018 CODE & ORDINANCE COMMITTEE REPORT to the BOARD OF SUPERVISORS Thursday, June 28, 2018 8:30 a.m. 107 NORTH KENT STREET, WINCHESTER, VIRGINIA ATTENDEES: Committee Members Present: Shannon Trout, Chair; Blaine P. Dunn; J. Douglas McCarthy; and Stephen Butler Committee Members Absent: Derek Aston and James Drown Staff present: Roderick B. Williams, County Attorney; Jay E. Tibbs, Deputy County Administrator; Sheriff Lenny Millholland; Mark Fleet, Building Official; Lorraine Mossburg representing the Commissioner of the Revenue; Karen Orndorff rep Treasurer C. William Orndoff, Jr.; Wayne Corbett, Deputy Treasur Analyst with the Tr ITEMS REQUIRING ACTION BY BOARD OF SUPERVISORS: Amendment to Chapter 48 (Animals and Fowl), Article I (Dog Licensing; Rabies 1. Control), Section 48-18 (License Taxes), of the County Code, to for lifetime licensing of dogs. This proposed amendment would enable the issuance of lifetime do zero cost lifetime licenses for dogs adopted from the Frederick Shelter. The intent of the proposed ordinance would be to reducnistrative burden of the Upon a motion by Mr. Dunn, seconded by Mr. McCarthy, the Code an forwarded the proposed ordinance amendment to the Board of Supervisors for public hearing, with a recommendation of approval. The motion was unanimously approv Amendments to Chapter 52 (Building Construction), Section 52-5 (of 2. Permits) and Chapter 143 (Stormwater/Erosion and Sediment Contro 143-194 (Issuance, time limit, modification, maintenance, transfer termination of Frederick County land-disturbing permit and VSMP authority permit), of the County Code, to require payment of delinquent re before issuance of certain permits. This proposed amendment would require that any delinquent real e that constitute a lien on a property, that are owed to the local accepts an application for a building permit or stormwater/erosion and sediment control permit for the property. This proposed ordinance would apply to new constr not be applicable to emergency work. Upon a motion by Mr. McCarthy, seconded by Mr. Butler, the Code Committee forwarded the proposed ordinance amendment to the Board of Super a recommendation of approval. The motion was unanimously approv Amendments to Chapters 48 3. audib This proposed amendment would revise the County Code, Noise Ordiadopt as the standard for prohibit Also, with respect to barking dogs, the draft revisions further require that barking oc for ten consecutive minutes in order to be prohibited. The prop generally deviate from the general principles of the current ordeps the general noise prohibition limited to the RP, R4, R5, and MH zoning districts, with the noise prohibition being applicable 9:00 p.m. to 6:00 a.m. It was noted the proposed ame that the noise prohibition does not apply to a bona fide agricultural activity and there is included a further list of other activities that are not subject to the pro Upon a motion by Mr. McCarthy, seconded by Mr. Butler, the Code forwarded the proposed ordinance amendment to the Board of Supervisors for public hearing, wit a recommendation of approval. The motion was approved by a 3-1 vote with Mr. Dunn voting no. Mr. Dunn stated he would like to see noise regulated on a case by case basis in an effort to address instances where citizen might be caring for a loved one with a m sympathetic, did not support this proposal. They did, however, at ordinances from other localities to see if there An amendment to Chapter 155 (Taxation), Article VIII (Tax on Purchasers of 4. Utility Service), Section 155-34 (Tax Imposed), of the County Coa typographical error with respect to the tax on electric service. This proposed amendment would correct a typographical error with- 34(A)(1)(a)(2)(c), which provides the formula by which the tax on electrici electricity is being consumed by multiple dwellings or units through a master meter. The subsection, currently, erroneously refers to apartment houses or-family dwellings utilizing gas service, not electric service. Upon a motion by Mr. McCarthy, seconded by Mr. Dunn, the Code and Ordinance Committee forwarded the proposed ordinance amendment to the Board of Super a recommendation of approval. The motion was unanimously approv ITEMS FOR INFORMATION ONLY Review of Committee Charter. 1. The Committee reviewed its charter. There were no changes proposed to the current charter. 2.Other. The Committee discussed a concern raised by a citizen in the Gainesboro District regarding the discharge of firearms near a residence. The Committee asked tt ordinances from other localities to see how that issue is addres There being no further business, the meeting was adjourned at 9: Respectfully submitted, Deputy County Administrator cc: Code & Ordinance Committee VIRGINIAACTSOFASSEMBLY2017SESSION -- CHAPTER559 AnActtoamendandreenact§§3.26527,3.26528,3.26530,3.26532,and18.2403.3oftheCodeof ----- Virginia,relatingtodogsandcats;lifetimelicenses. [H1477] ApprovedMarch16,2017 BeitenactedbytheGeneralAssemblyofVirginia: 1.That§§3.26527,3.26528,3.26530,3.26532,and18.2403.3oftheCodeofVirginiaare ----- amendedandreenactedasfollows: §3.26527.Howtoobtainlicense. - Anypersonmayobtainadoglicenseorcatlicenseifrequiredbyanordinance subsectionBof§3.26524,bymakingoralorwrittenapplicationtothetreasurerofthelocality - suchpersonresides,accompaniedbytheamountoflicensetaxandcurrentce requiredbythisarticleorsatisfactoryevidencethatsuchcertificateha otherofficerchargedwiththedutyofissuingdogandcatlicensesshallonl dogsandcatsofresidentownersorcustodianswhoresidewithintheboundar cityandmayrequireinformationtothiseffectfromanyapplicant.Uponrec andcurrentcertificateofvaccinationasrequiredbythisarticleorsatis certificatehasbeenobtained,thetreasurerorotherofficerchargedwith licensesshallissuealicensereceiptfortheamountonwhichheshallrecor theownerorcustodian,thedateofpayment,theyear years forwhichissued,theserialnumberofthe tag,whetherdogorcat,whethermaleorfemale,whetherspayedorneutered, deliverthemetallicensetagsorplatesprovidedforherein in§3.26526.Theinformationthusreceived - shallberetainedbythetreasurer,opentopublicinspection,duringthepe valid.Thetreasurermayestablishsubstationsinconvenientlocationsin agentsforthecollectionofthelicensetaxandissuanceofsuchlicenses. §3.26528.Amountoflicensetax. - Thegoverningbodyofeachcountyorcityshallimposebyordinancealicense ofdogswithinitsjurisdiction.Thegoverningbodyofanylocalitythathas pursuanttosubsectionBof§3.26524shallimposebyordinancealicensetaxontheownershipofcats - withinitsjurisdiction.Thegoverningbodymayestablishdifferentrates femaledogs,maledogs,spayedorneutereddogs,femalecats,malecats,and Thetaxforeachdogorcatshallnotbelessthan$1andnotmorethan$10foreac or$50fora lifetimelicenseissuedpursuanttosubsectionBof§3.26530.Ifthedogorcathasbeenspayed,thetax - shallnotexceedthetaxprovidedforamaledogorcat.Anyordinancemayprov anannual licensetaxforkennelsof10,20,30,40,or50dogsorcatsnottoexceed$50fo ofkennels. Nolicensetaxshallbeleviedonanydogthatistrainedandservesasaguided person,thatistrainedandservesasahearingdogforadeaforhearingimpairedperson,orthatis - trainedandservesasaservicedogforamobilityimpairedorotherwisedisabledperson. - Asusedinthissection,"hearingdog,""mobilityimpairedperson,""otherwisedisabledperson,"and - "servicedog"havethesamemeaningsasassignedin§51.540.1. - §3.26530.Whenlicensetaxpayable. - A.Thelicensetaxasprescribedin§3.26528isduenotlaterthan30daysafteradogorcathas - reachedtheageoffourmonths,ornotlaterthan30daysafteranowneracquir monthsofageorolder,andeachyearthereafter. B.Licensingperiodsforindividualdogsandcatsmaybeequaltoandmayrunc rabiesvaccinationeffectiveperiod. B.Thegoverningbodyofacountyorcitymaybyordinanceprovideforalifeti license.Suchalicenseshallbevalidonlyaslongastheanimalsownerresidesintheissuinglocality ‡ andtheanimalsrabiesvaccinationiskeptcurrent. ‡ C.Anykennellicensetaxprescribedpursuantto§3.26528shallbedueonJanuary1andnotlater - thanJanuary31ofeachyear. §3.26532.Duplicatelicensetags. - Ifadogorcatlicensetagislost,destroyedorstolen,theownerorcustodia thetreasurerorhisagentwhoissuedtheoriginallicenseforaduplicateli originallicensereceipt.Uponaffidavitoftheownerorcustodianbeforet theoriginallicensetaghasbeenlost,destroyedorstolen,heshallissuea ownerorcustodianshallimmediatelyaffixtothecollarofthedog.Thetrea 2of2 endorsethenumberoftheduplicateandthedateissuedonthefaceoftheorig feeforaduplicatetagforanydogorcatshallbe notexceed$1. §18.2403.3.OffensesinvolvinganimalsClass4misdemeanors. -ŽŽ Thefollowingunlawfulactsandoffensesagainstanimalsshallconstitute 4misdemeanor: 1.Violationof§3.26566pertainingtointerferenceofagentschargedwithpreventingcruelty - animals. 2.Violationof§3.26573pertainingtoshootingpigeons. - 3.Violationof§3.26554pertainingtodisposingofthebodyofadeadcompanionanimal. - 4.Violationofordinancespassedpursuantto§§3.26522and3.26525pertainingtorabiddogsand -- preventingthespreadofrabiesandtherunningatlargeofviciousdogs. 5.Violationofanordinancepassedpursuantto§3.26539requiringdogstobeonaleash. - 6.Failurebyanypersontosecureandexhibitthepermitsrequiredby§29.1422pertainingtofield - trails,nighttrailsandfoxhounds. 7.Diseaseddogs.Fortheownerofanydogwithacontagiousorinfectiousdiseasetopermit ŽŽ suchdogtostrayfromhispremisesifsuchdiseaseisknowntotheowner. 8.Licenseapplication.Foranypersontomakeafalsestatementinordertosecureadogorcat ŽŽ licensetowhichheisnotentitled. 9.Licensetax.Foranydogorcatownertofailtopayanylicensetaxrequiredby subsectionA ŽŽ orCof§3.26530beforeFebruary1fortheyearinwhich withinonemonthafterthedatewhen itis - due.Inaddition,thecourtmayorderconfiscationandtheproperdispositi 10.Concealingadogorcat.Foranypersontoconcealorharboranydogorcatonwhichany ŽŽ requiredlicensetaxhasnotbeenpaid. 11.Removingcollarandtag.Foranyperson,excepttheownerorcustodian,toremovealegally ŽŽ acquiredlicensetagfromadogorcatwithoutthepermissionoftheownerorc 12.Violationof§3.26503pertainingtocareofanimalsbyowner. - VIRGINIAACTSOFASSEMBLY2017SESSION -- CHAPTER567 AnActtoamendandreenact§§3.26527,3.26528,3.26530,3.26532,and18.2403.3oftheCodeof ----- Virginia,relatingtodogsandcats;lifetimelicenses. [S856] ApprovedMarch16,2017 BeitenactedbytheGeneralAssemblyofVirginia: 1.That§§3.26527,3.26528,3.26530,3.26532,and18.2403.3oftheCodeofVirginiaare ----- amendedandreenactedasfollows: §3.26527.Howtoobtainlicense. - Anypersonmayobtainadoglicenseorcatlicenseifrequiredbyanordinance subsectionBof§3.26524,bymakingoralorwrittenapplicationtothetreasurerofthelocality - suchpersonresides,accompaniedbytheamountoflicensetaxandcurrentce requiredbythisarticleorsatisfactoryevidencethatsuchcertificateha otherofficerchargedwiththedutyofissuingdogandcatlicensesshallonl dogsandcatsofresidentownersorcustodianswhoresidewithintheboundar cityandmayrequireinformationtothiseffectfromanyapplicant.Uponrec andcurrentcertificateofvaccinationasrequiredbythisarticleorsatis certificatehasbeenobtained,thetreasurerorotherofficerchargedwith licensesshallissuealicensereceiptfortheamountonwhichheshallrecor theownerorcustodian,thedateofpayment,theyear years forwhichissued,theserialnumberofthe tag,whetherdogorcat,whethermaleorfemale,whetherspayedorneutered, deliverthemetallicensetagsorplatesprovidedforherein in§3.26526.Theinformationthusreceived - shallberetainedbythetreasurer,opentopublicinspection,duringthepe valid.Thetreasurermayestablishsubstationsinconvenientlocationsin agentsforthecollectionofthelicensetaxandissuanceofsuchlicenses. §3.26528.Amountoflicensetax. - Thegoverningbodyofeachcountyorcityshallimposebyordinancealicense ofdogswithinitsjurisdiction.Thegoverningbodyofanylocalitythathas pursuanttosubsectionBof§3.26524shallimposebyordinancealicensetaxontheownershipofcats - withinitsjurisdiction.Thegoverningbodymayestablishdifferentrates femaledogs,maledogs,spayedorneutereddogs,femalecats,malecats,and Thetaxforeachdogorcatshallnotbelessthan$1andnotmorethan$10foreac or$50fora lifetimelicenseissuedpursuanttosubsectionBof§3.26530.Ifthedogorcathasbeenspayed,thetax - shallnotexceedthetaxprovidedforamaledogorcat.Anyordinancemayprov anannual licensetaxforkennelsof10,20,30,40,or50dogsorcatsnottoexceed$50fo ofkennels. Nolicensetaxshallbeleviedonanydogthatistrainedandservesasaguided person,thatistrainedandservesasahearingdogforadeaforhearingimpairedperson,orthatis - trainedandservesasaservicedogforamobilityimpairedorotherwisedisabledperson. - Asusedinthissection,"hearingdog,""mobilityimpairedperson,""otherwisedisabledperson,"and - "servicedog"havethesamemeaningsasassignedin§51.540.1. - §3.26530.Whenlicensetaxpayable. - A.Thelicensetaxasprescribedin§3.26528isduenotlaterthan30daysafteradogorcathas - reachedtheageoffourmonths,ornotlaterthan30daysafteranowneracquir monthsofageorolder,andeachyearthereafter. B.Licensingperiodsforindividualdogsandcatsmaybeequaltoandmayrunc rabiesvaccinationeffectiveperiod. B.Thegoverningbodyofacountyorcitymaybyordinanceprovideforalifeti license.Suchalicenseshallbevalidonlyaslongastheanimalsownerresidesintheissuinglocality ‡ andtheanimalsrabiesvaccinationiskeptcurrent. ‡ C.Anykennellicensetaxprescribedpursuantto§3.26528shallbedueonJanuary1andnotlater - thanJanuary31ofeachyear. §3.26532.Duplicatelicensetags. - Ifadogorcatlicensetagislost,destroyedorstolen,theownerorcustodia thetreasurerorhisagentwhoissuedtheoriginallicenseforaduplicateli originallicensereceipt.Uponaffidavitoftheownerorcustodianbeforet theoriginallicensetaghasbeenlost,destroyedorstolen,heshallissuea ownerorcustodianshallimmediatelyaffixtothecollarofthedog.Thetrea 2of2 endorsethenumberoftheduplicateandthedateissuedonthefaceoftheorig feeforaduplicatetagforanydogorcatshallbe notexceed$1. §18.2403.3.OffensesinvolvinganimalsClass4misdemeanors. -ŽŽ Thefollowingunlawfulactsandoffensesagainstanimalsshallconstitute 4misdemeanor: 1.Violationof§3.26566pertainingtointerferenceofagentschargedwithpreventingcruelty - animals. 2.Violationof§3.26573pertainingtoshootingpigeons. - 3.Violationof§3.26554pertainingtodisposingofthebodyofadeadcompanionanimal. - 4.Violationofordinancespassedpursuantto§§3.26522and3.26525pertainingtorabiddogsand -- preventingthespreadofrabiesandtherunningatlargeofviciousdogs. 5.Violationofanordinancepassedpursuantto§3.26539requiringdogstobeonaleash. - 6.Failurebyanypersontosecureandexhibitthepermitsrequiredby§29.1422pertainingtofield - trails,nighttrailsandfoxhounds. 7.Diseaseddogs.Fortheownerofanydogwithacontagiousorinfectiousdiseasetopermit ŽŽ suchdogtostrayfromhispremisesifsuchdiseaseisknowntotheowner. 8.Licenseapplication.Foranypersontomakeafalsestatementinordertosecureadogorcat ŽŽ licensetowhichheisnotentitled. 9.Licensetax.Foranydogorcatownertofailtopayanylicensetaxrequiredby subsectionA ŽŽ orCof§3.26530beforeFebruary1fortheyearinwhich withinonemonthafterthedatewhen itis - due.Inaddition,thecourtmayorderconfiscationandtheproperdispositi 10.Concealingadogorcat.Foranypersontoconcealorharboranydogorcatonwhichany ŽŽ requiredlicensetaxhasnotbeenpaid. 11.Removingcollarandtag.Foranyperson,excepttheownerorcustodian,toremovealegally ŽŽ acquiredlicensetagfromadogorcatwithoutthepermissionoftheownerorc 12.Violationof§3.26503pertainingtocareofanimalsbyowner. - ORDINANCE ____ _, 2018 The Board of Supervisors of Frederick County, Virginia hereby ordains that Section 48-18 (License Taxes) of Article I (Dog Licensing; Rabies Control) of Chapter 48 (Animals and Fowl) of the Code of Frederick County, Virginia be, and the same hereby is, amended as follows (deletions are shown in strikethrough and additions are bold underline shown in ): § 48-18. License taxes. A. License periods for individual dogs shall be equal to and run concurrently with Notwithstanding the rabies vaccination effective period for that respective dog. the foregoing, pursuant to Va. Code §3.2-6530(B), a person may apply for a lifetime license for his or her dog. Lifetime licenses are not transferrable between dogs or owners, and are not transferrable to other localities. Any person who applies for a license tag for a neutered or spayed dog shall present, at the time of application, certification from a licensed veterinarian attesting to the neutering or spaying of the dog. If such certification is not so presented, the dog shall be taxed the fee levied on male or female dogs. Kennel licenses are only sold for a one-year period and shall be due on January 1 and not later than January 31 of each year. Inspections by animal control may be required before the issuance of a kennel license. following s B. License taxes shall be in the amount of: Spayed or Neutered Not Spayed or Neutered One dog – for January 1 $5.00 $10.00 to December 31 or vaccination period of 12 months or less Vaccination period of 36 $10.00$20.00 months or less One dog – for lifetime of FreeFree dog – for dogs adopted from the Frederick County Animal Shelter One dog – for lifetime of $10.00$15.00 dog– for all other dogs – for Multi-dog license January 1 to December 31 : 20 multi-do license $30.00 g 50 multi-do license $50.00 g Enacted this _____ day of _________, 2018. Charles S. DeHaven, Jr., Chairman ____ Gary A. Lofton ____ J. Douglas McCarthy ____ Robert W. Wells ____ Blaine P. Dunn ____ Shannon G. Trout ____ Judith McCann-Slaughter ____ A COPY ATTEST ________________________________ Kris C. Tierney Frederick County Administrator Rev. 06/2018 Code of Virginia Title 15.2. Counties, Cities and Towns Chapter 22. Planning, Subdivision of Land and Zoning     § 15.2-2286. Permitted provisions in zoning ordinances; amendments; applicant to pay delinquent taxes; penalties   A. A zoning ordinance may include, among other things, reasonabl as to any or all of the following matters:   1. For variances or special exceptions, as defined in § 15.2-2201, to the general regulations in any district.   2. For the temporary application of the ordinance to any propert jurisdiction of the governing body by annexation or otherwise, s zoning ordinance, and pending the orderly amendment of the ordin   3. For the granting of special exceptions under suitable regulat notwithstanding any other provisions of this article, the govern reserve unto itself the right to issue such special exceptions. with residential special use permits, wherein the applicant prop consistent with the objective of providing affordable housing. W residential projects specifying materials and methods of constru the approving body shall consider the impact of the conditions u   The governing body or the board of zoning appeals of the City of upon any special exception relating to retail alcoholic beverage that such special exception will automatically expire upon a cha a change in possession, a change in the operation or management passage of a specific period of time.   The governing body of the City of Richmond may impose a conditio issued after July 1, 2000, relating to retail alcoholic beverage special use permit shall be subject to an automatic review by th in possession, a change in the owner of the business, or a trans business entity. Upon review by the governing body, it may eithe use permit after notice and a public hearing as required by § 15.2-2206.   4. For the administration and enforcement of the ordinance inclu designation of a zoning administrator who may also hold another zoning administrator shall have all necessary authority on behal administer and enforce the zoning ordinance. His authority shall the remedying of any condition found in violation of the ordinan the ordinance, bringing legal action, including injunction, abat action or proceeding subject to appeal pursuant to § 15.2-2311;and (iii) in specific cases, making findings of fact and, with concurrence of the attorney for the g regarding determinations of rights accruing under § 15.2-2307 or subsection C of § 15.2-2311.   Whenever the zoning administrator has reasonable cause to believ in or is engaging in any violation of a zoning ordinance that li 12/15/2018 dwelling unit, which is subject to a civil penalty that may be i provisions of § 15.2-2209, and the zoning administrator, after a good faith effort to obt data or information necessary to determine whether a violation h obtain such information, he may request that the attorney for th the general district court for his jurisdiction for a subpoena d refusing to produce such data or information. The judge of the c may cause the subpoena to be issued. Any person failing to compl subject to punishment for contempt by the court issuing the subp subpoenaed may apply to the judge who issued the subpoena to qua   Notwithstanding the provisions of § 15.2-2311, a zoning ordinance may prescribe an appeal period of less than 30 days, but not less than 10 days, for a no temporary or seasonal commercial uses, parking of commercial tru districts, maximum occupancy limitations of a residential dwelli recurring violations.   Where provided by ordinance, the zoning administrator may be aut modification from any provision contained in the zoning ordinanc requirements on a lot or parcel of land, including but not limit features of or related to any building, structure, or improvemen writing that: (i) the strict application of the ordinance would hardship is not shared generally by other properties in the same vicinity; and (iii) the authorization of the modification will n adjacent property and the character of the zoning district will the modification. Prior to the granting of a modification, the z require the applicant to give, all adjoining property owners wri modification, and an opportunity to respond to the request withi notice. The zoning administrator shall make a decision on the ap issue a written decision with a copy provided to the applicant a responded in writing to the notice sent pursuant to this paragra administrator shall constitute a decision within the purview of 15.2-2311, and may be appealed to the board of zoning appeals as provided by that section. Deci appeals may be appealed to the circuit court as provided by § 15.2-2314.   The zoning administrator shall respond within 90 days of a reque determination on zoning matters within the scope of his authorit agreed to a longer period.   5. For the imposition of penalties upon conviction of any violat such violation shall be a misdemeanor punishable by a fine of no $1,000. If the violation is uncorrected at the time of the convi violator to abate or remedy the violation in compliance with the period established by the court. Failure to remove or abate a zo time period shall constitute a separate misdemeanor offense puni $10 nor more than $1,000, and any such failure during any succee constitute a separate misdemeanor offense for each 10-day period than $100 nor more than $1,500.   However, any conviction resulting from a violation of provisions unrelated persons in single-family residential dwellings shall b 22/15/2018 $2,000. Failure to abate the violation within the specified time fine of up to $5,000, and any such failure during any succeeding separate misdemeanor offense for each 10-day period punishable b However, no such fine shall accrue against an owner or managing residential dwelling unit during the pendency of any legal actio managing agent of such dwelling unit against a tenant to elimina accordance with Chapter 13 or Chapter 13.2 of Title 55, as appli a violation of provisions regulating the number of unrelated per dwellings shall not be punishable by a jail term.   6. For the collection of fees to cover the cost of making inspec of notices and other expenses incident to the administration of filing or processing of any appeal or amendment thereto.   7. For the amendment of the regulations or district maps from ti Whenever the public necessity, convenience, general welfare, or the governing body may by ordinance amend, supplement, or change boundaries, or classifications of property. Any such amendment m of the governing body; (ii) by motion of the local planning comm owner, contract purchaser with the owner's written consent, or t property which is the subject of the proposed zoning map amendme governing body or the local planning commission, who shall forwa governing body; however, the ordinance may provide for the consi amendments only at specified intervals of time, and may further same petition will not be reconsidered within a specific period, resolution or motion by such governing body or commission propos the above public purposes therefor.   In any county having adopted such zoning ordinance, all motions, amendment to the zoning ordinance, and/or map shall be acted upo such reasonable time as may be necessary which shall not exceed requests or consents to action beyond such period or unless the resolution or petition for amendment to the zoning ordinance or and upon such withdrawal, processing of the motion, resolution o further action as otherwise would be required by this subdivisio   8. For the submission and approval of a plan of development prio permits to assure compliance with regulations contained in such   9. For areas and districts designated for mixed use developments as defined in § 15.2-2201.   10. For the administration of incentive zoning as defined in § 15.2-2201.   11. For provisions allowing the locality to enter into a volunta that would result in the downzoning of the landowner's undevelop in exchange for a tax credit equal to the amount of excess real has paid due to the higher zoning classification. The locality m for determining the amount of excess real estate tax collected a applying the tax credit. For purposes of this section, "downzoni 32/15/2018 locality that results in a reduction in a formerly permitted lan 12. Provisions for requiring and considering Phase I environment anticipated use of the property proposed for the subdivision or accepted national standards for such assessments, such as those Society for Testing and Materials, and Phase II environmental si accepted national standards, such as, but not limited to, those Society for Testing and Materials, if the locality deems such to findings in the Phase I assessment, and in accordance with regul Environmental Protection Agency and the American Society for Tes reasonable fee may be charged for the review of such environment not exceed an amount commensurate with the services rendered, ta time, skill, and administrative expense involved in such review. 13. Provisions for requiring disclosure and remediation of conta environmental conditions of the property prior to approval of su plans. 14. For the enforcement of provisions of the zoning ordinance th persons permitted to occupy a single-family residential dwelling enforcement is in compliance with applicable local, state and fe 15. For the issuance of inspection warrants by a magistrate or c The zoning administrator or his agent may make an affidavit unde court of competent jurisdiction and, if such affidavit establish ordinance violation has occurred, request that the magistrate or administrator or his agent an inspection warrant to enable the z to enter the subject dwelling for the purpose of determining whe ordinance exist. After issuing a warrant under this section, the affidavit in the manner prescribed by § 19.2-54. After executing the warrant, the zoning administrator or his agents shall return the warrant to the cler county wherein the inspection was made. The zoning administrator reasonable effort to obtain consent from the owner or tenant of seeking the issuance of an inspection warrant under this section B. Prior to the initiation of an application by the owner of the agent, or any entity in which the owner holds an ownership inter special exception, special use permit, variance, rezoning or oth including building permits and erosion and sediment control perm final approval, the authorizing body may require the applicant t that any delinquent real estate taxes, nuisance charges, stormwa any other charges that constitute a lien on the subject property have been properly assessed against the subject property, have b authorized by the treasurer. Code 1950, § 15-968.5; 1962, c. 407, § 15.1-491; 1964, c. 564; 1 1973, c. 286; 1974, c. 547; 1975, cc. 99, 575, 579, 582, 641; 19 177; 1978, c. 543; 1979, c. 182; 1982, c. 44; 1983, c. 392; 1984 856; 1989, cc. 359, 384; 1990, cc. 672, 868; 1992, c. 380; 1993,802;1995, cc. 351, 475, 584, 603;1996, c. 451;1997, cc. 529, 543, 587;1998, c. 385;1999, c. 792;2000, cc. 764, 817; 42/15/2018 2001, c. 240;2002, cc. 547, 703;2005, cc. 625, 677;2006, cc. 304, 514, 533, 903;2007, cc. 821, 937; 2008, cc. 297, 317, 343, 581, 593, 720, 777;2009, c. 721;2012, cc. 304, 318;2014, c. 354;2017, c. 398.   The chapters of the acts of assembly referenced in the historica may not constitute a comprehensive list of such chapters and may provisions have expired.   52/15/2018 ADMINISTRATION S ECTION 108 APPLICATION FOR PERMIT 2012 VIRGINIA CONSTRUCTION CODE9 ORDINANCE ____ _, 2018 The Board of Supervisors of Frederick County, Virginia hereby ordains that Section 52-5 (Issuance of Permits) of Chapter 52 (Building Construction) and Section 143-195 (Issuance, time limit, modification, maintenance, transfer and/or termination of Frederick County land-disturbing permit and VSMP authority permit) of Chapter 143 (Stormwater/Erosion and Sediment Control) of the Code of Frederick County, Virginia be, and the same hereby is, amended as follows (deletions are shown in strikethrough bold underline and additions are shown in ): CHAPTER 52 BUILDING CONSTRUCTION § 52-5.Issuance of Permits. Unless otherwise excepted, no permit to begin work for construction as defined by § 36- 97 of the Code of Virginia or required by the several provisions of the Virginia Uniform . Prior to Statewide Building Code shall be issued until all permit fees have been paid the initiation of an application, by the owner of the subject property, the owner's agent, or any entity in which the owner holds an ownership interest greater than 50 percent, for a permit under this Chapter, except for, as provided under Section 108.1 of the Virginia Construction Code, a permit for emergency construction, alterations or equipment replacement, all delinquent real estate taxes and any other charges that constitute a lien on the subject property, that are owed to the County and have been properly assessed against the subject property, must be paid, unless otherwise authorized by the treasurerissued under . All such permits this Chapter shall be issued by the Chief Building Official or his authorized agent, on forms approved and provided by the Department of Building Inspections. CHAPTER 143 STORMWATER/EROSION AND SEDIMENT CONTROL § 143-195. Issuance, time limit, modification, maintenance, transfer and/or termination of Frederick County land-disturbing permit and VSMP authority permit. A. Permit issuance. Once the requirements for obtaining a Frederick County land- disturbing permit and coverage under the state general permit for discharges from construction activity (if applicable) have been met, including the receipt or verification of payment of all required permit fees in accordance with the fee schedule of § 143-235, the administrator will issue a Frederick County land- Prior to the initiation of an disturbing permit and a VSMP authority permit. application, by the owner of the subject property, the owner's agent, or any entity in which the owner holds an ownership interest greater than 50 percent, for a permit under this Chapter, all delinquent real estate taxes and any other charges that constitute a lien on the subject property, that are owed to the County and have been properly assessed against the subject property, must be paid, unless otherwise authorized by the treasurer . B. No transfer, assignment, or sale of the rights granted by virtue of a Frederick County land-disturbing permit shall be made unless a written notice of transfer and corresponding permit modification fee is filed with the administrator and the transferee certifies agreement to comply with all obligations and conditions of the permit. The administrator may require modification or revocation and reissuance of the VSMP authority permit to change the name of the permittee and incorporate such other requirements as may be necessary for the transfer. C. If land-disturbing activity has not commenced within 180 days of land-disturbing or VSMP authority permit issuance or ceases for more than 180 days, the administrator may evaluate the existing approved ESC plan to determine whether the plan still satisfies local and state erosion and sediment control criteria and to verify that all design factors are still valid. If the previously filed ESC plan is determined to be inadequate, a modified plan shall be submitted and approved prior to the resumption of land-disturbing activity. Reference: 9 VAC 25-840-80B. D. VSMP authority permits are effective for a fixed permit cycle of five years. Activities requiring a VSMP permit may obtain coverage at any time during the five-year permit cycle and must be renewed if the permit has not been terminated prior to the end of the cycle. The annual permit maintenance fees in § 143-235 apply until the permit coverage is terminated or renewed. E. Land-disturbing activities for which VSMP permit coverage was issued between July 1, 2009, and June 30, 2014, for that permit cycle may remain subject to the technical criteria of Part II C of the Virginia Stormwater Regulations for two additional permit cycles, provided coverage under the original VSMP permit is maintained. After two permit cycles have passed, or should the original VSMP permit coverage not be maintained, portions of the project not under construction shall become subject to 2 any new technical criteria adopted by the VSMP authority after the original VSMP permit coverage was issued. F. Land-disturbing activities for which VSMP permit coverage was issued between July 1, 2009, and June 30, 2014, for that permit cycle may elect to modify the permit by paying the appropriate permit modification fee and request approval for compliance with the technical criteria of Part II B for any remaining portions of the project. Reference: Va. Code § 62.1-44.15:24: 9 VAC 25-870-47. Enacted this _____ day of _________, 2018. Charles S. DeHaven, Jr., Chairman ____ Gary A. Lofton ____ J. Douglas McCarthy ____ Robert W. Wells ____ Blaine P. Dunn ____ Shannon G. Trout ____ Judith McCann-Slaughter ____ A COPY ATTEST ________________________________ Kris C. Tierney Frederick County Administrator 3 ORDINANCE TO AMEND PROVISIONS OF COUNTY CODE REGARDING NOISE PROHIBITIONS ___ _, 2018 The Board of Supervisors of Frederick County, Virginia hereby ordains that Sections 48-23 (Unreasonable noise unlawful) and 48-24 (Enforcement) of Article II (Noise) of Chapter 48 (Animals and Fowl) and that Chapter 118 (Noise) of the Code of Frederick County, Virginia be, and the same hereby are, amended by enacting an amended Section 48-23 (Unreasonable noise unlawful) and 48-24 (Enforcement) of Article II (Noise) of Chapter 48 (Animals and Fowl) and an amended Section 118-1 (Unreasonable noise unlawful) and new Sections 118-4 (Specific prohibitions) and 118- 5 (Exceptions) of Chapter 118 (Noise) of the Code of Frederick County, Virginia, as follows (deletions are shown in strikethrough and additions are shown in underline): CHAPTER 48 ANIMALS AND FOWL Article II Noise § 48-23 Unreasonable Specified noise unlawful. A. It shall be unlawful, after written notice by the Sheriff to the owner, custodian or a dog any animal a dog person in control or possession of , for such person to doganimaldoghowl, bark, meow, squawk, suffer or allow such to yelp, ,unreasonably loud,as are plainly audible to whine or otherwise make noises adjoining residents or property owners in a residential subdivision so as to unreasonably annoy, disturb, bother or vex such residents or property ownersat least once a minute for ten (10) consecutive minutes: 1. In such a manner as to be plainly audible across a residential real property boundary or through partitions common to two (2) or more dwelling units within a building; or 2. In such a manner as to be plainly audible at a distance of fifty (50) feet or more from the building in which it is located, provided that the sound is audible on another’s property; or 3. In such a manner as to be plainly audible at a distance of fifty (50) feet or more from its source, provided that the sound is audible on another’s property. 1 Rev. 6/2018 B. This article shall be applicable from 9:00 p.m. to 6:00 a.m., inclusive, each day, to such noise emanating from property located within the following zoning districts as indicated on the Frederick County Zoning Map: RP Residential Performance District R4 Residential Planned Community District R5 Residential Recreational Community District MH1 Mobile Home Community District C. This section shall not apply to any bona fide agricultural activity. D.The term “plainly audible” shall mean any sound that can be heard clearly by a person using his or her unaided hearing faculties. § 48-24 Enforcement. or his designee Enforcement of this article shall be by the Sheriff of Frederick County . § 48-25 Violations and penalties. [Ed. note: No change is proposed to this section] A violation of this article shall be punishable by a fine of not more than $25 for the first offense and a fine of not more than $100 for each subsequent offense. Each such occurrence shall constitute a separate offense. CHAPTER 118 NOISE § 118-1 Unreasonable Specified noise unlawful. A. It shall be unlawful, after complaint from any person annoyed, disturbed or vexed by unnecessary and unreasonable noise and after notice by the Sheriff to the person creating such noise or to the owner, custodian or person in control or possession of the property from which such noise emanates or arises, for such person to suffer or allow such unnecessary and unreasonable noise to continue. At certain levels, noise can be detrimental to the health, safety, welfare, and quality of life of inhabitants of the county, and, in the public interest, such noise should be restricted. It is, therefore, the policy of the County to reduce, and eliminate where possible, excessive noise and related adverse conditions in the community, and to prohibit unnecessary, excessive, harmful, and annoying noises from all sources. B. This chapter shall be applicable from 9:00 p.m. to 6:00 a.m., inclusive, each day, noise emanating from property located within to the following zoning classifications districts as indicated on the Frederick County Zoning Map: RP Residential Performance District 2 Rev. 6/2018 R4 Residential Planned Community District R5 Residential Recreational Community District MH1 Mobile Home Community District C. No person shall be charged with a violation of this section unless that person has received verbal, electronic, or written notice from a law enforcement officer of Frederick County that he is violating or has violated the provisions of this chapter and has thereafter had the opportunity to abate the noise disturbance. § 118-2 Enforcement. [Ed. note: The amendment to this section was proposed at the Code & Ordinance Committee meeting] or his Enforcement of this chapter shall be by the Sheriff of Frederick County designee . § 118-3 Violations and penalties. [Ed. note: No change is proposed to this section] A violation of this chapter shall be punishable by a fine of not more than $100 for the first offense and a fine of not more than $1,000 for each subsequent offense. Each such occurrence shall constitute a separate offense. § 118-4 Specific prohibitions. The following acts are declared to be noise disturbances in violation of this chapter, provided that this list shall not be deemed to be an exclusive enumeration of those acts which may constitute noise disturbances and that an act not listed below may nevertheless constitute a violation of this chapter: A. Prohibited Noise Generally. Operating, playing or permitting the operation or playing of any radio, television, computer, recording, musical instrument, amplifier, or similar device, or yelling, shouting, whistling, or singing, or operating or permitting the operation of any mechanical equipment: 1.In such a manner as to be plainly audible across a residential real property boundary or through partitions common to two or more (2) dwelling units within a building; or 2.In such a manner as to be plainly audible at a distance of fifty (50) feet or more from the building in which it is located, provided that the sound is audible on another’s property; or 3.In such a manner as to be plainly audible at a distance of fifty (50) feet or more from its source, provided that the sound is audible on another’s property. 3 Rev. 6/2018 B. Schools, public buildings, places of worship, and hospitals. The creation of any noise on or near the grounds of any school, court, public building, place of worship, or hospital in a manner that is plainly audible within such school, court, public building, place of worship, or hospital, and which noise interferes with the operation of the institution. C.The term “plainly audible” shall mean any sound that can be heard clearly by a person using his or her unaided hearing faculties. When music is involved, the detection of rhythmic bass tones shall be sufficient to be considered plainly audible sound. § 118-5 Exceptions. This chapter shall have no application to any sound generated by any of the following: A. Sound which is necessary for the protection or preservation of property or the health, safety, life, or limb of any person. B. Public speaking and public assembly activities conducted on any public right-of-way or public property. C. Radios, sirens, horns, and bells on police, fire, or other emergency response vehicles. D. Parades, lawful fireworks displays, school-related activities, and other such public special events or public activities. E. Activities on or in municipal, county, state, United States, or school athletic facilities, or on or in publicly owned property and facilities. F. Fire alarms and burglar alarms, prior to the giving of notice and a reasonable opportunity for the owner or person in possession of the premises served by any such alarm to turn off the alarm. G. Religious services, religious events, or religious activities or expressions, including, but not limited to music, singing, bells, chimes, and organs which are a part of such service, event, activity, or expression. H. Locomotives and other railroad equipment, and aircraft. I. The striking of clocks. J. Military activities of the Commonwealth of Virginia or of the United States of America. K. Agricultural activities. L. Lawful discharge of firearms. M. Motor vehicles. N. Construction equipment. 4 Rev. 6/2018 Enacted this ___ day of ___, 2018. Charles S. DeHaven, Jr., Chairman ____ Gary A. Lofton ____ J. Douglas McCarthy ____ Robert W. Wells ____ Blaine P. Dunn ____ Shannon G. Trout ____ Judith McCann-Slaughter ____ A COPY ATTEST ________________________________ Kris C. Tierney Interim Frederick County Administrator 5 Rev. 6/2018 ORDINANCE ____ _, 2018 The Board of Supervisors of Frederick County, Virginia hereby ordains that Section 155-34 (Tax Imposed) of Article VIII (Tax on Purchasers of Utility Service) of Chapter 155 (Taxation) of the Code of Frederick County, Virginia be, and the same bold strikethrough hereby is, amended as follows (deletions are shown in and bold underline additions are shown in ): § 155-34 Tax Imposed A. Consumer taxes (1) Electric Utility Consumer Tax (a) Levy. In accordance with Virginia Code, § 58.1-3814, effective January 1, 2001, there is hereby imposed and levied a monthly tax on each purchase of electricity delivered to consumers by a service provider, classified as determined by such provider, as follows: 1. Residential Consumers a.Such tax shall be $0.22 plus the rate of $0.003 on each KWH delivered monthly to residential consumers by a service provider not to exceed $3 monthly. b.Nonmetered charges will carry a tax at the rate of 0.04 times the nonmetered charge per month not to exceed $3 per month. 2. Nonresidential Consumers a.Such tax on nonresidential consumers shall be $0.30 per month plus $0.0024 per kilowatt hour (KWH) on the first 700 KWH delivered per month then $0.0015928 on the balance. b.Nonmetered charges will carry a tax at the rate of 0.04 times the nonmetered charge per month. c.In the case of any apartment house or other gaselectric multiple-family dwelling using service through a master meter, the tax shall be equal to the sum of $3 multiplied by the number of dwelling units served. 3. The conversion of tax pursuant to this subsection to monthly KWH delivered shall not be effective before the first meter reading after December 31, 2000, prior to which time the tax previously imposed by this jurisdiction shall be in effect. (b) Exemptions. The following consumers of electricity are exempt from the tax imposed by this § 155-34A(1): the United States of America, s the commonwealth and the political subdivision thereof, including this jurisdiction. (c)Billing, collection and remittance of tax. The service provider shall bill the electricity consumer tax to all users who are subject to the tax and to whom it delivers electricity and shall report the same to the Commissioner of the Revenue for the County on a monthly basis on forms provided by the Commissioner. Such taxes shall be paid by the service provider to the Treasurer in accordance with Virginia Code, § 58.1-3814, Paragraphs F. and G., and Virginia Code, § 58.1-2901. If any consumer receives and pays for electricity but refuses to pay the tax imposed by this section, the service provider shall notify the Commissioner of the Revenue of this jurisdiction of the name and address of such consumer. If any consumer fails to pay a bill issued by a service provider, including the tax imposed by this section, the service provider must follow its normal collection procedures and, upon collection of the bill or any part thereof, must apportion the net amount collected between the charge for electric service and the tax and remit the tax portion to this jurisdiction. Any tax paid by the consumer to the service provider shall be deemed to be held in trust by such provider until remitted to this jurisdiction. Such remittance shall be done before the last day of the calendar month following the month the tax was received by the service provider. (d)Computation of bills not on monthly basis. Bills shall be considered as monthly bills for the purposes of this subsection if submitted 12 times per year of approximately one month each. Accordingly, the tax for a bimonthly bill (approximately 60 days) shall be determined as follows: 1. The KWH will be divided by 2; 2. A monthly tax will be calculated using the rates set forth above; 3. The tax determined by Subsection A(1)(d)(2) shall be multiplied by 2; 4. The tax in Subsection A(1)(d)(3) may not exceed twice the monthly maximum tax (2)Local Natural Gas Utility Consumer Tax. (a)In accordance with Virginia Code, § 58.1-3814, there is hereby imposed and levied a monthly tax on each purchase of natural gas delivered to consumers by pipeline distribution companies and gas utilities classified by "class of consumers" as such term is defined in Virginia Code, § 58.1-3814 J., as follows: 1. Residential consumers. Such tax on residential consumers of natural gas shall be 0.04 times any nonmetered charges plus the rate of $0.055 on each CCF, delivered monthly to residential consumers, not to exceed $3 per month. 2.Nonresidential consumers. Such tax on nonresidential consumers shall be at the rates per month shown for each CCF delivered by a pipeline distribution company or a gas utility for the classes as set forth below: a.Commercial, industrial, interrupted and transportation consumers. Such tax shall be 0.04 times any non-metered charges plus the rate of $0.04 on the first 1,000 CCF delivered monthly to commercial consumers plus $0.033 for the next 29,000 CCF, and $0.025 for all CCF over 30,000. b.In the case of any apartment house or other multiple-family dwelling using gas service through a master meter, the tax shall be equal to the sum of $3 multiplied by the number of dwelling units served. 3. The conversion of tax pursuant to this subsection to monthly CCF delivered shall not be effective before the first meter reading after December 31, 2000, prior to which time the tax previously imposed by this jurisdiction shall be in effect. (b) Exemptions: The following consumers of natural gas shall be exempt from the tax imposed by this § The following consumers of natural gas shall be exempt from the tax imposed by this § 155-34A(2): the United States of American, the commonwealth and the political subdivisions thereof, including this jurisdiction.: the United States of American, the commonwealth and the political subdivisions thereof, including this jurisdiction. (c) Billing collection and remittance of tax. The service provider shall bill the natural gas consumer tax to all users who are subject to the tax and to whom it delivers natural gas and shall report the same to the Commissioner of the Revenue for the County on forms provided by the Commissioner on a monthly basis. Such taxes shall be paid by the service provider to the Treasurer in accordance with Virginia Code, § 58.1-3814, Paragraphs F. and G., and Virginia Code, § 58.1-2901. If any consumer receives and pays for natural gas but refuses to pay the tax imposed by this section, the service provider shall notify the Commissioner of the Revenue of this jurisdiction of the name and address of such consumer. If any consumer fails to pay a bill issued by a service provider, including the tax imposed by this section, the service provider must follow its normal collection procedures, and upon collection of the bill or any party thereof, must apportion the net amount collected between the charge for natural gas and the tax and remit the tax portion to this jurisdiction. Any tax paid by the consumer to the service provider shall be deemed to be held in trust by such provider until remitted to this jurisdiction. Such remittance shall be done before the last day of the calendar month following the month the tax was received by the service provider. (d)Computation of bills not on monthly basis. Bills shall be considered as monthly bills for the purposes of this subsection if submitted 12 times per year of approximately one month each. Accordingly, the tax for a bimonthly bill (approximately 60 days) shall be determined as follows: 1.The CCF will be divided by 2; 2.A monthly tax will be calculated using the rates set forth above; 3.The tax determined by Subsection A(2)(d)(2) shall be multiplied by 2; 4. The Tax in Subsection A(2)(D)(3) may not exceed twice the monthly maximum tax. (3) Telephone Service Tax. There is hereby imposed and levied by the County upon each and every purchaser of local exchange telephone service a tax in the amount of 4% of the charge (exclusive of any federal or state tax thereon) made by the seller against the purchaser with respect to each line, which tax in every case shall be collected by the seller from the purchaser and shall be paid by the purchaser unto the seller for the use of the County at the time the purchase price or such charge shall become due and payable under the agreement between the purchaser and the seller. B.The tax hereby imposed and levied on purchases with respect to local exchange telephone service shall apply to all charges made for local exchange telephone service, except local messages which are paid for by inserting coins in coin- operated telephones. A cap on the telephone service tax in the amount of $450 is hereby established. Enacted this _____ day of _________, 2018. Charles S. DeHaven, Jr., Chairman ____ Gary A. Lofton ____ J. Douglas McCarthy ____ Robert W. Wells ____ Blaine P. Dunn ____ Shannon G. Trout ____ Judith McCann-Slaughter ____ A COPY ATTEST ________________________________ Kris C. Tierney Frederick County Administrator FINANCE COMMITTEE REPORT to the BOARD OF SUPERVISORS Wednesday, July 18, 2018 8:00 a.m. 107 NORTH KENT STREET, WINCHESTER, VIRGINIA A Finance Committee meeting was held in the First Floor Conferen Street on Wednesday, July 18, 2018 at 8:00 a.m. ATTENDEES: Committee Members Present: Judith McCann-Slaughter, Chairman, Charles DeHaven, Gary Lofton, and Jeffrey Boppe. Non-voting liaisons: William Orndoff, Treasurer, and Ellen Murphy, Commissioner of the Revenue. Committee Members Absent: Angela Rudolph Staff present: Cheryl Shiffler, Finance Director, Sharon Kibler, Assistant Fina Director, Kris Tierney, County Administrator, Jay Tibbs, Assista Rod Williams, County Attorney, Dennis Linaburg, Fire Chief, Keith Jenkins, Deputy Fire Chief, Renny Manual, WRA Director, and Lenny Millholland, Sherif ITEMS REQUIRING ACTION BY BOARD OF SUPERVISORS: Items 3, 5, 6, 7, 8, 9, 10, and 12 were approved under consent a () 1.The VJCCCA Director requests an FY18 General Fund budget transfer in the amount of $20,700 from a salary line item. This amount represents funds needed to and June services. See attached memo, p. 3. The committee recommends approval. 2.The Winchester Regional Airport Director requests an FY18 General Fund budget transfer in the amount of $21,924 from salaries and fringes. This amount represents funds needed to cover fuel deliveries. See attached memo, p. 4. The committee recommends approval. 3.The Planning Director requests an FY19 General Fund supplemental appropriation () in the amount of $59,066.50. This amount represents a carry forward of unspent budgeted FY18 funds for completion of the Capital Impact Study a attached memo, p. 5. 4.The Sheriff requests an FY18 General Fund supplemental appropriation in the amount of $13,700. This amount represents traffic control reimbursements. No local required. See attached memos, p. 6  11. The committee recommends approval. The committee also recommends forwarding the topic to the Public Saf discussion to determine the need for a policy. 5.The Sheriff requests an FY18 General Fund supplemental appropriation in the () amount of $4,713.36. This amount represents reimbursements from the Treasury Department. No local funds required. See attached memos, p. 12  13. 6.The Sheriff requests an FY18 General Fund supplemental appropriation in the () amount of $5,155.01. This amount represents travel reimbursements from the State. No local funds required. See attached memos, p. 14  17. 7.The Sheriff requests an FY19 General Fund supplemental appropriation in the () amount of $15,191.16. This amount represents a carry forward of unspent FY18 funds from auto insurance claims. See attached memo, p. 18. 8.The Parks & Recreation Director requests the funds received in F () Fund in the amount of $6,488.62 be reserved, subject to future a 1 balance will be reduced by the financial assistance provided dur of $1,270.50. No local funds required. See attached memo, p. 19  23. 9.The Parks & Recreation Director requests an FY19 General Fund supplemental () appropriation in the amount of $121,807. This amount represents a carry forward of unspent FY18 funds for Northwest Sherando Park project, Clearbrook Park parking lot, Frederick Heights trail and parking lot, and Abrams Creek trail. p. 24. 10.The Parks & Recreation Director requests an FY19 General Fund supplemental () appropriation in the amount of $531,589.70. This amount represents a carry forward of unspent FY18 funds for the Northwest Sherando Park project. p. 24. 11.An FY18 F&R Expense Recovery Fund (Fund 30) supplemental appropriat amount of $697,923.95 is requested. This amount represents $433,487.95 in FY18 revenue received over budgeted revenue, and $264,436 in fund bal prior years distributions. No local funds are required. The co approval. 12.The Fire & Rescue Chief requests an FY18 General Fund supplemental () appropriation in the amount of $13,915.40. This amount represents an auto claim reimbursement. No local funds required. See attached memo, p. 5  26. 13.The Fire & Rescue Chief requests approval to move forward with h additional training officers. Funds have been budgeted in FY19. See attac p. 27  29. The committee recommends approval. ITEMS FOR INFORMATION ONLY 1.The Finance Director provides a Fund 10 Transfer Report for June p. 30  32. 2.Fund balance information will be provided after the County closes FY1 3.The Lord Fairfax SWCD sends a letter of thanks for the FY 2019 c attached, p. 33  39. 4.The Government Finance Officers Association (GFOA) has awarded t Award for Outstanding Achievement for Outstanding Achievement in Popul Financial Reporting for the June 30, 2017 Popular Annual Financi is the 12th consecutive year that Frederick County has received attached, p. 40  41. 5.The Government Finance Officers Association (GFOA) has awarded t Award for Outstanding Achievement for Excellence in Financial Re 30, 2017 Comprehensive Annual Financial Report (CAFR). This is secutive year that Frederick County has received this achievement. See a2  44. Respectfully submitted, FINANCE COMMITTEE Judith McCann-Slaughter, Chairman Charles DeHaven Gary Lofton Jeffrey Boppe By ___________________________ Cheryl B. Shiffler, Finance Director 2 3 4 5 6 7 8 9 10 11 12 13 14 15 16 17 18 19 20 21 RECREATION RESERVE FUND 500.20 PURPOSE: The Recreation Reserve Fund within the Frederick County Reserve Frederick County residents who need financial assistance for the recreation programs and to assist Frederick County in raising fucapital projects identified in the Frederick County Comprehensive Plan. This fun funds which can be substituted for traditional tax base funding. GOAL: Increase Frederick County youth participation in recreation for recreation programs and provide recreation facilities identified Comprehensive Plan. POLICY: There are three types of funds within the Recreation Reserve Fun Fund, specific capital project funds, and a general park improve A. Recreation Assistance Fund: Funds dedicated for Recreation Assistance will be placed in the Frederick County's Reserve Fund as they are received. Each donation will be noted in a revenue code (10GL-3-010-018990-0027). Donations are non-refundable. These funds will be utilized for individuals seeking recreation level according to the Economic Assistance Policy (#500.08). E assistance, Parks and Recreation staff will apply the standards individual is eligible to receive assistance and funds are avail and accounted in the department's registration system. Staff will request the Commission to recommend receiving the discounted registration fees from the Re Recreation Assistance Fund at the July Parks and Recreation Comm will be forwarded to the Finance Committee for recommendation to the Board of for reimbursement. The Recreation Assistance Fund is known as t for People Lending Assistance to Youth. B. Capital Project Funds A capital project fund may be created for any capital project approved by the Frederi Parks and Recreation Commission and Frederick County Board of Su of the total project cost must be pledged prior to the establish for a specific capital project fund in a revenue code (10GL-3-01 The Frederick County Parks and Recreation Commission will recomm from the Recreation Reserve Fund within the Frederick County Resrederick County Finance Committee to recommend to the Frederick County Bo 22 Frederick County Board of Supervisors must approve the disbursem Reserve Fund money within the Frederick County Reserve Fund. C. General Park Improvement Fund The general park improvement fund is for donations made to impro Donations may be of any amount, deposited into revenue code (10G are non-refundable. The Parks and Recreation Commission will recommend the use of General Park Improve Funds to the Finance Committee and the Board of Supervisors spec improvement. Auditing/Accountability: All funds within the Recreation Reserve Fund will be accounted f Recreation Department based on the balance provide by the Freder Department and the Parks and Recreation Department. This balancill be reported to the Parks and Recreation Commission annually. Approved: May 2015 23 24 25 26 27 28 29 Page 1 of 3 JUNE 2018 BUDGET TRANSFERS DATEDEPARTMENT/GENERAL FUNDREASON FOR TRANSFERFROMTOACCTCODEAMOUNT 6/7/2018PLANNINGBZA ADVERTISING COVERAGE81013007000000 (300.00) ZONING BOARD 81043007000000 300.00 6/7/2018COUNTY OFFICE BUILDINGS/COURTHOUSEFUND SHORTAGE MAINTENANCE43045301000000 (650.00) COUNTY OFFICE BUILDINGS/COURTHOUSE 43043005000000 650.00 6/7/2018FIRE AND RESCUEPURCHASE OF MOBILE RADIO35055410000000 (7,541.68) FIRE AND RESCUE 35058003000000 7,541.68 6/8/2018INSPECTIONSTO COVER DEFICIT IN OFFICE SUPPLIES34014003000002 (1,000.00) INSPECTIONS 34015401000000 1,000.00 6/12/2018COMMISSIONER OF THE REVENUEACCOUNT CLERK -WORKSTATION & EQ12095204000000 (1,846.00) COMMISSIONER OF THE REVENUE12095401000000 1,846.00 COMMISSIONER OF THE REVENUE 12095506000000 (575.00) COMMISSIONER OF THE REVENUE 12095401000000 575.00 6/12/2018AGRICULTUREBUY SUPPLIES TO ENHANCE PROGRAM OFFICE OPERATIONS83015204000000 (170.25) AGRICULTURE83015401000000 170.25 AGRICULTURE 83015506000000 (867.63) AGRICULTURE 83015401000000 867.63 6/12/2018COUNTY OFFICE BUILDINGS/COURTHOUSECLIMATE CONTROLS COUNTY OFFICE BUILDING43048001000000 32,400.00 COUNTY OFFICE BUILDINGS/COURTHOUSECLIMATE CONTROLS PUBLIC SAFETY BUILDING43048001000005 37,940.00 TRANSFERS/CONTINGENCYCLIMATE CONTROLS-CAB AND PSB93015890000000 (70,340.00) 6/12/2018SHERIFFCOVER EXPENSE FOR MAY31025402000001 (152.76) SHERIFF31023010000000 152.76 6/12/2018SHERIFFCOVER EXPENSE FOR MAY BOOTS AND UNIFORM31025402000001 (1,535.49) SHERIFF 31025410000000 1,535.49 SHERIFF31025401000000 (2,000.00) SHERIFF 31025413000000 2,000.00 6/12/2018SHERIFFCOVER EXPENSE FOR MAY-PHYSICAL31025402000001 (230.00) SHERIFF31023001000000 230.00 6/12/2018SHERIFFCOVER EXPENSE FOR MAY REPAIR OF COMPUTER EQUIPMENT31025401000000 (2,176.58) SHERIFF 31023004000001 2,176.58 6/12/2018SHERIFFTRAVEL/TRAINING31025409000000 (6,000.00) SHERIFF31025506000000 6,000.00 6/12/208SHERIFFVEHICLE MAINTENANCE31025408000000 (12,148.96) SHERIFF31023004000002 12,148.96 6/12/2018FIRE AND RESCUEPURCHASE OF GEAR EXTRACTOR35055410000000 (16,664.00) FIRE AND RESCUE35058009000000 16,664.00 6/12/2018COMMISSIONER OF THE REVENUERE TRAVEL(EDUCATION)12093007000000 (492.25) REASSESSMENT/BOARD OF ASSESSORS12105506000000 492.25 6/12/2018COUNTY OFFICE BUILDINGSREMOTE TERMINAL UNIT #1 PUBLIC SERVICE BUILDING REPAIR43043010000005 (704.05) COUNTY OFFICE BUILDINGS43043004000006 704.05 6/12/2018MANAGEMENT INFORMATION SYSTEMSTO COVER TRAVEL EXPENSES12225401000000 (359.70) MANAGEMENT INFORMATION SYSTEMS12225506000000 359.70 6/12/2018REASSESSMENT/BOARD OF ASSESSORSVEHICLE MAINTENANCE12105305000000 (164.60) REASSESSMENT/BOARD OF ASSESSORS12103004000001 164.60 REASSESSMENT/BOARD OF ASSESSORS 12105411000000 (147.19) REASSESSMENT/BOARD OF ASSESSORS 12103004000002 147.19 6/14/2018COUNTY OFFICE BUILDINGS/COURTHOUSEFUNDS TO PAY FOR YEARLY FIRE PUMP TEST43045101000000 (469.26) COUNTY OFFICE BUILDINGS/COURTHOUSE43043005000000 469.26 6/14/2018REFUSE COLLECTIONPURCHASE PRINTED MATERIAL42035413000000 (500.00) REFUSE COLLECTION42035401000000 500.00 6/14/2018MANAGEMENT INFORMATION SYSTEMSTRAVEL EXPENSE12225401000000 (43.00) MANAGEMENT INFORMATION SYSTEMS12225506000000 43.00 6/14/2018OTHERTO COVER DEFICIT12245415000002 (331.00) OTHER12245604000072 331.00 6/14/2018BOARD OF SUPERVISORSTO COVER DEFICIT IN POSTAGE11015506000000 (600.00) BOARD OF SUPERVISORS11015204000000 600.00 6/14/2018INSPECTIONSNEW CODE AND FIRE BOOKS34014003000002 (125.00) INSPECTIONS34015411000000 125.00 6/15/2018FIRE AND RESCUEISIMULATE AED AND CARDIAC MONITOR TRAINING SYSTEM35055411000000 (10,000.00) FIRE AND RESCUE35058009000000 10,000.00 FIRE AND RESCUE35053007000000 (10,000.00) FIRE AND RESCUE 35058009000000 10,000.00 FIRE AND RESCUE35055410000000 (13,120.00) FIRE AND RESCUE35058009000000 13,120.00 30 Page 2 of 3 JUNE 2018 BUDGET TRANSFERS DATEDEPARTMENT/GENERAL FUNDREASON FOR TRANSFERFROMTOACCTCODEAMOUNT 6/15/2018FIRE AND RESCUEPURCHASE OF (2) THERMAL IMAGING CONTROLS35055605000002 (14,409.80) FIRE AND RESCUE35058009000000 14,409.80 6/19/2018REGISTRARASSISSTANT REGISTRAR COMMUNITY LEADERSHIP CLASS13025401000000 (750.00) REGISTRAR 13025506000000 750.00 6/19/2018FIRE AND RESCUEINSTALLATION OF EQUIPMENT FOR REPLACEMENT VEHICLE35053004000002 (4,215.00) FIRE AND RESCUE 35058005000000 4,215.00 6/19/2018GENERAL ENGINEERING/ADMINISTRATIONNEW FURNITURE CONFERENCE ROOM42013004000002 (1,300.00) GENERAL ENGINEERING/ADMINISTRATION42015401000000 1,300.00 6/19/2018GENERAL ENGINEERING/ADMINISTRATIONNEW EMPLOYEE TRAINING42013004000002 (400.00) GENERAL ENGINEERING/ADMINISTRATION 42015506000000 400.00 6/19/2018FIRE AND RESCUEPURCHASE OF EQUIPMENT FOR REPLACEMENT VEHICLE35055408000000 (6,015.18) FIRE AND RESCUE35058005000000 6,015.18 6/19/2018ANIMAL SHELTERSUPPLEMENT LINE ITGEM FOR REMAINDER OF FY1843055402000003 (1,500.00) ANIMAL SHELTER 43053004000000 1,500.00 6/25/2018INFORMATION TECHNOLOGYCONTRACTED SERVICES FOR ADVANCED THREAT PROTECTION12203002000000 (1,480.00) INFORMATION TECHNOLOGY12203010000000 1,480.00 6/25/2018ANIMAL SHELTERCOVER EQUIPMENT COST REPAIR43053002000000 (900.00) ANIMAL SHELTER43053004000000 900.00 6/25/2018INFORMATION TECHNOLOGYDELL MAINTENANCE12203005000000 5,000.00 MANAGEMENT INFORMATION SYSTEMS12229001000000 (5,000.00) 6/25/2018FIRE AND RESCUEEQUIPMENT FOR REPLACEMENT VEHICLE35055408000000 (4,662.61) FIRE AND RESCUE 35058005000000 4,662.61 6/25/2018FIRE AND RESCUEINSTALLATION OF EQUIPMENT35053004000002 (4,000.00) FIRE AND RESCUE 35058005000000 4,000.00 6/25/2018COUNTY OFFICE BUILDINGS/COURTHOUSEINSUFFICIENT FUNDS PHONE BILL MILLWOOD 43045413000021 (130.27) COUNTY OFFICE BUILDINGS/COURTHOUSE 43045204000021 130.27 6/25/2018COUNTY OFFICE BUILDINGS/COURTHOUSEJANITORIAL SUPPLIES CAB43045401000000 (586.40) COUNTY OFFICE BUILDINGS/COURTHOUSE 43045405000000 586.40 COUNTY OFFICE BUILDINGS/COURTHOUSE 43045101000005 (1,100.78) COUNTY OFFICE BUILDINGS/COURTHOUSE 43045405000000 1,100.78 6/25/2018COUNTY OFFICES BUILDINGS/COURTHOUSENEW VACUUM CLEANERS CAB43045415000000 (58.42) COUNTY OFFICES BUILDINGS/COURTHOUSE43045407000000 58.42 6/25/2018COUNTY OFFICE BUILDINGS/COURTHOUSEPHONE LINE FOR DDC CONTROL CH/CAB43045401000000 (275.00) COUNTY OFFICE BUILDINGS/COURTHOUSE43045204000000 275.00 6/25/2018ANIMAL SHELTERSUPPLEMENT LINE ITEM FOR REMAINDER OF FY1843055101000000 (1,000.00) ANIMAL SHELTER43053004000000 1,000.00 ANIMAL SHELTER43053002000000 (1,000.00) ANIMAL SHELTER 43053004000000 1,000.00 6/25/2018REFUSE COLLECTIONTESTING STEPHENSON JOB42038900000000 (2,700.00) REFUSE COLLECTION42033002000000 2,700.00 6/25/2018CLEARBROOK PARKTO COVER END OF YEAR EXPENDITURES71095413000000 (584.00) CLEARBROOK PARK71098900000000 584.00 SHERANDO PARK71105101000000 (21. 00) SHERANDO PARK71105103000000 21.00 SHERANDO PARK71105405000000 (1,364.00) SHERANDO PARK71105407000000 1,364.00 6/25/2018SHERIFFTO COVER TRAVEL EXPENSES31023005000000 (1,000.00) SHERIFF31025506000000 1,000.00 6/25/2018SHERIFFPAY FOR THE UNCLAIMED PROPERTY NWVARDRF31023005000000 (900.00) SHERIFF31025413000000 900.00 6/26/2018COMMISSIONER OF THE REVENUEASSESSOR SCHOOL TRAVEL12095506000000 (159.00) REASSESSMENT/BOARD OF ASSESSORS12105506000000 159.00 6/26/2018TREASURERDMV STOP BILL12133002000000 (12,500.00) TREASURER12133002000002 12,500.00 6/26/2018COUNTY OFFICE BUILDINGS/COURTHOUSEEAST GATE CAMERA PSB43045408000005 (531.25) COUNTY OFFICE BUILDINGS/COURTHOUSE43043004000006 531.25 6/26/2018COUNTY OFFICE BUILDINGS/COURTHOUSEFABRICATE/INSTALL TRIM ON SMART BOARD PSB43043010000005 (570.00) COUNTY OFFICE BUILDINGS/COURTHOUSE43043004000006 570.00 6/26/2018COMMONWEALTH'S ATTORNEYFUND POSTAGE22015411000000 (450.00) COMMONWEALTH'S ATTORNEY22015204000000 450.00 6/26/2018PARKS AND RECREATION ADMINISTRATIONTRANSFER FUNDS TO COVER PAYOUT & CORRECTION71011001000004 9,824.32 PARKS AND RECREATION ADMINISTRATION 71011001000002 3,815.80 RECREATION CENTERS AND PLAYGROUNDS71041003000000 (24,527.46) PARKS AND RECREATION ADMINISTRATION71011001000036 10,887.34 31 Page 3 of 3 JUNE 2018 BUDGET TRANSFERS DATEDEPARTMENT/GENERAL FUNDREASON FOR TRANSFERFROMTOACCTCODEAMOUNT 6/28/2018HUMAN RESOURCESADDITIONAL COPIER CHARGES12033002000000 (575.00) HUMAN RESOURCES12039001000000 575.00 6/28/2018HUMAN RESOURCESCOMPUTERS/OFFICE SUPPLIES12035413000000 (3,000.00) HUMAN RESOURCES12035401000000 3,000.00 6/28/2018HUMAN RESOURCESCOPIER REPAIR12033002000000 (135.00) HUMAN RESOURCES12033004000001 135.00 6/28/2018AGRICULTUREFUNDS TO COVER PROGRAM SUPPLIES83015506000000 (18.68) AGRICULTURE83015401000000 18.68 6/28/2018HUMAN RESOURCESTO COVER COMPUTER EXPENSE12033002000000 (5,000.00) HUMAN RESOURCES12035401000000 5,000.00 6/28/2018INFORMATION TECHNOLOGYTO COVER DELL PC REPLACEMENT12205401000000 14,000.00 INFORMATION TECHNOLOGY12205401000000 8,000.00 INFORMATION TECHNOLOGY12203002000000 (1,408.06) INFORMATION TECHNOLOGY12205401000000 1,408.06 INFORMATION TECHNOLOGY12203005000000 (1,247.99) INFORMATION TECHNOLOGY12205401000000 1,247.99 INFORMATION TECHNOLOGY12203010000000 (921.42) INFORMATION TECHNOLOGY12205401000000 921.42 MANAGEMENT INFORMATION SYSTEMS12223002000000 (14,000.00) MANAGEMENT INFORMATION SYSTEMS12229001000000 (8,000.00) 6/28/2018INFORMATION TECHNOLOGYTO COVER RENEWAL FOR BACKUP BATTERY IN EQUIPMENT ROOM12203005000000 3,000.00 INFORMATION TECHNOLOGY12223004000001 (3,000.00) 6/28/2018HUMAN RESOURCESYOS GIFTS12033002000000 (650.00) HUMAN RESOURCES 12035415000000 650.00 6/29/2018INFORMATION TECHNOLOGYDELL PC REFRESH12205401000000 (25,370.38) INFORMATION TECHNOLOGY12205401000004 25,370.38 6/29/2018HUMAN RESOURCESMEMBERSHIPS/BOOKS12035506000000 (1,000.00) HUMAN RESOURCES12035411000000 1,000.00 6/29/2018COMMONWEALTH'S ATTORNEYPAYROLL PROMOTIONS 6/1822011003000000 (2,000.00) COMMONWEALTH'S ATTORNEY22011001000049 2,000.00 FIRE AND RESCUE35051003000003 (715.00) FIRE AND RESCUE35051001000036 715.00 FIRE AND RESCUE35051007000001 (270.00) FIRE AND RESCUE35051001000076 270.00 7/2/2018INFORMATION TECHNOLOGYCOVER COMCAST BILL FOR JUNE12205204000000 (225.00) INFORMATION TECHNOLOGY12205299000000 225.00 7/9/2018INFORMATION TECHNOLOGYCOVER VERIZON WIRELESS12205204000000 800.00 MANAGEMENT INFORMATION SYSTEMS12205401000000 (800.00) 7/9/2018COUNTY OFFICE BUILDINGS/COURTHOUSEELECTRIC AT FREDERICK COUNTY MIDDLE SCHOOL43045101000000 (605.36) COUNTY OFFICE BUILDINGS/COURTHOUSE43045101000010 605.36 7/10/2018SHERIFFEXPENSE FOR JUNE 201831025401000000 (425.95) SHERIFF31023004000001 425.95 SHERIFF31025506000001 (574.20) SHERIFF31023010000000 574.20 SHERIFF31025409000000 (1,716.26) SHERIFF31025204000000 1,716.26 SHERIFF31025401000000 (64.58) SHERIFF31025409000002 64.58 SHERIFF31025409000000 (3,133.73) SHERIFF31025410000000 3,133.73 SHERIFF31025409000000 (3,068.73) SHERIFF31025506000000 3,068.73 7/10/2018SHERIFFEXPENSES FOR JUNE FY18 DR. HILL31025401000000 (800.00) SHERIFF31023001000000 800.00 7/10/2018SHERIFFUNIFORMS BOOTS FOR JUNE FY1831025402000001 (2,582.11) SHERIFF31025410000000 2,582.11 7/10/2018SHERIFFVEHICLE MAINTENANCE31025408000000 (12,662.75) SHERIFF31023004000002 12,662.75 7/10/2018BOARD OF SUPERVISORSTO COVER DEFICIT IN BOOKS AND SUBSCRIPTIONS11013006000000 (578.00) BOARD OF SUPERVISORS11015411000000 578.00 32 33 34 35 36 37 38 39 40 41 42 43 44 REPORT to the BOARD OF SUPERVISORS Tuesday, June 12, 2018 7:00 p.m. 107 NORTH KENT STREET, WINCHESTER, VIRGINIA REPORT to the BOARD OF SUPERVISORS Tuesday, July 10, 2018 7:00 p.m. 107 NORTH KENT STREET, WINCHESTER, VIRGINIA The consensus of the Public Safety Committee was to refer this r Committee with a recommendation of approval for an appropriation purchase of an armored tactical vehicle for the Sheriff’s Depart Frederick CountyPage 89Committee Book TRANSPORTATION COMMITTEE REPORT to the BOARD OF SUPERVISORS Monday, June 25, 2018 8:30 a.m. 107 NORTH KENT STREET, WINCHESTER, VIRGINIA ATTENDEES: Committee Members Present: Gary Lofton Chairman (Voting), Judith McCann- Slaughter (Voting), Gary Oates (Liaison PC/Voting-left early), Barry Schnoor (Voting-left early), James Racey (Voting), and Lewis Boyer (Liaison Stephens City). Committee Members Absent: Mark Davis (Liaison Middletown) Staff present: Planning and Development Director Mike Ruddy, Assistant Director - Transportation John Bishop, Sherriff Lenny Millholland, Traffic Division Commander Lt. Warren Gosnell, and Kathy Smith, Secretary ITEMS REQUIRING ACTION BY BOARD OF SUPERVISORS: 1-SmartScale Project Support Resolution (Attached): Staff presented a resolution in support of all Regional SmartScale applications that are in Frederick County to the Committee. Upon motions by Ms. Judith McCann-Slaughter, seconded by Mr. James Racey the Committee recommended that Staff forward the Resolution of Suppo Board of Supervisors for Frederick County and Regional SmartScal of Supervisors for recommendation of approval. The motion was unanimously approved. 2-Intersection of Route 50 and Independence Agreements (Attached): Staff presented to the Committee the updated language drafts of the Transportation Partnership Opportunity Fund Agreement and Backstop Agreement. Upon motions by Ms. Judith McCann-Slaughter, seconded by Mr. James Racey the Committee recommended that Staff forward the updated Transportation Partnership Opportunity Fund Agreement and Backstop Agreement to the Board of Supervisors for recommendation of approval. The motion was unanimously approved. 3-Interstate 81 Corridor Study (Resolution Attached): The corridor study is under the direction of the SB 971 for Interstate 81. The June 12, 2018 pub School was well attended. This was just one (1) public meeting with VDOT. Staff will be making recommendations on formal comments for Frederick County. ITEMS FOR INFORMATION ONLY 1-Safety Overview: Lt. Warren Gosnell, Traffic Division Commander with the Frederic ) software to the C related information. It addresses the highway safety concerns w ies. 2-County Projects Updates: Tevis Street Extension/Airport Road/I-81 Bridge: The right-of-way plats are nearly completed while VDOT completes the review of the 100% design. Once the right-of-way plats are complete, the County Attorney will be preparing deeds of dedication. VDOT comments are expected to be back by the end of June. The County, VDOT, and DHR have signed the Memorandum of Agreement for Historical Resources which will govern the installation of two interpretive signs along the corridor; we are just waiting for the signature from Shenandoah Valley Battlefield Foundation. -2- Renaissance Drive: The Geotech report has been received and a design kickoff meetin being planned at the Staunton District Offices for mid-July. The State Environmental Review Process is also underway. Staff has received the fully executed agreement from CSX for review of the bridge designs. Coverstone Drive: No activity currently. Jubal Early Drive Extension and Interchange with Route 37: No activity currently. 3-Upcoming Agenda Items: July: Route 11 South Stars-MPO, Transportation Forum TBD: Oakdale Crossing Traffic Calming Study In the County of Frederick By resolution of the governing body adopted July 25, 2018 The following VDOT Form AM-4.3 is hereby attached and incorporat changes in the secondary system of state highways. A Copy TesteeSigned (County Official): ______________________________________ Report of Changes in the Secondary System of State Highways Project/Subdivision Whitehall Commerce Center Type Change to the Secondary System of State Highways: Addition The following additions to the Secondary System of State Highways, pursuant to the statutory provision or provisions cited, are hereby requested; the right of way for which, including additional easements for cuts, fills and drainage, as required, is hereby guaranteed: Reason for Change: New subdivision street Pursuant to Code of Virginia Statute:§33.2-705 Street Name and/or Route Number Business Boulevard, State Route Number 720 Old Route Number: 0 From: 0.09 mile west of Route 11, Martinsburg Pike To: Intersection with Route 669, Woodbine Road, a distance of: 0.30 miles. Recordation Reference: N/A Right of Way width (feet) = 80' Street Name and/or Route Number Business Boulevard, State Route Number 720 Old Route Number: 0 From: Route 11, Martinsburg Pike To: 0.09 mile west of Route 11, Martinsburg Pike, a distance of: 0.09 miles. Recordation Reference: N/A Right of Way width (feet) = 91' VDOT Form AM-4.3 (4/20/2007) Maintenance Division Date of Resolution: July 25, 2018 Page 1 of 1 TO: Board of Supervisors FROM: Jay E. Tibbs, Deputy County Administrator SUBJECT: Northwestern Community Services Performance Contract DATE: July 18, 2018 Northwestern Community Services is responsible for assuring, bas of publicly funded community-based behavioral health care services within the counties of Clarke, Frederick, Page, Shenandoah, and Warren and the City of Winchest Community Services is required to enter into a performance contr Behavioral Health and Development Services. A stipulation of th Northwestern Community Services submit this contract to the loca for approval. This approval does not create any additional burd There is not budgetary impact to the locality as the contract is between Northwe and the Virginia Department of Behavioral Health and Development is not a party to the contract. In fact, a local governments aroval of the contract is signified by its approval of the community services boards budget request for lo Frederick County is being asked to approve the Northwestern Comm Given that the Board has previously approved the community services boards budgetary requ approval of this performance contract is a formality. Staff is seeking Board approval of the performance contract for Northwestern Community Services. Attachment COUNTY of FREDERICK Jay E. Tibbs Deputy County Administrator 540/665-5666 Fax 540/667-0370 E-mail: jtibbs@fcva.us M E M O R A N D U M TO: Board of Supervisors FROM: Jay E. Tibbs, Deputy County Administrator SUBJECT: Resolution Commenting on CoLG Report on Annexation Alternatives DATE: July 19, 2018 identified in the Commission background, during the 2016 regular session of the General Assem county immunity from annexation, and the granting of new city chs was extended until 2024. In addition, the Commission on Local Government was directed to study and provideAssembly on the following: 1.Evaluate the structure of cities and counties in the Commonwealt 2.Evaluate the impact of annexation upon localities; 3.Consider alternatives to the current moratorium on annexation by 4.Consult with and seek input from the Virginia Municipal League, localities directly affected by moratorium. A copy of the full draft report is attached for your reference and in Staff has prepared the attached resolution supporting certain co - Support for making the annexation moratoria permanent; - Granting additional powers to counties through reversion and other interlocal ag include, but not be limited to, granting/relaxing taxing and deb reversion and granting/relaxing taxing and debt powers/limits tounties that participate in economic growth-sharing agreements; - incentivizing additional regional cooperation and regional progr levels to Planning District Commissions and evaluation of other entify opportunities for more regional focus; and - modifying consolidation statutes to remove obstacles including removing or altering the required voter referendum for local consolidation. The Commission on Local Government will hold a hearing in Staunton on September 4, 2018 at which the Commission will be accepting comments on the proposed draft report. If the Board endorses the attached resolution, staff will forward it to the Commission. Attachment RESOLUTION SUPPORTING CONCEPTS FROM THE COMMISSION ON LOCAL GOVERNMENT DRAFT REPORT ON ANNEXATION ALTERNATIVES WHEREAS , the structure of Virginia local government originated from a n service needs of citizens at a more geographical proximate level; and WHEREAS , counties were established as the general form of local governm to provide a standard level of service; and WHEREAS , cities and towns originated to provide urban types of services water and sewer infrastructure, in addition to other mandated services; and WHEREAS , cities in Virginia are independent, which means they do not share insome services or tax bases with counties, in the same manner as towns, this febeing unique to Virginia; and WHEREAS , annexation has been historically used toallow cities and towns to extend the delivery of service and for future economic development, which allowed cities and towns grow theirtax base; and WHEREAS , annexations have caused disputes and other disagreements which costly and lengthy legal battles and created a general sprit of of Virginia’s cities and counties; and WHEREAS , the General Assembly, during its 2016 regular session, extendethe existing moratoria for city annexation, county immunity from city annexat city charters until 2024 and directed the Commission on Local Go a report to the General Assembly by 2018 on the following: 1.Evaluate the structure of cities and counties in the Commonwealth; 2.Evaluate the impact of annexation upon localities; 3.Consider alternatives to the current moratorium; and 4.Consult with and seek input from the Virginia Municipal League Association of Counties and localities directly affected by the moratori; and WHEREAS , the Commission on Local Government prepared a draft report reg annexation alternatives dated June 2018; and WHEREAS , the Commission believes that granting cities the ability to annex in the future to be a very low probability and an ineffective solution. NOW, THEREFORE, BE IT RESOLVED , that the Board of Supervisors of the County of Frederick, Virginia, supports making the annexation moratoria pe BE IT FURTHER RESOLVED , that this Board supports the concept of granting additional powers to counties through reversion and other interlocal agreem not be limited to, granting/relaxing taxing and debt power/limit by reversion and granting/relaxing taxing and debt powers/limits to counties growth-sharing agreements; and BE IT FURTHER RESOLVED , that this Board supports the concept of incentivizing additional regional cooperation and regional programs through re levels to Planning District Commissions and evaluation of other opportunities for more regional focus; and BE IT FURTHER RESOLVED , that this Board supports the concept of modifying consolidation statutes to remove obstacles to include removing o referendum for local consolidation. ADOPTED this ______ day of July, 2018. VOTE: Charles S. DeHaven, Jr. _____ Judith McCann-Slaughter _____ Gary A.Lofton_____Shannon G. Trout _____ Blaine P. Dunn _____Robert W. Wells _____ J.Douglas McCarthy_____ ____________________________________ Kris C. Tierney, Clerk Frederick County Board of Supervisors REPORTON ANNEXATIONALTERNATIVES CommissiononLocalGovernment CommissionCommission Commonwealthof Virginia June2018 Acknowledgements TheCommissiononLocalGovernmentwouldliketothanktheGeneralAssemblyfortheopportunity toexaminethismatter,especiallygiventhetimethathaselapsedsinceenactmentofthemoratoria.In ordertoconductathoroughstudyandreachourrecommendations,theCommissionrequestedand benefitedfromtheassistanceofatalentedandcollegialgroupofpeopleandorganizations.Therefore, theCommissionwouldliketoformallyrecognizeandthankthefollowingpeopleandorganizationsfor theircontributionstothiseffort: Mr.DavidBlount,ThomasJeffersonPlanningDistrictCommission Mr.C.RichardCranwell,CranwellandMoore,PLC Moore,Moore, Mr.CarterGlass,IV,TroutmanSanders SandersSanders Ms.MichelleGowdy,VirginiaMunicipalLeague cipalcipal LeagueLeague MuniMuni Ms.KellyHarrisBraxton,VirginiaFirstCities VirginiaVirginiaFirstCities Mr.KurtHodgen,formerCityManager,Harrisonburg HarrisonburgHarrisonburg CityCityManager,Manager, Mr.StephenKing,CountyAdministrator,Rockingham Administrator,Administrator, Rockingham County County Mr.JoeLerch,VirginiaAssociationofCounties ofof VirginiaVirginiaAssociationAssociationCounties Counties Dr.JohnMoeser,UniversityofRichmond ofof UniversityUniversityRichmondRichmond Moeser, Moeser, Mr.KimballPayne,formerCityManager,Lynchburg;formerCountyAdministrator,Spotsylvania Lynchburg;Lynchburg;former Manager,Manager, Mr.JimRegimbal,FiscalAnalytics,Ltd. Regimbal,Regimbal,FiscalFiscal Jim Mr.Mr. Jim Mr.JeffSharp,VirginiaDepartmentofLegislativeServices JeffSharp,Sharp, VirginiaVirginia Department Jeff Mr.BrianThrower,CityManager,Emporia Thrower,Thrower, BrianBrian Mr. Mr.DavidWhittington,CountyAdministrator,Greensville DavidWhittington,Whittington, Mr.Mr. David TheCentralShenandoahPlanningDistrictCommission TheTheCentralCentralShenandoahShenandoah TheThomasJeffersonPlanningDistrictCommission ThomasThomas TheVirginiaHousingDevelopmentAuthority StaffattheVirginiaDepartmentofHousingandCommunityDevelopment 2 TableofContents Acknowledgements................................................................2 ExecutiveSummary................................................................4 ScopeofReview................................................................7 VirginiaLocalGovernmentHistory................................................................8 ColonialDaysandEstablishmentofLocalGovernment................................................................8 LocalResponsibilities,IndependentCities,andAnnexation................................................................9 UrbanizationofCountiesandAnnexationDisputes................................................................10 EffortstoAddressLocalStructuresandAnnexationIssues................................................................11 ................................................................................................................................ Context:VirginiaLocalGovernmentintheModernDay................................................................12 ................................................................................................................................ PopulationGrowth................................................................13 ................................................................................................................................ LocalGovernmentFiscalStress..........................................................14 Stress..........................................................Stress.......................................................... RegionalMatters................................................................18 ................................................................................................................................ AlternativestotheMoratoria:Preamble................................................................20 ................................................................................................................................ StructuralConsiderations................................................................21 ................................................................................................................................ FiscalConsiderations................................................................25 ................................................................................................................................ APPENDICES................................................................29 ................................................................................................................................ AppendixA:StudyDirective................................................................30 Directive ................................................................................................................................ AppendixB:InitialPublicComments................................................................33 PublicPublic CommentsComments ................................................................................................................................ AppendixC:PublicCommentsonDraftReport................................................................40 DraftDraft CommentsComments Report on AppendixD:VirginiaLocalGovernmentBoundaryMapsTimeSeries...................................................42 LocalLocal GovernmentGovernment AppendixE:PovertybyCityandCounty:1960‘2015................................................................52 andand AppendixF:LocalTaxingandSelectedFunctionalAuthoritySummary.................................................60 AppendixG:AnalysisofStateandLocalCostofMandatedServices.....................................................69 AppendixH:AnnexationImmunityAnalysis................................................................78 3 ExecutiveSummary Duringthe2016regularsessionoftheGeneralAssembly,theexistingmoratoriaforcityannexation, countyimmunityfromcityannexation,andthegrantingofnewcitycharterswasextendeduntil2024 (AppendixA).Additionally,theCommissiononLocalGovernment(CLG)wasdirectedtostudyand provideareporttotheGeneralAssemblybyDec.1,2018,onthefollowing: 1.EvaluatethestructureofcitiesandcountiesintheCommonwealth; 2.Evaluatetheimpactofannexationuponlocalities; 3.Consideralternativestothecurrentmoratoriumonannexationbycities;and 4.ConsultwithandseekinputfromtheVirginiaMunicipalLeague,VirginiaAssociationofCounties andlocali tiesdirectlyaffectedbymoratorium. Pursuantto§15.22900oftheCodeofVirginia,theCLGwasestablishedasaway{·šcreatea establishedestablished waswas procedurewherebytheCommonwealthwillhelpensurethatallofitslocalitiesaremaintainedasviable ofof localitieslocalities itsits allall are communitiesinwhichtheircitizenscanŒzÝ;u|Complementarytothatchargeandforpurposesofthis ComplementaryComplementarythatchargechargeand to study,theCLGestablishedaguidingprincipleforitsevaluationandconsiderationofalternatives.The and evaluationevaluationconsiderationconsideration CLGbelievesthathealthy,viablelocalgovernmentsarecriticaltothewellbeingoftheCommonwealth criticalcriticalthethewellbeing toto areare andthataharmoniousandsuccessfulrelationshipbetweenandamongtheCommonwealthandits betweenbetweenand relationship among localitiesensuresgreaterhealth,welfare,andprosperityforallofthe/š’’š“Þ;Œ·wx­citizensand forforallallofthe prosperityprosperity and businesses. z©mz“zx­localgovernmentstructureoriginatedfromaneedtomeetcertainserviceneedsof originatedoriginatedfrom structurestructure citizensatamoregeographicallyproximatelevel.Countieswereestablishedasthegeneralformoflocal level.level. proximateproximateCountiesCounties governmentwiththemandatetoprovideastandardlevelofservice,whilecitiesandtownsoriginated d standardstandard proviprovi to d eeaa mandate toprovideurbantypesofservices,suchaspoliceandwaterandsewerinfrastructure,inadditionto suchsuchpolice services,services, as as otherstandardmandatedservices.Whiletownswereestablishedascomponentunitsofcounties, WhileWhile mandatedmandated services.services. towns towns therebysharingsomeservicesandtaxbaseswithcounties,allofz©mz“zx­citiesareindependent,which andbasesbases servicesservices taxtax meanstheydonot‘bydefault‘sharethesematterswithcounties.ThisfeaturedistinguishesVirginia defaultdefault shareshare ‘ fromeveryotherstateinthenation. nation.nation. Becauseoftheirindependentstatus,cityannexationremovessucharea‘includingthetaxbase‘ fromtheaffectedcountyforever.Hisivedasreasonableand torically,annexationwasusuallyperce uncontested.Citiesandtownsannexedtoencapsulateareasofextendedorplannedservicedelivery, especiallyurbanservices,andforfutureeconomicdevelopment.Itallowedthecityortowntogrowits taxbaseandconnectcommunitiesofinterest.Morerecentcircumstances,suchasurbanizationof countiesandracerelations,madeannexationchallengingandcreatedacontentiousenvironment.Some countiesandtownsconsolidatedtoformnewcitiestopreventfutureannexation,whileothereligible urbanizedcountiesdeclaredthemselvesstatutorilyimmunefromcityannexationandtheestablishment ofnewindependentcities.Meanwhile,othercitiesaggressivelypursuedfinalannexationefforts. Overall,theseannexationdisputesandotherdisagreementsresultedincostlyandlengthylegalbattles andcreatedageneralspiritofdistrustandhostilitybetweenmanyofz©mz“zx­citiesandcounties. 4 InanefforttoaddressthecontroversialcircumstancessurroundingcityannexationinVirginia,the Commonwealthcommissionedanumberofstudiesonthisandotherrelatedmatters.Ontwosuch occasions(1971and1987),temporarymoratoriaonannexationwereenactedwhilethestudieswere underway.Whilesomerecommendationswereimplementedwithvaryingdegreesofsuccess,others wereleftunaddressed,andthefinaltemporarymoratoriaenactedin1987remainineffecttoday. Furthermore,despiteincludingacompromisethatwouldliftthemoratoriaifcertainfundswerenot appropriatedbasedonastatutoryformula,exceptionstothisrequirementfor12biennialcycles (includingthreefuturebiennia)havebeenenacted.Moreover,themoratoriahaveremainedforsolong thatmanyleaderspresentduringenactmentofthe1987moratoriaarenolongerservinginthesame capacity.Ofthecurrent140sittingelectedDelegatesandSenatorsintheVirginiaGeneralAssembly, onlythreewereinofficeatthetime. Consequently,withafewexceptions,Virginiacitiesandcountieshaveremainedinthesame tiesties geographicformforover30years.Conversely,nearly50townandcountyannexationrelatedmatters countycounty andand havecontinuedtooccur,likely‘inpart‘duetothemoreharmonious,overlappingnatureoftownand harmonious,harmonious,overlapping overlapping countystructuresinthotherissueshavesurfacedorgrownin eCommonwealth.Meanwhile, otherotherhavesurfaced issuesissues have significanceandpresentnewchallengestotheCommonwealthanditslocalgovernments.Oneissueof andlocallocal CommonwealthCommonwealth its governments.governments. growingimportanceislocalgovernmentfiscalstress,whichisprimarilyconcentratedincitiesandthe whichwhichprimarilyprimarilyconcentrated is stress, is moreruralregionsoftheCommonwealth.Onereasonthesecommunitiescommunitiesarestressedis thesethese communitiescommunities reason becausetheirrelativelysmaller‘andoftentimespoorer‘revenuebasesmakeitmoredifficulttoafford oftentimesoftentimesbases poorerpoorerrevenuerevenue ‘ variouslocalservicedemands‘manyofwhicharemandatedatthestateandfederallevel. mandatedmandated whichthethe at areare Furthermore,inmanyrespects,theeconomy,populationgrowthanddevelopment,service thethe population economy,economy, respects,respects, demands,andotherissuesthatinfluencefiscalstresshaveoutgrownthefootprintusuallyexclusiveto influenceinfluencefiscalfiscalhave stressstress have individuallocalities.Instead,theCommonwealthfacesagrowinglandscapeofregionalissues,suchas CommonwealthCommonwealth thefacesfaces theopioidepidemic,unevenjobgrowth,andsuburbanpoverty.Whileopportunitiesforregional jobgrowth,growth,andsuburban job unevenuneven cooperationexistandhavebeenimplemented,anumberofobstacleshavepreventedadditional beenbeen havehaveimplemented,implemented, regionalsuccessesfromoccurring.Comparingmeasuresoffiscalstresswithotherindicatorssuggests fromfrom occurri ComparingComparing occurri ng. thatadditionaleffortstoassistwithorincentivizeinterlocalcooperation,localtransitions,and withwith assist toto assist operationalefficienciesinadditiontomoredirectfinancialactionsatthestatelevelmaybenecessary additionaddition toto andthatsucheffortscouldproducestateand/orlocalcostssavings. produceproduce TheCommission,throughresearchandconsultationwithavarietyofstakeholders,identifieda varietyofconsiderationsthatcouldhelpaddressthesematters.Whilesomearenotdirectlyrelatedto annexationandcoversignificanttopicsthatmaywarrantadditionalreview,theCommissionthought thesematterswereimportanttoraiseandperhapscouldaddressissuesindirectlyrelatedtothe moratoria.Withtheiraforementionedguidingprincipleinmind,theCommissionbelievesthese considerationswillhelpensurethatallofthe/š’’š“Þ;Œ·wx­localitiesareviableplacesinwhichtheir citizenscanliveandthatmanyofthehardshipsoffiscalstress,concentratedpoverty,andothers identifiedinthisreportcanbealleviated. Mostimportantly,giventhehistoricvolatilityofcityannexationrelativetoindependentcity structureintheCommonwealth,theCommissionconsidersgrantingcitiestheabilitytoannexinthe 5 futuretobeaverylowprobabilityandanineffectivesolution.Itseemsreasonablethatifthemoratoria werelifted,manycountieseligibleforfullorpartialannexationimmunitywouldpursuesuchactionand endannexationforsomecitiesforever.Meanwhile,thefewremainingcitieswouldlikelypursue annexation,whichwouldbefiercelyopposedandlitigated.Furthermore,manyofthesecitiesare locatedinareaswherefiscalstressisregional,soannexationwouldnotlikelysolvefiscalmatters. Similarly,manytownsthatcouldpursuetransitiontoindependentcitystatuswouldprobablyfacethe sameoppositionandpotentiallythreatenthefiscalviabilityofmanycounties.Consequently,these scenarioswouldleadtoasignificantdisruptioninthelivesandoperationsofmanyofthe /š’’š“Þ;Œ·wx­citizensandbusinesses,respectively,andruncountertofosteringpositive intergovernmentalrelationsintheCommonwealth.Forthesereasons,theCommissionsuggeststhat theCommonwealthconsidermakingthemoratoria,especiallyrelativetoindependentcitystructure, permanent. Notwithstandingthatassertion,theCommissionbelievesthatotherstructuralandfiscalmatters otherother structural thatthat couldbeconsideredandimplementedthatwouldachievemoresuccessandbetterpromoteandsustain and better successsuccess moremore theviabilityofalllocalgovernmentsintheCommonwealththroughpositiveintergovernmental CommonwealthCommonwealththroughthrough positive relations,regionalefforts,andothermoregeneralmatters.Accordingly,theCommissionhasidentified Accordingly,Accordingly,thethe Commission matters.matters. Commission thefollowingforconsideration: 1.Modifyreversionandconsolidationstatutestoremoveobstacles. obstacles. to statutesstatutes obstacles. removeremove to 2.Makereversionandconsolidationmorecosteffectivethroughincentives. effectiveeffective throughthrough costcost more 3.Grantadditionalpowerstocountiesthroughreversionandotherinterlocalagreeements. throughthroughandand reversionreversion counties 4.Evaluatemandatedservicedeliverymethodstoidentifyappropriateservicelevel. methodsmethods deliverydeliveryidentify toto 5.Relaxtherequirementsfortheestablishmentofjointauthoritiesandspecialdistricts. thetheestablishmentestablishmentofof joint forfor 6.Provideplanninggrantstoexploreinterlocalagreementsandotheroperationalefficiencies. exploreexploreinterlocalinterlocal toagreementsagreements grants 7.Evaluateadequacyoflocalfiscalresourcestoidentifyenhancements. oflocalfiscalfiscal local of resourcesresources adequacyadequacy 8.Createorexpandprogramstoreducelocalfiscalstress. reducereduce local toto expandexpand programsprograms 9.Ince ntivizeadditionalregionalcooperationandregionalprograms. additionaladditionalregionalregional cooperationcooperation TheCommissionrecognizesthesensitivityofsomeoftheseissuesandassociatedconsiderations. thethe recognirecognisensitivitysensitivity zeszes Despitethisreality,theCommissionbelievestheyarefarmoreattainableandpracticalsolutionsthan CommissionCommission whatwouldbegainedfromliftingtheannexationmoratoria.Itisoursincerehopethattheseoptions willbeconsideredforimplementationasameanstocontinuetofosterthegrowingmomentumamong localitiestofosterregionalcollaborationwhichbenefitsthe/š’’š“Þ;Œ·wx­residentsandbusinesses. 6 ScopeofReview Duringthe2016GeneralAssemblysession,theexistingmoratoriaforcityinitiatedannexation,full orpartialcountyimmunityfromannexation,andthegrantingofnewcitycharterswasextendeduntil 1 2024.TheCommissiononLocalGovernment(CLG)wasalsodirectedtostudythismatterandreportto theGeneralAssemblybyDec.1,2018,onthefollowing: 1.EvaluatethestructureofcitiesandcountiesintheCommonwealth; 2.Evaluatetheimpactofannexationuponlocalities; 3.Consideralternativestothecurrentmoratoriumonannexationbycities;and 4.ConsultwithandseekinputfromtheVirginiaMunicipalLeague,VirginiaAssociationof Countiesandlocalitiesdirectlyaffectedbymoratorium. Atthebeginningofitsstudy,theCommissionheldtwopublichearingsinRichmondandStauntonto hearingshearings in Richmond publicpublic solicitinitialpublicinputonthedirectionofthestudy.PrinceGeorgeCountyandtheCityofMartinsville and CountyCounty GeorgeGeorge bothprovidedcomments(AppendixB).Thesecommentshelpframethedichotomyofissues frameframe helpthe commentscomments the surroundingcityannexationandlocalgovernmentstructureandalsohighlightothersignificantlocal andalsohighlighthighlight and structurestructure governmentissuesthathaveresultedfromorarerelatedtothemoratoria.Theyaresummarizedbelow: thethe relatedrelated moratoria.moratoria. toto PrinceGeorgeCounty: Annexationcreatedahistoricatmosphereofdistrustbetweencitiesandcounties ofof atmosphereatmospheredistrustdistrustbetweenbetween Manycountieschosetoprovideurbantypeservicesandbegantoprevailinannexationcases urbanand servicesservices typetype urban provide provide Themoratoriashouldremaininplace placeplace inin remainremain Supportforequalizationoftaxanddebtpowersandopportunitiesforregionalcollaboration ofofanddebtdebt taxtax powerspowers and equalization CityofMartinsville: Moratoriafrozelocalgovernmentstructureintimewithmostgrowthnowoutsideofcities locallocal governmentgovernmentstructurestructure frozefroze Withoutgrowth,manycitiesfaceelevatedfiscalstressanddifficultymeetingservicedemands faceface growth,growth,elevated cities manymany Countiesshouldbethepreeminentlocalgovernmentformandindependentcityconcept bebethe eminenteminent the prepre shouldbeabolished Incentivizelocalserviceconsolidationandhonor599fundingobligation Overthecourseofthelasttwoandahalfyears,theCommissionassembledapanelofstakeholders toadvisetheCommissionforthisstudy.StakeholdersincludedrepresentativesfromtheVirginia AssociationofCounties,VirginiaMunicipalLeague,twopairsofcitiesandcountiesdirectlyaffectedby themoratoria(Emporia/GreensvilleandHarrisonburg/Rockingham),andseveralotherstakeholderswith extensivebackgroundsinlocalgovernmentmatters.Thestakeholdersmetcollectivelyseventimes, alternatingbetweenmeetingintheRichmondandCharlottesvilleareas.Theearliermeetingswerea discussionofcontextandissuessurroundingthemoratoriaandlocalgovernmentstructure,whilethe lattermeetingsfocusedondevelopingsolutionsforconsideration. 1 Section15.23201oftheCodeofVirginia 7 Oncethereappearedtobeconsensusamongthestakeholdersregardingthepotentialsolutions, whichweredivedintostructuralandfiscaltopics,theCommissiondeliberatedonthesetopicsand directedstafftowriteadraftreport.TheCommissionsolicitedpubliccommentonthedraftreportby postingitonthe/š’’z­­zš“x­webpagptemberof eandbyholdingtwopublichearingsinJulyandSe 2018inRichmondandStaunton,respectively. Basedonthepublichearingsandpubliccommentperiod,theCommissionreceivedcommentsfrom ______(AppendixC).Overallthesecomments_______. Afterconsiderationofthisinput,theCommissiondirectedstafftoproduceafinaldraftversionof thereportfortheirNovember2018meeting.Atsuchmeeting,theCommission_______. VirginiaLocalGovernmentHistory HistoryHistory Theevaluationoftheissuesinthisstudywouldbenefitfromanexplorationofthehistoryoflocal fromfromexplorationexploration an of benefitbenefit governmentintheCommonwealthandtheevolutionofmanyoftheissuessurroundingstructure, ofthe ofof issuesissues many many responsibilities,andgrowth.Infact,thelegislativemandatedirectingthisstudyrequiresanevaluation mandatemandatedirectingdirectingthisstudy ofthestructureofcitiesandcoubylookingmoreclosely ntiesintheCommonwealth,whichisachieved Commonwealth,Commonwealth,whichwhichachiev is atthosetopics.Furthermore,regardinglocalgovernmenthistoryinVirginia,annexationislikelyoneof historyhistory inVirginia, governmentgovernment themostimportantsubjects,especiallyinmorerecenttimeswhenthetraditionaldistinctionbetween whenwhen timestimes recentrecent more citiesandcountiesbegantoblurandtheresultingsignifica ntdisputesonthematterledtothe theresultingresultingsignificasignifica and the and moratoria.Itisthroughtheexaminationoftheselinkedissuesandadditionalrelatedcontextthat ofofthesethese linkedlinked examinationexamination potentialsolutionstothesematterswereidentified. identified.identified. mattersmatters were were ColonialDaysandEstablishmentofLocalGovernment andandEstablishment DaysDaysEstablishment Colonial Colonial z©mz“zx­localgovernmentoriginsdatebacktothetimeoftheVirginiaColony,whichbeganasa datedateback originsorigins governmentgovernment back corporateendeavortosettleandharvestthevastresourcesoftheNewWorld.TheVirginiaCompany and settlesettleharvestharvestthe madeseveraleffortstoencourageandsustainpermanentsettlement,whichwasnecessaryforits andand encourageencourage success.First,itallowedsettlerstoown,develop,andharvestplotsoflandfortheirownprofitrather ettlersettlers toto thanoncompanyownedland.Theseareas,oftentimesreferredtoas{wғ7©;7­|or{¦Œ“··zš“­r|were largelymanagedundertheirownselfgovernmentwithlittlecorporateinterference.Asitsgeographic footprintgrew,settlementswereorganizedintosubdividedterritoryoffourincorporationsknownas {-z··z;­|alongtheJamesRiver.Thesearenottobeconfusedwithz©mz“zx­moderndaycities;however, theyweregivennamesthatremaininVirginialocalgovernmenthistoryandstructuretoday:Charles Cittie,ElizabethCittie,HenricoCittie,andJamesCittie.2 Despitesomeofitsearlysuccesses,especiallycommodifyingtobacco,theKingforbadetheVirginia Companyfromdirectlytradingwithothercountries.Theresultingfiscalstresses‘inadditiontothe demiseof25%ofthecolonistsfromaconflictwithNativeAmericans‘triggeredthedissolutionofthe 2th EmilyJ.SalmonandEdwardD.C.Campbell,Jr.,TheHornbookofVirginiaHistory,4ed.(Richmond:Libraryof Virginia,1994),pp.1014. 8 VirginiaCompanyandthedenialoffuturecharterrequestsbytheKing.Instead,Virginiaevolvedintoa RoyalColonymanagedbyaRoyalGovernorin1624withadditionalaffairsaddressedbytheVirginia 3 GeneralAssembly,whichwasestablishedsoonthereafterin1627. TheresultingpopulationgrowthanddiversifyingeconomyoverwhelmedtheGeneralAssembly. MoreminorandareaspecificneedsofcolonistsdidnotrequiretheGeneral!­­;’,Œäx­attention. Consequently,in1634,Virginiawassubdividedintoeightshires‘laterreferredtoascounties‘for moreefficientservicedeliverytocolonists.Eachcountywasgovernedbyacountycourt.Additional tedtoprovideministerial officialsincludedthesheriff,clerk,andcountylieutenant,whoallweremanda andlawandorderservicestothecolonists.Theeightoriginalcountiesincluded:Accomack (NorthamptonCounty),CharlesCity,CharlesRiver(YorkCounty),ElizabethCity(VirginiaBeach),Henrico, JamesCity,Warrosquyoake(IsleofWi 4 ght),andWarwickRiver(NewportNews). Thispatternofgrowth,westwardexpansion,andanincreasingneedformoreeffectiveand increasingincreasing need organizedservicedeliverycontinuedforabout250years.Consequently,additionalcounties‘andstates Consequently,Consequently,additional insomecases‘wereformedtomoreeffectivelysubdividemanagementandservicedelivery.The and subdividemanagementmanagement subdivide patternwassoextensivethatz©mz“zx­claimstoterritoryco veredthefollowingeightpresentday veredthethefollowingfollowing territoryterritory co states:Illinois,Indiana,Michigan,Minnesota,Ohio,Pennsylvania,WestVirginia,andWisconsin.For Pennsylvania,Pennsylvania, WestVirginia,Virginia, Virginia,alone,thecountysubdivisionprocesscontinuedsothatnoonewouldbelessthanone7äx­ continuedcontinuedthatthat sosono one horserideawayfromacountycourthouse,echoingthelogicofensuringcitizenaccessibilitytoservices. thelogiclogicofof echoing ensuring echoing ensuring Consequently,Virginiacountygovernmentstructurehasremainedlargelyunchanged‘withsome has hasremainedremained structurestructure government notableexceptionsdescribedlaterinthisreport‘since1880whenDickensonCounty,z©mz“zx­ this sincesince 18801880 reportreport ‘ ‘ 5 youngestcounty,wascreated.Overall,thechangeinthesegeographicandpoliticalsubdivisionswas thethechangechange Overall,Overall,these inin extensiveandreflectedtherapidgrowthandevolutionofVirginiaasacolonyandstate(AppendixD). andandevolutionevolution growthgrowthof Initially,citiesandtownswererare;however,somecircumstancesnecessitatedtheestablishment however,however, wererare;rare; towns were towns ofthesedenserpopulationcenters.Originally,someoftheseareasoriginatedfordefensepurposesas populationpopulationOriginally,Originally, centers.centers. 6 theywerepalisadedforts.However,oncegreaterstabilitywasachieved,westwardmigration 6 forts.forts. However,However, onceonce acceleratedandnewerpopulationcentersformedfromthediscoveryofresourcesandotherphysical populationpopulation centerscenters 7 assetsbeneficialtocommerceandtrade.Furthermore,theneedforcitiesandtownswasa andand commercecommerce consequenceofavailabletransportationoptions.Withoutmostmoderndaytransportationoptions,the transportationtransportation reasonabledistanceonecouldtravelwasbyfootorhorse.Densitymadelogicalsense;therefore,itwas throughthatconditionthatcitiesandtownsbecamecommercial,industrial,andculturalurbanhubs. LocalResponsibilities,IndependentCities,andAnnexation Throughoutthesechanges,localgovernmentswerecreatedformoreefficientservicedeliveryto citizens.Thescopeandvarietyofservicesevolvedandgrewovertime,especiallyassocietybecame morecomplexandadditionalservices,suchasfreepubliceducation,wereconsideredarighttoevery 3 Ibid.pp1415. 4 Ibid.pp1417,159 5 Ibid.p.159. 6 Ibid.p.21 7 Ibid.pp.2425. 9 citizen.Whatbeganasthegenerallawandorderandministerialservicesofcountylocalgovernmentin the1600sand1700s,grewtoincludek12education,transportation,communitydevelopment, elections,publichealth,andothers.Furthermore,thebreadthofservicesprovidedand/ormandated dependedonthetypeofcommunity,whichwaslargelyinflue ncedbydevelopmentpatterns.Giventhe urbanizeddensityofcitiesandtowns,agreaterarrayofservices(e.g.water,sewer,police,fire,public 8 transportation,etc.)wereneededandprovidedthroughthegrantingofmunicipalcharters.Counties, however,traditionallyremainedruralandservedassubdivisionsofthestatetoadministergenerallaw.9 Whiletownswereestablishedascomponentunitsofcountiesandsharedsomeservice responsibilities,citiesinsteadwereestablishedasbeingwhollyindependentfromtheirsurrounding 10 countyorcounties‘unlikeanyotherstateinthenation.Ofthe41existingindependentcitiesinthe UnitedStates,38arelocatedinVirginia.Whileseverallegalreferencesweremadetoz©mz“zx­ independentcitiespostReconstruction,thedistinctionwasnotofficiallyrecognizedandexplicitlystated officiallyofficially recognized 11 untilthecurrent1971Constitution.Duetotheirindependentstatus,citiesintheCommonwealth‘by cities status,status, default‘donotshareservicesandtaxbaseswithcounties.Whileonebenefitofthisarrangementhas WhileWhilebenefit oneone benefit beenthelackofdoubletaxation,theindependentstatusofcitiesinVirginiahasalsobeenoneofits has citiesinVirginiaVirginia ofof cities mostdebatedandcontroversialmeasures. Ascitiesandtownsgrewdenserandneweronesformed,demandforurbanservicesinthe formed,formed, demand onesones newer developingvicinityalsogrew.Consequently,annexationallowedcitiesandtowns‘thetraditional allowedallowed annexationcities annexation providersofsuchurbanservices‘toexpandtheirboundariestomeettheseneedsandconnectto theirtheirboundariesboundaries expand toto communitiesofinterest.Italsoexpandedtheirtaxbasesthroughexistingandfuturedevelopment, expandedtheirbasesbasesthrougthroug taxtax whichhelpedpayforgrowingservicedemands.Initially,giventhedichotomyofdenseurbancitiesand Initially,Initially, demands.demands. given serviceservice townsrelativetotheirrural,moresparselypopulatedcountycounterparts,annexationwasusuallynot sparselysparselypopulatedpopulated county moremore county controversial.Withmostpopulationconcentratedincitiesandtowns,theextensionofurbanservicesto populationpopulationconcentratedconcentrated inin citiescities outlyingareaswasseenasapositiveforregionsoverall.Reflectingthisview,thematterwasreviewed forfor overall. positiveregions positive a a regions as 12 atthestatelevelbySpecialActsoftheAssembly. ofofthethe SpecialSpecialAssembly.Assembly. Acts UrbanizationofCountiesandAnnexationDisputes UrbanizationUrbanizationofof Counties InthedecadesleadinguptoWorldWarIIandshortlyafteritsend,thedevelopmentpatternsofthe WorldWorld toto upup UnitedStatesrapidlychanged.IncreasedproductionoftheautomobileandcreationofInterstate changed.changed.IncreasedIncreased Highwaysopeneduppreviouslyruralcountiestomoreurbantypeofdevelopment.Manyfederal programsofferedsomereturningsoldiersandtheirfamiliesassistancetopurchasehomesinthese areas.Simultaneously,theeraofJimCrow,segregation,housingdiscrimination,andotherspromoted aneraof{Þwz·;EŒzmw·|fromcities.Thesecircumstancescontributedinmanywaystothedawnofmany 8 VirginiaGeneralAssemblySpecialCommission,LocalGovernmentStructuresandRelationships.(Richmond, 1990),AppendixB 9 Ibid. 10 EmilyJ.SalmonandEdwardD.C.Campbell,Jr.,TheHornbookofVirginiaHistory,4 th ed.(Richmond:Libraryof Virginia,1994),p.89. 11 Ibid. 12 VirginiaGeneralAssemblySpecialCommission,LocalGovernmentStructuresandRelationships.(Richmond, 1990),AppendixB 10 ofthe“·zš“x­firstsuburbs.Generally,theseareaswere(andcontinuetobe)lessdensebutstill urbanizedwithmostlysinglefamilyhomesandothernonresidentialusescustomarytothe environment.Consequently,manyformerlyruralcountiessurroundingtraditionalcentralcitiesand largetownsfacedrapidlygrowingpopulationsandcommercialbasesthatde mandedmanyofthesame urbanservicestraditionallyprovidedbycitiesandtowns.Asthistrendcontinued,so,too,didanexodus ofwealthandstabilityformanycities.Poverty,whichwasonceamostlyruralissuein1960,beganto flipflopwithmostareasofconcentratedpovertybexE). comingisolatedincities(Appendi Simultaneously,thetraditionalviewofcityannexationchanged.Whileitwouldhavebeena reasonableactionforcitiestoaddressthegrowthandservicedemandsoutsidetheirboundaries,its successcouldjeopardizethefiscalsustainabilityandviabilityofcountiesbecauseofthewinnertakeall scenarioresultingfromindependentcitystatus.Manycountieshadbeguntoprovidesimilarurban servicessosomeargumentsforthenecessityofannexationdiminished.Moreover,manyotherissuesof diminished.diminished. Moreover,Moreover, thetime,especiallyracerelations,segregation,anddiscrimination,transformedannexationintoatopic transformedtransformed discrimination,discrimination, outsideofitstraditionalperspectiveandintoonethatwasvehemens. entlyopposedbysomecitiz vehemvehementlyentlyopposed opposed Theseandmanyotherissuescontributedtothefinaldecadesofcityannexationescalatinginto finalfinaldecadesdecadesof citycity annexation annexation significant,expensive,timeconsuminglawsuits‘someofwhichevenmadetheirwaytotheUnited ofofwhichwhich mademade somesomeeven 13 StatesSupremeCourt.Aspiritofdistrust,competition,andhostilitybetweenthe/š’’š“Þ;Œ·wx­ andandhostilityhostilitybetween competition,competition, citiesandcountiesensuedthatensnaredcitizens,businesses,andelectedofficials,alike.Some businesses,businesses, and citizens, citizens, communitiesoptedtopreventfutureannexationsfromneighboringcitiesbybecomingconsolidated fromfrom neighboringneighboring annexationsannexations cities,themselves.Oneprimeexampleofthistacticistheconcentrationofadjacentcitiesinthe ofthisthethe tactictacticisis concentrationconcentration example HamptonRoadsregionthatwerecreatedtopreventNorfolkandPortsmouthfromfutureannexation. Norfolk createdcreated totopreventprevent Othercountiesbecameabletodeclarefullorpartialimmunityfromcityannexationandthecreationof fullpartialpartial declaredeclare immunityimmunity oror 14 newindependentcitiesiftheymetcriteriaequatingasbeingsufficientlyurbanized. criteriacriteriaequatingequating metmet asas they DespitethereliefthisplacedoncertainregionsoftheCommonwealth,annexationcontinuedto thisthisplacedplaced certaincertain regions onon remainadivisiveissueforcommunitieswhereitwasstillpossible.Consequently,manyotherhigh forfor wherewhere issueissuecommunitiescommunities profile,costly,andlengthylegalbattlesensuedbetweencommunitiessuchastheCityofHarrisonburg legal lengthylengthybattlesbattlesensued legal 1516 andRockinghamCountyandtheCityofDanvilleandPittsylvaniaCounty.Meanwhile,countertothe andandthe CityCity the volatilityofcityannexation,towninitiatedannexationscontinuedtoproceed,likely‘inpart‘dueto towntown themoreharmonious,overlappingnatureoftownandcountystructuresintheCommonwealth. EffortstoAddressLocalStructuresandAnnexationIssues ThegrowingdisputesandanimosityoverannexationandmanyrelatedissuespromptedtheGeneral Assemblytoexaminethemattermorecloselyonmultipleoccasionstodetermineifaworkablesolution couldbeidentifiedandimplemented.Ontwosuchoccasions,in1971and1987,theGeneralAssembly 13 U.S.SupremeCourtCityofRichmondv.UnitedStates,422U.S.358(1975) 14 Sections15.23300etseq. 15 CommonwealthofVirginia,CommissiononLocalGovernment.ReportontheCityofHarrisonburg‘Countyof RockinghamAnnexationCase(1981). 16 CommonwealthofVirginia,CommissiononLocalGovernment.ReportontheCityofDanvilleAnnexationAction andCountyofPittsylvaniaPartialImmunityAct(1984). 11 alsoissuedatemporarymoratoriumonannexationwhileaworkablesolutioncouldbeidentified.Some oftherecommendationsfromthesestudieswereimplementedinsomeway,including: Creationofregionalplanningdistricts›·š7äx­currentPlanningDistrictCommissions(PDCs)) Inclusionoftheterm{©;mzš“ŒmšÝ;©“’;“·|inArticleVIIoftheVirginiaConstitution EstablishmentofCLGtoreviewannexationandinterlocalagreements/transitionspriortocourt Full/partialimmunityfromannexation/newindependentcitiesforurbanizedcounties Additionalfundingforlawenforcement,constitutionalofficers,socialwelfare,andhighways ThemostrecentsignificantstudyonthissubjectwastheCommissiononLocalGovernment 1990.Itsuggestedthatthemeaningof StructuresandRelationships(GraysonCommission)in {z“7;¦;“7;“·|citiesberedefinedsothatacitywasconsideredindependentifwascapableofsustaining itselfwithouttheneedforannexation.Further,itclaimedapopulationof125,000wasasufficient populationpopulation thresholdforachievingabalancedeco nomyofscale.Consequently,itrecommendedthatcitieswitha recommendedrecommended itit Consequently,Consequently, populationsizegreaterthan125,000remainwhollyindependentwhilethosebelowthethresholdbe whilewhile independentindependentthose allowedtobecometownsorcomponentunitsofcounties›{/Œ­­A/z·z;­|œwiththeabilitytoannexby /z·z;­|œ/z·z;­|œ ›{/Œ­­›{/Œ­­with A the ordinance.ItrecommendedgrantingtheCLGfinalauthorityovertheapprovalofboun daryadjustments, authorityauthoritytheapprovalapprovalofboun overover localtransitions,andconsolidations.Italsosuggestedstatefundingbeheldharmlessforfivefiscalyears fundingfundingbeheld harmlessharmless statestate followingvariouslocalconsolidations,whichhasbeeninstrumentalinassistingwithtransitionsrelated beeninstrumentalinstrumental in assisting tosuchcases. Despitethenumerousstudiesidentifyingandsometimesimplementingrecommendationsonthe identifyingandand implementing sometimessometimes implementing topic,Virginialocalgovernmentstructure‘withafewexceptions‘hasremainedthesameforover30 withfewfew exceptions structurestructure a with ‘‘ years.Inmanycases,thishasallowedsuburbancountiesinVirginiatoachievegreaterrelativewealth allowedallowedsuburbansuburban untiesunties co andprosperitythantheirurbanneighbors.Meanwhile,manytraditionalcitieshaveexperienced neighbors.neighbors. urbanurbanMeanwhile,Meanwhile, decadesofdeclineandadversitywithpotentialsignificantconsequencesforthosewhoremained. withwith adversitypotentialpotential adversity Moreover,similarchallengesarealsooccurringinothermoreruralregionsoftheCommonwealthfor challengeschallengesalsoalso occurringoccurring areare otherreasons.Thefollowingsectionwilllookatthismattermorecloselyfromavarietyofperspectives. followingfollowingwillwill looklook section Context:VirginiaLocalGovernmentintheModernDay VirginiaVirginia Despitethemoratoria,therehavebeensomenoteworthychangestolocalgovernmentssince1987. Populationgrowth,settlementpatterns,localstatuses,andfiscalmattershaveallcontinuedtochange overthelast30yearsinawaythatsometimesblursthedistinctionbetweencitiesandcounties. Moreover,theyraisetheimportanceofregionalmattersandneedsfromtwoperspectives:individual regionsandtwostatewideregions(theUrbanCrescentandRuralHorsehoe).Altogether,thissuggests thatmoreinterlocalandregionalapproachesmaybenecessarytobetteraddresstheseandotherfuture challengesinadditiontomorestandardfiscalandstructuralconsiderations. 12 PopulationGrowth First,populationhascontinuedtoincreaseinmanyofthesuburbancountiessurroundingtraditional cities.Whenviewingthispatternoverall,countieshavegainedthelargestshareofpopulationgrowthin theCommonwealthcomparedtocities.Since1990,theCensusyearclosesttoenactmentofthe1987 moratoria,countieshavegrownbymoretha n50%,whichisfivetimesthecityrateofslightlymorethan 1718 10%andgreaterthanthestatewiderateofjustover36%.Priortothemoratoria,from1900to1990 19 citiesgrewby630%,whilecountiesgrewbyjustover150%,andthestategrewbyover230%.Someof thiscitygrowthislikelybecauseofannexation.Proportionately,asof2017,70%ofthe­··;x­ populationlivesincountiesand30%areincities,representinga4%increaseanddecreaseforcounties 20 andcities,respectively,since2000.Thisscenarioisratherlogicalgiventhatcitiesonlygrowfrom withintheirexisting,oftentimeslargelybuiltoutbutstaticboundaries. Additionally,manycountiesarenowlargeranddenserthancities.Forexample,FairfaxCountyisthe ForFor mostpopulouslocalitywithapopulationgreaterthan1.1million‘nearlythreehundredtimesthesize nearlynearly three ‘‘ 21 ofNorton,z©mz“zx­smallestcity.Fromapopulationdensityperspective,theCityofAlexandriaisstill the perspective,perspective, City densestatgreaterthan10,500personspersquaremile,butthenextdensestlocalityisArlingtonCounty densestdensest thethelocality next butbut 22 ‘nearly40timesdenserthanSuffolk,z©mz“zx­leastdensecity. 22 densedense city.city. Additionally,assomeurbanizedcountiesnowresemblecities,arippleeffectisoccurringthrough resembleresembleripple cities,cities, a now theurbanizationofoutlyingruralcountiesthatnowresemblethefirstwaveofsuburbancounties.These resembleresemblethethefirst nownow areas,referredtoasexurbs,includecountiessuchasGoochland,Loudoun,andStaffordthatareonthe suchsuchGoochland,Goochland, Loudoun,Loudoun, counties as peripheryofsuburbanareaswithinalargermetropolitanregionandareexperiencingsignificantgrowth metropolitanmetropolitan regionregion rger rger relativetotheirhistoricallyruralcharacter.Furthermore,fromastatewideregionalperspective,the character.character.Furthermore,Furthermore,from CommonwealthisalsoexperiencingsignificantgrowthalongtheUrbanCrescent.Thisisdefinedasthe significantsignificantgrowthgrowth along experiencingexperiencing areafromNorthernVirginiasouthalongtheI95corridortoRichmondandtheneastalongI64to alongalongthethe southsouthcorridorcorridor II9595 HamptonRoads.Conversely,themoreruralregionsoftheCommonwealth(EasternShore,Southside, Conversely,Conversely,thetheruralrural regions moremore 23 Southwest,andpartsoftheShenandoahValley‘recentlyreferredtoastheRuralHorseshoe)have thetheShenandoahShenandoah ValleyValley ofof experiencedlowgrowthor‘inmanycases‘populationdecline. growthgrowth in orormanycasescases ‘ Thesecharacteristicsruncountertohowonewoulddescribeanddefine{-z·ä|and{-šÒ“·äu| countercounter runrun Furthermore,despitethisblurringdistinctionwheresomecountieshaveattainedorexceededthe blurringblurring 17 StevenManson,JonathanSchroeder,DavidVanRiper,andStevenRuggles.IPUMSNationalHistorical GeographicInformationSystem:Version12.0[Database].Minneapolis:UniversityofMinnesota. 2017.http://doi.org/10.18128/D050.V12.0 18 UniversityofVirginia,WeldonCooperCenterforPublicService.VirginiaPopulationEstimates,July1,2017 Estimates:https://demographics.coopercenter.org/virginiapopulationestimates 19 StevenManson,JonathanSchroeder,DavidVanRiper,andStevenRuggles.IPUMSNationalHistorical GeographicInformationSystem:Version12.0[Database].Minneapolis:UniversityofMinnesota. 2017.http://doi.org/10.18128/D050.V12.0 20 UniversityofVirginia,WeldonCooperCenterforPublicService.VirginiaPopulationEstimates,July1,2017 Estimates:https://demographics.coopercenter.org/virginiapopulationestimates 21 Ibid. 22 Ibid. 23 CommonwealthofVirginia,VirginiaCommunityCollegeSystem.http://www.vccs.edu/giving/ruralhorseshoe initiative/ 13 urbanizedstatusofmanycities,theirlegalclassificationassuchremains,whichaffectstheparameters throughwhichtheymayoperate(AppendixF).Whilesomecountiesnowpossessadditionalpowers 24 traditionallyreservedforcities,thisoptionisfarfromthenormandhasbeendifficultforsome countiestoattainbecauseitrequiredasuccessfulvoterreferendumortheeffortfailedtopass legislatively. Conversely,somecitieshaveexploredandoccasionallyenactedchangestotheirlegalstructure throughconsolidationandreversion.Twoormoreunitsoflocalgovernmentmayconsolidateintoa ysubjecttoreviewandasuccessfulvoterreferendum.25 Accordingly,thelastsuccessful countyorcit consolidationoccurredin1974whentheCityofSuffolkconsolidatedwithNansemondCountytoform 26 theCityofSuffolk.Ninesubsequentconsolidationeffortshavefailedatthevoterreferendumstage generallybecauseoflocalidentityobstacles.Reversion,wherecitieswithapopulationlessthan50,000 maybecomeatown,hasbeenmoresuccessfulbecauseitdoesnotinvolveavoterreferendum.Sinceits involveinvolve 27 enactment,threereversionshaveoccurredandseveralothershavebeendiscussed,includingmost havehavebeen recentlybyPetersburgasanoptiontoaddressitsrecentfiscaldistressdifficulties. distressdistressdifficulties.difficulties. LocalGovernmentFiscalStress FiscalFiscalStress Similartot;·;©­,Ò©mx­situation,inmostcases,consolidationorreversionwerepursuedtoalleviate consolidationconsolidation reversion oror fiscalstressesresultingfromthemandatetoprovideserviceswhilefacingalimitedorshrinkingtaxbase whilewhile providefacing servicesservices andothersignificantsocioeconomicchallenges.Withoutthetraditionaloptionofannexationtogrow Withoutthethetraditionaltraditional challenges.challenges. Without theirfiscalbaseandabsorbgrowthoccurringsincethe’š©·š©zx­enactment,consolidationand thethe’š©·š©zx­’š©·š©zx­ occurringoccurringsincesince reversionhavebeenviablealternativesforsomecitiestoconsidertoalleviatefiscalstresses.Through forconsidconsid citiescities toto some suchactions,citiesmayachievegreatereconomiesofscalebymergingsomeorallmandatedservices, ofof scale economieseconomies greategreate rr 28 suchask12education‘representingapproximately54%oflocalexpenditures,onaverage‘witha approximatelyapproximately representingrepresenting54% 54% county. Echoingthesefiscalchallengesforcities,the/[Dx­FiscalStressIndexhasconsistentlyrankedcities forfor challengeschallengesthe cities,cities, ashavinggreaterlevelsoffiscalstressrelativetocounties.Thereportillustratesacityor-šÒ“·äx­ability levelslevelsofoffiscalrelativerelative stressstress togenerateadditionalrevenuesfromitstaxbaserelativetotherestofCommonwealth.Itisastatistical fromfrom itsits revenuesrevenues averagingofrelativescoresbaseduponrevenuecapacity,revenueeffort,andmedianhousehold basedbased resres income.Theindexweighsallthreevariablesevenlywhicharedefinedas: threethree (1)revenuecapacity‘therevenuealocalitycouldgenerateifittaxedatstatewideaveragerates, (2)revenueeffort‘aratioofaŒš-Œz·äx­actualtaxcollectionstoitsrevenuecapacity,and (3)medianhouseholdincome‘thelevelwherehalfofhouseholdsearnmoreandhalfearnless. 24 Sections58.13817etseq,58.13819etseq,38.13830etseq,58.13833etseq,58.13840etseq. 25 Section15.23500etseq,15.23520etseq. 26 CommonwealthofVirginia,CommissiononLocalGovernment.{t­·ConsolidationEffortsinz©mz“z|(2015), http://www.dhcd.virginia.gov/images/clg/docs/Consolidation%20History.pdf 27 CommonwealthofVirginia,CommissiononLocalGovernment.{/z·äTransitiontoTownStatusinz©mz“z| (2015).http://www.dhcd.virginia.gov/images/clg/docs/CompletedReversions.pdf 28 CommonwealthofVirginia,AuditorofPublicAccounts.{/š’¦©·zÝ;ReportonLocalGovernmentRevenues andExpendituresfortheFiscalYearEndedJune30, AmendedFebruary1,2016. http://www.apa.virginia.gov/APA_Reports/LG_ComparativeReports.aspx 14 Thecompositescoreisthencomparedtothestatewideaverage,whichissetat100.Anyscoreover100 indicatesaboveaverageorhighfiscalstressandanythingbelow100isbelowaverageorlowfiscal stress,usingstandarddeviations.ForFY2015,19ofthetop20mostfiscallystressedlocalitiesare cities.29 Theaveragecityscoreis102.94,andtheaveragecountyscoreis98.83.Despitethe concentrationofcities,somecounties‘especiallyinmoreruralregions(Southside,Southwest,partsof theShenandoahValleyandEasternShore)‘alsoexperienceelevatedlevelsoffiscalstressasseenin Figure1. Figure1 Becausefiscalstressrelativelymeasurestaxbasesandthedegreebasesaretaxed,itseems relativelyrelativelybasesbases taxtax measuresmeasures reasonablecomparingfiscalstressandlocal/stateexpendituresformandatedservices(AppendixG). local/state andand stress fiscalstress local/state fiscal Mostlocalitieswithelevatedlocal/stateexpendituresandfiscalstressarecities(73.7%and57.9%ofall local/statelocal/state elevatedelevatedexpendituresexpenditures citiesinQuadrantBofFigures2and3,respectively).Mostareasoflowerlocal/stateexpendituresand ofofandandrespectively). FiguresFigures23,3, fiscalstressarecounties(41.1%and42.1%ofallcountiesinQuadrantCofFigures2and3,respectively). (41.1%(41.1%and 42.1%42.1% Amajority(96.6%)oflocalitieswithelevatedfiscalstressandlocalexpendituresarecities,andthe localitieslocalitieswithwith majority(58.5%)forstateexpendituresarecounties(QuadrantBofFigures2and3,respectively). expendituresexpenditures 29 Indescendingorder:theCitiesofEmporia,Franklin,Petersburg,Martinsville,BuenaVista,Galax,Bristol, Hopewell,Lynchburg,Portsmouth,Radford,Norfolk,Covington,Danville,Norton,NewportNews,Hampton, Roanoke;DickensonCounty;andtheCityofLexington. 15 Figure2 Figure3 Figure4showsthatelevatedlocalexpendituresandstressareprimarilyincities(shadedred),and areasofelevatedstateexpendituresandstress(QuadrantBofFigure3)aremostlycountiesin SouthsideandSouthwestVirginiaandsomecities(Figure5).Ninelocalities‘allcities‘havehigherlocal sharesexpenses(Figure4),butthestateshareislower(Figure5).Eightcountiesandonecitywith elevatedstressandlowerlocalexpenses(Figure4)alsohavelowerstateexpenses. 16 Figure4 Figure5 Fromasizeperspective,fiscalstressisconcentratedinsmallercommunities,whichsupportsthe benefitsofeconomiesofscale.Ofthe97citiesandcountieswithapopulationof50,000orless,over half(57.7%)haveaboveaverageorhighfiscalstress.Evenatbelow100,000,56.8%areclassifiedwith aboveaverageorhighfiscalstress.Asmallershare(29.4%)ofcitiesandcountieswithapopulation greaterthan100,000experienceaboveaverageorhighfiscalstress.Moreover,whenexamining populationsizerelativetolocalandstateexpendituresformandatedservices,smallcities(populations lessthan100,000)arewhereelevatedlevelsoffiscalstressandlocal/stateexpendituresoccur(60.5% and50%ofallcitiesinQuadrantBofFigures6and7,respectively),butsmallcounties(32.6%ofall counties)alsoexperiencesimilarcircumstances. 17 Figure6 Figure7 RegionalMatters Hypothetically,ignoringthemoratoriaandindependentcitystatus,localgovernmentboundaries mayhavechangedbasedontwoCensusdatasets.First,UrbanizedAreasaredenselysettledcoresof censustracts/blocks(500to1,000personspersquaremile)withadjacentnonresidentialurbanland 30 usesorlowerpopulationslinkingotherdenseareaswiththecore(redareasinFigure8).Theycover the/š’’š“Þ;Œ·wx­cities,manymajortowns,andsurroundingcounties.Alternatively,CoreBased StatisticalAreas(CBSAs)containingasubstantialpopulationnucleuswithadjacentcommunitieshavinga 30 UnitedStatesCensusBureau.{ CensusUrbanAreasC!vu| https://www.census.gov/geo/reference/ua/uafaq.html 18 highdegreeofeconomicandsocialintegration(greenoutlinesinFigure8)31.Onlysixofthe /š’’š“Þ;Œ·wx­citiesareoutsideofCBSAs.Whilethesearepurelytheoreticalscenarios,they illustratehowurbanizedgrowthnowtranscendstheboundariesofonecityorcounty.Theyalso illustratehowsomecitiesmaynotyetbefullyurbanized,buttheyarelegallyclassifiedascities, nonetheless. Figure8 Despitegrowthandsettlementpatternsdemonstratinghowcommunitieshavegrownregionally, demonstratingdemonstrating patternspatterns disparitiesandstarkdifferencesinopportunityremain‘oftentimesjustacrossboundarylineswithin opportunityopportunityremainremain inin theseregions‘andwithinthecontextofcommunitiesthatmaynolongerfullyidentifywithorfunction of communitiescommunities contextcontext of basedonthoseboundarylines.Whilethefiscalconditionofurbanizedcountieswasprotectedbecause WhileWhilethethefiscal lines.condition lines. ofthemoratoria,thefiscalconditionofsomecitiesdeterioratedduetofactorssuchasconcentrated ofof fiscalfiscalconditioncondition somesome poverty,shrinkingtaxbases,andgreaterdemandforservicesfromthosewhoremainwithlimited and bases,bases, taxtaxgreatergreater optionsorresourcesfortheircitytoaddressthoseissues. theirtheiraddressaddress city to city Notwithstandingthesedifferences,insomecases,theissuesarespreadingtocounties,especially diffdiff erences,erences, urbanizedcounties,whilesomecitieshaveexperiencedareboundindesirabilityresultingfromaninflux 32 ofmillennialsandtoalesserextentemptynesters.Thishasledtothegentrificationofmanyformerly workingclassorimpoverishedareasasformerresidentsarepushedtooutlyingareas,oftentimestothe innerringsuburbsbuiltwhencountiesfirsturbanized.33 Additionally,moderndayissuessuchasthe opioidepidemicandtheGreatRecessionhavehadamoreregionalfootprintandaffectedcitiesand counties,alike. 31 UnitedStatesCensusBureau.{D;šm©¦wz-TermsandConceptsCoreBasedStatisticalAreasandRelated Statistical!©;­u|https://www.census.gov/geo/reference/gtc/gtc_cbsa.html 32 Juday,LukeJ.{w;ChangingShapeofAmerican/z·z;­u|UniversityofVirginia,WeldonCooperCenterforPublic Service.2015.https://demographics.coopercenter.org/sites/demographics/files/C AmericanCities_UVACooperCenter_February2015.pdf 33 Ibid. 19 Furthermore,additionalchangesintheglobalandnationaleconomyhaveinfluencedpopulation growthandmigrationpatternsinotherpartsofthestate.Asonelargesegmentofthestatecontinues tobethedominantgrowthengine,otherareashavelaggedbehind.Ononehand,Virginiaisdefinedby theUrbanCrescent,whichisthelargementofthestate,representing68% lyurbanizedandsuburbanseg ofthepopulationand79%ofthe­··;x­growthdomesticproductononly24%ofthelandarea. Conversely,andwithsomeexception,theremainderofthestateiscomprisedoflargelyruralareaswith smallercitiore,ShenandoahValley, esandtownsscatteredthroughout.ThiscoverstheEasternSh Southside,andSouthwestVirginiaandhasrecentlybeenreferredtoastheRuralHorseshoe. Theresultofthesefactorsisthatthereisconsiderablymorefiscalstressuponcitiesandthecities andcountiesinotherpartsoftheCommonwealthexperiencingeconomicandpopulationcontraction. Asitrelatestothedifficultyfortheselocalgovernmentstoeffectivelydeliverqualityservicesto residents,geographyisbecomingdestinyformanyandcontributestosocioeconomicchallengessuchas socioeconomicsocioeconomic theachievementgap,accesstojobs,incomeinequality,andothers.Theseandotherissuesareof others.others.These growingimvernmentsbecausethey portancetotheviabilityofmanyofthe/š’’š“Þ;Œ·wx­localgo /š’’š“Þ;Œ·wx­/š’’š“Þ;Œ·wx­local go local vernments poseathreattothewellbeingoftheCommonwealth.Itisthroughamoreharmoniousrelationship, throughthrough harmonious amoremore isis especiallyamongthelocalitiesineachregion,thatgreaterhealth,welfare,andprosperityforallofthe welfare,welfare, health,health,andand greatergreater /š’’š“Þ;Œ·wx­citizensandbusinessescanbeensured. red.red. ensu AlternativestotheMoratoria:Preamble thethePreamble Moratoria:Moratoria: to Whileonepotentialsuggestionforthisstudycouldhavebeentoraisetheannexationmoratoria, forforthisstudystudycouldcouldhave suggestionsuggestion this thisoptionwasconsideredhighlyunlikelyandproblematic.First,whiletheCommonwealthcontinuesto unlikelyunlikelyandand highlyproblematic.problematic. urbanize,itisstilllargelyastatewithamajoritycountyinterest.Thelikelihoodthatsuchaneffortwould with majoritymajority statecounty aa state with succeedlegislativelyislow. low.low. Second,raisingthemoratoriawouldlikelyleadtoadditionalcostlylegalbattlesamongthe thethewouldwould moratoriamoratoria remainingcitiesandcountieswhereannexationisstillpossiblenorwoulditsolveunderlyingissues wherewhere countiescounties customarilyalleviatedbyannexation.Sixcountieshavealreadydeclaredstatutoryimmunity,andten annexation.annexation. othercountiesappeareligible(AppendixH).Consequently,only21citieswouldbeeligibletoannex,but somefaceadditionalobstacles.Fourhaveaneighboringcountywithpartialimmunity,andanotherfour aresurroundedbyothercitiestherebynegatingannexationaltogether.Moreover,annexationwould likelynotsolveunderlyingissuesformostoftheremaining13cities,especiallyasitrelatestothe 34 economyandfiscalstress. Raisingthemoratoriamayalsonolongerbeadesirableoptionforsomecities,someofwhichare beginningtogrowandrevitalize.Generally,twosignificantdemographicgroups,millennialsandbaby boomers,aredrivingthischange.Generally,theypreferdense,mixeduse,walkablecommunitieswith 34 Basedonthe/[Dx­FY2015FiscalStressdata,ofthe13identifiedcitiesadjacenttocountiesthatarealso classifiedasexperiencingelevatedlevelsoffiscalstress,11areadjacenttoatleastonecountywherefiscalstress levelsarealsoelevated. 20 opportunitiesfortransit,whichmanytraditionalcitiesprovide.Whilethishasbeenbeneficialformany cities,ithasalsopushedpocketsofpovertyouttotheinnerringsuburbsofsurroundingcounties throughgentrification.Notwithstandingthemanyrelatedissuesemanatingfromthismatter,suchasa needformoreaffordablehousing,itseemslogicalthatsomeci tieswouldchoosetoforgoannexation becausedoingsocouldruncountertotheirimprovingbases. Finally,thoughthepopulationeligibilitythresholdbywhichatownwouldchoosetobecomeacityis 35 low(1,000persons),itseemsunlikelythatmanytownswouldchoosethisoptionbecauseofthe potentialforcostlylegaldisputeswithcountiesandothercostprohibitivecircumstances.Furthermore, manytownscurrentlyenjoythebenefitofsharedserviceswithcounties,whichwouldbenegatedby theirnewfoundstatusasindependentcities.Whilethematterhasrecentlybeendiscussedinsomelarge towns,36 overall,itwouldbeinthebestinterestoftheCommonwealthandtheaffectedcitizensfor townstobeunabletobecomeindependentcitiesinVirginia. Forthesereasons,theCommissionsuggestsmakingtheannexationmoratoriapermanent.Asthey annexationannexationmoratoria standnow,themoratoriahaveexistedforover30yearssoestablishingtheirpermanencywouldnot establishingestablishingtheir permanency soso rescindanylocalgovern’;“·x­abilitythatwasrecentlyexercised.However,theconsequencesfor exercised.exercised. However,However, recentlyrecently makingthemoratoriapermanent‘manyofwhichhavealreadybeenexperiencedduringthelast30+ alreadyalreadybeen havehaveexperiencedexperienced been yearsofthe’š©·š©zx­temporarystatus‘shouldbemitigatedthoughthefollowingotherstructural bemitigatedmitigatedthoughthe should andfiscalconsiderations. StructuralConsiderations StructuralConsiderationsConsiderations Structural Allowcitiesrevertingtotownstatustoretain{-z·ä|titleinadifferentform revertingretain revertingtototowntownstatusstatusto Removeoraltertherequiredvoterreferendumforlocalconsolidation requiredrequiredreferendumreferendum thethe votervoter alteralter Becauseofthestigmaresultingfromlosingthetitle{-z·ä|asaresultofreversion,theCommission resultingresultingfromfrom stigmastigma suggestsfindingawayforthe{-z·ä|titletoremainbutclearlydistinguishingitfromotherindependent thethe{-z·ä|{-z·ä|titletitle citiesintheCommonwealth.Thesedependentcitieswouldoperatesimilartotownsbutnothavefull TheseThese powersreservedforcities.Thiswouldhelpovercomesomelocalidentityissues,whichhavebeen obstaclestopreviousconsiderationsofreversion.Ifthisisenacted,additionalconsiderationmaybe neede dtoconsiderhowtoaddressthethreeformercitiesthatrevertedtotownstatus. Oneotherwaytoalleviateissuesoffiscalstressemanatingfromeconomiesofscaleisfortwoor morelocalitiestoconsiderconsolidation.Althoughconsolidationwouldbenefitsomelocalities,there areobstaclestomakingtheprocesseasierandmoreoutcomedriven,especiallyasitrelatestothe requiredvoterreferendum.Thisstageoccursafterthelocalitieshavealreadyspentsignificanttimeand 35 Section1,ArticleVIIoftheConstitutionofVirginia,§15.23602oftheCodeofVirginia. 36 Rannaivo,Yann.{.Œ-‰­,Ò©mtoexploreconvertingtocity­··Ò­u|TheRoanokeTimes.March21,2017. http://www.roanoke.com/news/local/blacksburg/blacksburgtoexploreconvertingtocity status/article_b56d59fc35785146afb9e40af0c98f3d.html 21 moneynegotiatingandreachingaconsolidationagreementandaftertheCLGandcourtshavereviewed thecaseasdirectedbylaw.Whileearlierconsolidationeffortshavebeensuccessful,since1974every consolidationefforthasfailedatthereferendumlevelwiththevoters‘againusuallybecauseofthe obstaclesrelatedtolocalidenforlocalitiesandthe tity.Assuch,itiscostlyandtimeconsuming Commonwealthtogothroughtheprocessandhavetheinitiativefailattheballot. Alternatively,reversionisamoreunilateralprocessthatdoesnotrequireavoterreferendumbut doesrequiretheCLGandspecialcourttoreviewthecasebeforeanordergrantingreversioncanbe made.Thisreviewincludesconsiderationoftheprobableimpactuponthecitizensaffectedbythe consolidationandopportunitiesforpubliccommentbeforetheCLG.Therefore,aviableimprovementto theconsolidationprocesscouldbetoremovethevoterreferendumrequirementbutstillpreservethe ngotherstagesoftheprocess.WhileArticleVIISectionIIofthe opportunityforpubliccommentduri ConstitutionofVirginiarequiresavoterreferendumfortheorganizationofaregionalgovernment,itis organizationorganization silentonconsolidation.Anotheralternativecouldbetokeepthevoterreferendum,butthereferendum referendum, votervoter ,whichwouldrepresentthemajority wouldbecollectiveratherthanseparateelectionsineachlocality localitylocalitywhichwhichwould , ofopinionsofthosevotingintheregioninsteadofindividuallocalities.Moreover,itwouldstillprovide localities.localities. Moreover,Moreover, individualindividual anopportunityforvoterinput. Capholdharmlessfundingforreversionandconsolidationtofiveyears andconsolidationconsolidationfive and to reversionreversion Provideincentivefundstoschooldivisionsconsolidatingasaresultofreversionorconsolidation consolidatingconsolidating divisionsdivisions asas Oneoftheconcernsforreversionandconsolidationcasesistheburdenoftakingontheother andandconsolidationconsolidation reversion reversioncases Œš-Œz·äx­debtandexpenses,whichcanbedaunting.Furthermore,itcantaketimetoresolveandadjust bedaunting.daunting.Furthermore,Furthermore, cancan whichwhich totheimpactsofconsolidationorreversiononlocaloperations.Inordertoalleviatetheseburdens, locallocal reversionreversion ororonon consolidation therearesomeincentivesofferedtomakethetransitioneasieronlocalities. makemakethe offered transition to offered {IšŒ7harmlessEғ7z“m|distributesmoneytothelocalitiesasthoughtheyremainseparateentities distributesdistributes Eғ7z“m|Eғ7z“m| moneymoney bydistributingthesamefundingfor15or20yearsforreversionandconsolidation,respectively.While for ffundinundin 1515 g samesameor thishasbeenusefultolocalities,itcanbecostprohibitivetothestateasindicatedinastudyconducted localities,localities, it cancan it 37 byJLARC.Furthermore,whentheconceptwasoriginallyavailable,holdharmlessfundingwascapped whenwhenthethe 38 atfiveyearsbeforelegislationin2000establisheditspresentlength.Returningthe{wšŒ7w©’Œ;­­| fundingtoafiveyearcapwouldstillincentivizelocalitiestoconsolidatewithfinancialassistanceand wouldalsosavethestatemoney. Onetoolpreviouslyavailabletolocalitiesasitrelatestoschooldivisionconsolidations‘which wouldbeaconsequenceofreversionorlocalgovernmentconsolidation‘isnolongeravailable.The provisionwouldhavegiventheconsolidatedschoolsystemfundingbasedonapreviouslyprescribed formulathatwasoriginallyintendedforonespecificconsolidationbutremainedinstatecode 37 CommonwealthofVirginia,JointLegislativeAuditandReviewCommission.{[š-ŒGovernmentandSchool Division/š“­šŒz7·zš“u|HouseDocument14.September2014.http://jlarc.virginia.gov/pdfs/reports/Rpt458.pdf 38 Chapter708,2000ActsofAssembly. 22 indefinitely.39 AJLARCstudyshowedthatitwascostprohibitiveforthestatetofundtheschooldivisions insuchawaysotheincentivewaseliminatedandnoreplacementhasbeenenacted.Despitethe arbitrarynaturebywhichthefundingformulawasderived,itwasessentialinincentivizingother reversionsandorconsolnt idationstobediscussedand/ortakeplace,especiallygiventhesignifica portionoflocalbudgetsthatarededicatedtok12expenses. Thecurrentbudgetlanguagereads{Notwithstandingthefundingprovisionsin§22.125D,Codeof Virginia,additionalstatefundingforfutureconsolidationsshallbeassetforthinfutureAppropriation Acts.TheGeneralAssemblyshouldconsiderreplacingthepreviousfinancialincentivewithanewoneto becappedatafiveyearduration.TheCLGrecommendedaformulaina2015studythatwouldhave useditsFiscalStressScoresasthebasisforallocatingfundingwhileavoidingpotentiallyhighexposure tothestatebasedonthepreviousformula.Moreover,itwouldhavedirectedtheincentivestolocalities 40 thatwouldneeditmost:thosewithelevatedlevelsoffiscalstress. Grant/relaxtaxinganddebtpowers/limitstocountiesaffectedbyreversion affectedaffectedbyby reversion reversion countiescounties Grant/relaxtaxinganddebtpowers/limitstocountiesthatparticipateineconomicgrowth that participateparticipate countiescountiesineconomic in sharingagreements Intheeventofreversion,theGeneralAssemblymaywanttoconsidergivingcountiesadditional Assemblyconsider wantwantto may Assembly powersasanincentive.Theseincentivescouldbeusedtomakethereversionprocessmorecooperative bebeusedusedmakemakethethe could to to betweenthetwolocalitiesandavoidthepotentialforlegaldisputes,whichoccurredinsomeprevious potentialpotentialforlegallegaldispudispu for reversioncases.Suchpowerscouldincludeadditionaltaxinganddebtpowersthatareotherwise additionaladditional includeinclude taxing reservedforcities.Furthermore,otherlimitationstoexistingcountypowers,suchascertaintaxrates, otherotherlimitationslimitations existing toto existing couldbeelt evatedormadeequaltowhatwasavailabletothecity.Asawaytoeasereversioncasestha whatwhatavailableavailable equal toto waswas includelongtermfiscalobligationsforcountiesorwillaffectthecountyinsomeotherfiscalway, forfor obligations countiescounties obligations countiescouldbegrantedawaiverfromthereferendumrequirement.Inmanycases,itstandsto fromfrom grantedgrantedthe waiverwaiver a the reasonthatthelongtermdebtwouldinsomewaybebenefitingaregionratherthanjustthecounty. debtwouldwould inin termterm some Countiesalsofaceadditionalobstacleswhenenteringintovariousinterlocalagreementsthat onal additiadditiobstaclesobstacles onal containeconomicgrowthsharingprovisionsorotherlongtermfiscalobligations.Countiescannotcarry sharingsharing provisionsprovisions longtermdebtwithoutavoterreferendumorbydilutingthecertaintyoftheagreementbymaking suchrevenuesharingsubjecttoannualappropriation.Moreover,theirabilitytosharevariousrevenue streamsaspartofinterlocalagreementsisimpededbythestatutorylimitationsbywhichtheymaytax. Onewaytoencourageadditionaleconomicgrowthsharingagreementsbetweencitiesandcountiesand townsandcountiescouldbetogivecountiesthesametaxingauthorityasanycityortownforwhich theyagreetosharerevenuesforthedurationofsuchagreements. 39 CommonwealthofVirginia,CommissiononLocalGovernment.{w;¦š©·onLocalGovernmentConsolidation L“-;“·zÝ;­u|ReportDocument425.November2015.https://rga.lis.virginia.gov/Published/2015/RD425/PDF 40 Ibid. 23 Insomeregards,citieshavestruggledtostablygeneraterevenuetomeetpublicservicedemandsas aresultofthemoratoria.Meanwhile,moreurbanizedandpopulatedcountiesandthosewithlimited economicbaseshavealsobeguntoexperiencesimilarcircumstances.Inthecontextofwherecityand countyboundariesmeet,especiallywheresuburbanpovertyabutscitypoverty,theboundaries betweeneachlocalitybecomesomewhatarbitraryasitrelatestoserviceneedsforthesecommunities. Thereismoreincommonwiththesecommunities,andtheythereforecouldbeconsideredcommunities ofinterest‘astandardbywhichannexationcasesarereviewed.Nevertheless,theboundarylinethat separatesthecommunityofinterestalsoseparatestheoutcomesandopportunitiesthatthosewithin thecommunitymayexperienceorbenefit. AJLARCstudyfrom1993echoedmanysimilarpointsandofferednumeroussuggestions‘someof 41 whichareechoedinthisreport‘forwaystoaddressthesecircumstances.Thereportconcludedthat umstances.umstances. localitieswerespendingmorethanthestate;butinordertoachievegreatercommonwealthand achieveachieve greater prosperityacrossthestate,thestateshouldtakeagreaterrole.Thereportcitedregionaljailsasa TheThe role.role. report report successandsuggestedthatenvironmentalprotection,economicdevelopment,education,andother development,development, economiceconomic education, capitalintensiveeffortscouldbeotheropportunitiesforgreatersuccess. greatergreater success. Giventhatithasbeenover20yearssincetheJLARCstudywasconducted,theGeneralAssembly studystudyconducted, RCRC JLA was the shouldconsideranewevaluationofstatefundedpublicservicesandreassesstheappropriatedelivery fundedpublic and servicesservices funded re public level.Insomecases,thebestapproachmaybedifferentbasedontheregionoftheCommonwealthor differentdifferentbasedbased be onon may basedonthesizeofthepopulationevolved.Therefore,itmaybemoreappropriatefortheadjacent evolvedTherTherefore,efore, itit maymay . localitiestohavejointservicecoordinationorperhapshavethestateadministercertainservicestothe perhapsperhaps coordinationcoordinationhave oror region.Incircumstanceswheretheneedismorewidespreadataregionallevelandacitycounty need thethewidespreadwidespread isis more distinctiondoesnotex ist,otherregionalservicedeliveryoptionsmaybemoreappropriateinstead. otheronalonaldeliverydelivery iserviceservice i regreg Manylocalitiesparticipateinavarietyofjointservicedeliveryarrangements,sosuchanalysiscouldalso ofof invarietyvarietyjointservice in aa joint includeaninvestigationofbestpracticesandanyneedforamendmentstoStateCode. bestbestandand ofof practicespractices any investigationinvestigation Considermoreuniformproceduresforestablishmentofauthoritiesanddistricts uniformuniformproceduresprocedures Considerexpansionoffinancialtoolsavailabletoauthoritiesanddistricts financialfinancial Focusonregionalincentivesandflexibilitywhenconsideringnewlegislation 42 areavailableforlocalitiesto Whilenumerousoptions,suchastheJointExerciseofPowers, establishjointoperationsandservicedeliveriesatamoreefficientlevel,manyotherproceduraland structuralrequirementsmaketheprocessunpredictableorcumbersome.Severalsuchauthorities requireasuccessfulreferendumtobeestablished,othersrequireacircuitcourtorder,andmanyothers 43 simplyformbyordinanceofthegoverningbody.Fromastructuralstandpoint,veryfewsuch 41 http://jlarc.virginia.gov/pdfs/reports/Rpt150.pdf 42 §15.21301oftheCodeofVirginia. 43 CommonwealthofVirginia,CommissiononLocalGovernment.{5z­-©;·zš“ŒAuthoritiesandSpecialDistricts AvailabletoLocalGovernmentsinz©mz“zu|2009. http://www.dhcd.virginia.gov/CommissiononLocalGovernment/PDFs/Authorities.pdf 24 authoritieshavetaxingpower,andmanyothersalsohavelimitedbondingauthorityorsuchpower 44 dependsonotherentitiessuchastheCommonwealthissuessuchbonds.Furthermore,somelocal governmentfunctions,includingthoseinvolvingsignificantstateandlocalcosts,suchask12education, arenotidentifiedasservicesthatmaybedeliveredthroughajointauthorityordistrict.Whilesucha jointactionmaybepossiblethroughtheJointExerciseofPowers,amoreuniformandstreamlined approachcouldbeestablishedviastatuteinanticipationofregionaleffortstoaddresssuchaservice deliverymethod. Accordingly,theCommonwealthshouldevaluateandimplementwaystostreamlinehowJoint AuthoritiesandSpecialDistrictsareformedandoperated.Inaddition,whenreviewingthetaxcodeand introducingnewlegislation,theGeneralAssemblyshouldconsiderbillsandactsthatincentivizeand offerregulatoryflexibilitytomakeiteasierforlocalitiestocooperateataregionallevel.Significant progresshasbeenmadewiththiseffortontopicssuchaseconomicdevelopmentthroughthecreation developmentdevelopment ofGOVirginia,anditseemslikelythatotheropportunitiestoencourageregionaleffortsmayexist. regio e encouragencourag FiscalConsiderations ConsiderationsConsiderations Oftentimes,eventhoughvariousinterlocalagreementscouldbenefitlocalitiesthroughimproved interlocalinterlocalcouldcouldbenefit agreementsagreements economiesofscaleormoreefficientservicedelivery,theyareunabletoresearchandinvestigatethe delivery,delivery,theytheyunable service areare benefitsofsuchagreementsbecauseoftheinitialadministrativeorcostprohibitivebarriers.The ofoftheinitialinitial administrative the because because creationofaprogramwherebyanagencyoftheCommonwealthcouldreviewproposalsforsuch ofthethe CommonwealthCommonwealth ananagencyagency interlocalagr eementsandprovidematchinggrantstolocalitiesforamorethoroughexaminationof matchingmatching provideprovide grantsgrants toto thesepotentialarrangementscouldbeonewaytohelplocalitiesovercometheseinitialhurdles. couldcouldbebe nts oneway nts Becausetheprogramwouldrequirematchinglocalfunds,itwouldbereasonabletoassumethatsuch wouldwouldmatchingmatchinglocal requirerequire agreementswouldbepursuedwithamoreseriouscommitmentbythelocalities. pursuedpursuedwith seriousserious aa moremore Thetypesofagreementscoveredbysuchplanninggrantscouldincludeinterlocalagreementsand coveredcovered agreementsagreements transitionsunderreviewbytheCLG,fullorcontractualconsolidationofcertainlocallymandated thethe CLG,CLG, services(e.g.schooldivisions,publichealth,etc.),jointauthorities,andothercooperativeoptionsnot codifiedbutexecutablethroughspeciallegislation.Otherstates,includingMassachusetts,45 Ohio,46 and 47 NewYorkofferopportunitiesforlocalgovernmentstolookintothesemattersfromaregional perspectiveandintralocally.Massachusetts,forexample,providedabout$2millioninefficiencyand regionalizationgrantsinfiscalyear2018ontopicsincludingsharepublichealthandemergencyservices, 44 Ibid. 45 CommonwealthofMassachusetts,DepartmentofRevenue,DivisionofLocalServices,Efficiencyand Regionalizationgrantprogram.https://www.mass.gov/efficiencyregionalizationgrantprogram 46 OhioOfficeoftheStateAuditor,PerformanceAudits.https://ohioauditor.gov/performance.html 47 NewYorkDepartmentofState,DivisionofLocalGovernmentServices,LocalGovernmentEfficiencyProgram. https://www.dos.ny.gov/lg/lge/index.html 25 regionaleconomicdevelopment,schoolconsolidations,andlocalefficiencies.Thesuccessofprograms suchasthesecouldbereplicatedintheCommonwealth. Giventhegrowinganddiversifyingnationalandstateeconomy,manytraditionalrevenuesourcesat thestateandlocallevelhaveevolved.Furthermore,demandsforserviceshavealsochangedandin manycasesgrown.Asthesetwoelementshaveshifted,existingfinancialtoolsandfundingstreamsmay nolongeradequatelycollectrevenueorprovideaidatasufficientlevelfordeliveryofservicesthathave alsogrownorchangedinsomeway.Forexample,despitethegrowingservicebasedeconomy,the /š’’š“Þ;Œ·wx­existingstateandlocaloptionsalestaxdoesnotconsiderthesaleofservicestobea tangiblegoodsubjecttosuchtax.Inasimilarvein,thecommunicationsalesandusetaxmaynotmatch businessesactivityasitstandstoday.Onlinestreamingservicesthathavegrownsignificantlyoverthe lastdecadedidnotexistandwerenotanticipatedwhensuchrevenuestreamsweredeveloped. revenuerevenue Additionally,frequentrecenteffortstoalterorremovesomelocalfiscalpowerssuggeststhat locallocal fiscal somesome compromisemaybenecessarysothatlocaltaxingauthoritiesareprotectedwhilealsoensuringa authoritiesauthorities protecteprotecte areare d businessfriendlyclimate.Atleastthreestudiesexploredsomeoftheseissuesin1998and2001; ofthesethese issues somesome loredlored however,manyoftheirrecommendationshaveyettobeimplemented. implemented.implemented. bebe Moreover,variouslocalfundingstreamsatthestateandfederallevelhavechangedorbeen theandandfederal statestate reducedovertime,especiallymostrecentlyinresponsetotheGreatRecession.However,evenasthe thethe Great to responseresponse economyhasstabilized,manyofthesereductionsremaindespitegrowingneedsandprevailinglocal reductionsreductionsdespitedespite remainremain practices.Forexample,theStandardsofQuality(SOQ)capsthenumberofk12supportpositionstoone (SOQ)(SOQ) Qualitythethenumbernumber capscaps Quality forevery4.17SOQrecognizedteachers,butpreviousallocationwasbasedonprevailinglocalpractices. butbut teachers,teachers,allocation previousprevious Whilealllocalgovernmentsareaffectedbythesereductions,thosewithelevatedstresslevelsmay bybythese affectedaffectedreductions,reductions, experiencetheseandotherconsequencesmoreacutely,whichcanperp etuatedisparitiesandfiscal acutely,acutely, moremore consequencesconsequences stressamonglocalitiesandamongregions. ions.ions. amongamongreg re Also,whilethereisageneraldistinctionbetweenmostlyruralandsuburbancountiescomparedto general distinctiondistinction isis aa general moredenselysettledcities,therearemany,growingexceptionstothatruleaspreviouslydiscussed. there cities,cities, arearemany, Despitetheseconditions,manyexistinglawscontinuetoallocatepowersan dauthoritytocommunities existingexisting manymany basedontheirlegalclassificationratherthanontherealityoftheirsettlementpatterns,size,and sificationsification consequentialservicedemands.Moreover,somemoredevelopedregionsoftheCommonwealthhave theauthoritytocollectcertainregionaltaxestoaddressissuesofgreaterthanlocalsignificance,suchas transportation,thatarecriticaltotheireconomies.WhiletheotherregionsoftheCommonwealthmay havesmallereconomiescomparatively,theireconomicvitalityisnolessimportantandtheirregional economiescouldbenefitfromsimilarregionalrevenuesourcesthatcouldbeusedtoenhanceand fortifycommercestimulatinginfrastructurewithintheirregions. TheCommissionrecognizesthesensitivityoftheseissues‘manyofwhichareoutsideitspurview; however,iftherightofannexationistakenawayfromcities‘whichhasbeentrueforover30years withtheexistingtemporarymoratoria‘thenappropriateoptionsandresourcesshouldbegivento citiesandmanyothersimilarlysituatedcountiestoaddresstheirfiscalneedswhilecompensatingfor thelossofsuchasignificanttool.Furthermore,insomecases,thefundingcompromiseagreedtoasit 26 relatestothemoratoriahasnotalwaysbeenadheredto,whichsuggeststhatanewassessmentand compromisemaybenecessary.Therefore,theCommissionsuggeststhatastudyofalllocalfunding streamsandlocalfiscalpowersbeconductedrelativetolocallymandatedservicestodetermine whethersuchfundingandpowersarea dequatetomeetsuchserviceneeds,includingbasedonlocality typeandregions. Establishacriticallystressedlocalitiesfundtogrowthetaxbasesandovercomeservicedelivery challengesforfiscallystressedlocalities Considergreaterprioritizationoffiscalstressinprogramsthatprovideaidtolocalities Asinterestinlocalgovernmentfiscalstresshascontinuedevolve,moreevidenceseemstopointto theheavyfiscalburdenthatmanylocalgovernmentsface.FiscalcrisessuchaswhatoccurredintheCity suchsuch ofPetersburghighlightcommunitieswithdifficultiesprovidingadequateservicestotheircitizensand adequateadequate services thenfacednearinsolvencyandexploredlocaltransitionswhenmattersbecamemoreserious.While became mattersmatters whenwhen supplementaltemporaryfinancialandtechnicalassistancebytheCommonwealthhelpedtheCity bybytheCommonwealthCommonwealth assistanceassistance stabilize,theCitystillhadtomakeseriouscutstoitsbudgetandlayoffemployeesforcriticalpositions, budgetbudgetandandlayoffemployeesemployees includingschoolteachers.TheCommonwealthhastakenproactivemeasuresinresponsetothis takentaken proactiveproactive measures situationbyestablishingtheEarlyWarningFiscalDistressDetectionSystemmanagedbytheAuditorof DetectionDetection DistressDistressSystem usedinthesystemallowauniformprocesstoassesshowwell PublicAccounts(APA).Thevariousratios theallowallowuniform inin system the a system localgovernmentsaremanagingtheirfinancesandidentifypotentialneedsforstateassistance. andandidentifyidentify financespotentialpotential The/[Dx­FiscalStressIndexcouldalsoserveasanothermeasuretoallocateadditionalresourcesto alsoalsoanotheranother serveserveasasmeasure could could localitieswithdepressedeconomicbases.Theindexidentifiescommunitiesthatmaynotbeableto bases.bases.TheTheindexindexidentifies economiceconomic sustainefficientandadequatemandatedoperationswithoutstrainingtheirrevenuebaseswithhigher mandatedmandatedwithoutwithout operationsoperations taxes,makingsignificantcutstocriticalservices,orboth.Accordingly,theCommonwealthshould criticalcritical services, cutsto cuts to considercreatingacriticallystressedlocalitiesfund.Suchaprogramcouldaddresseconomicbaseand criticallycriticallystressedstressedlocalitieslocalitiesfund. servicedeliverychallengesexperiencedbythesecommunitiesthatcontributetotheirelevatedlevelsof dd challengeschallengesbythesethese experie ncence fiscalstress.Fromaneconomicbaseperspective,thefundcouldhelpprovidecapitalfundingfor basebase economiceconomicperspective, constructionorexpansionofinfrastructure,suchasbroadband.Thiscouldhelpstimulateandgrowlocal ofofinfrastructure,infrastructure, economiesandconsequentlygeneratemorerevenueforthelocalityandtheCommonwealth.Froma generategenerate servicedeliveryperspective,suchafundcouldaddressimportanthumanservicedeliveryneedssuchas teachershortagesinchallengedschools,communitywealthbuildingprograms,expandedworkforce developmentprograms,andotherneedsthatstrainlocalservicedemandsbuttheimprovementof whichcouldgrowlocaleconomiesovertime. Alternatively,avarietyofexistingprogramsprovideaidtolocalitiesandhelpstimulateeconomic ntandimprovemandatedservicedelivery‘bothissuesthatcontributetolocalgovernment developme fiscalstress‘soconsiderationoftheseprogramsrelativetocreatinganewprogramwillhelpassessits overallneed.Therefore,evaluationoftheseprograms,suchastheDšÝ;©“š©x­OpportunityFund,and calStressIndexcouldalsoidentifyopportunitieswhere theextenttowhichtheyconsiderthe/[DxsFis gapsrelatedtofiscalstressasafactormayexist. 27 ConsiderrestoringpreviousfundinglevelstoPlanningDistrictCommissions Evaluateotherstateprogramstoidentifyopportunitiesformoreregionalfocus Giventheregionalparadigmbywhichmanyoftheissuesaffectingthe/š’’š“Þ;Œ·wx­ communitiesexists,itwillalsotakearegionalapproach.TheCommonwealthhas21RegionalPlanning DistrictCommissions(PDCs)whosepurposeistoencourageandfacilitatelocalgovernmentcooperation inaddressing,onaregionalbasis,problemsofgreaterthanlocalsignificance.Theseorganizationshave hadasuccessfultrackrecordformeetingthismandate.Forexample,duringthe2014‘2016biennium, PDCsconductedover500studiesonissuesandproblemsofregionalsignificance,reviewednearly800 localgovernmentaidapplications,andassistedstateagenciesinthedevelopmentofsubstateplans120 times.48 Despitetheseachievements,morecouldbeaccomplishedbychannelingadditionaleffortsand channelingchanneling byby resourcesthroughthem.Forexample,theseorganizationsreachedtheirhighestfundinglevelinFY2004 theirtheir reachedreachedhighest whenstateappropriationsrangedfrom$81,274to$364,439.Theseappropriationsnowrangebetween TheseThese appropriationsappropriations $364,439.$364,439. $75,971and$151,943.WhilecircumstancessuchastheGreatRecessionplayedaroleinth edecisionto playedplayed Recession GreatGreat reducethisfundingstream,theissuesthattheyarerequiredtoaddresshavegrown.Someprime requiredrequired address toto areare examplesoftheseissueswouldincludetheincreasingopioidepidemic,transportationneeds, opioidopioidepidemic, increasingincreasing broadband,andworkforcedevelopment. AnotherpotentialwaybywhichtheCommonwealthcouldconsiderfacilitatingandincentivizing CommonwealthCommonwealthcouldcould the regionalcooperationistoensurethatitsvariousprogramsconsiderregionaleffortswhenaddressing consider itsitsvariousvarious programsprograms that that need.Thishasalreadybeenaccomplishedfromaneconomicdevelopmentperspectivethroughthe fromfrom mplishedmplished economic anan economic accoacco creationoftheGOVirginiaprogramandthroughothereffortssuchasregionaljails.However,there andthroughthroughotherother programprogram and couldbeotheropportunitiesforwhichthispolicycouldbeexploredand/orexpandedinthesectorsof forwhichwhichthisthis policycould opportunities for opportunities education,socialservices,andtransportation. andand transportation.transportation. services,services, 48 CommonwealthofVirginia,DepartmentofHousingandCommunityDevelopment.{.z;““zŒReporttothe GovernorandGeneralAssemblyonz©mz“zx­PlanningDistrictCommissionsforFiscalYears2015and u| September2016.http://www.dhcd.virginia.gov/images/clg/PDC%20Biennial%20Report%201516.pdf 28 APPENDICES APPENDICESAPPENDICES 29 AppendixA:StudyDirective AppendixAppendixStudyStudy A:Directive 30 VIRGINIAACTSOFASSEMBLY2016SESSION -- CHAPTER158 AnActtoamendandreenact§15.23201oftheCodeofVirginia,relatingtoannexation. - [S309] ApprovedMarch1,2016 BeitenactedbytheGeneralAssemblyofVirginia: 1.That§15.23201oftheCodeofVirginiaisamendedandreenactedasfollows: - §15.23201.Temporaryrestrictionsongrantingofcitycharters,filingannexat - institutionsofannexationproceedings,andcountyimmunityproceedings BeginningJanuary1,1987,andterminatingonthefirsttooccurof(i)July1 2024,or(ii)the July1nextfollowingtheexpirationofanybiennium,otherthanthe19982000,20002002,20022004, --- 20062008,20082010,20102012,20122014,and20142016,20162018,20182020,20202022,and -------- 20222024 bienniums,duringwhichtheGeneralAssemblyappropriatedfordistributi - aidintheirlawenforcementexpenditurespursuanttoArticle8(§9.1165etseq.)ofChapter1ofTitle -- 9.1anamountthatislessthanthetotalamountrequiredtobeappropriatedf 9.1anamountthatislessthanthetotalamountrequiredtobeappropriatedf9.1anamountthatislessthanthetotalamountrequiredtobeappropriatedf subsectionAof§9.1169,nocityshallfileagainstanycountyanannexationnoticewiththe - 169,nocityshallfileagainstanycountyanannexationnoticewiththe169,nocityshallfileagainstanycountyanannexationnoticewiththe CommissiononLocalGovernmentpursuantto§15.22907,andnocityshallinstituteanannexation - 2907,andnocityshallinstituteanannexation2907,andnocityshallinstituteanannexation courtactionagainstanycountyunderanyprovisionofthischapterexcepta courtactionagainstanycountyunderanyprovisionofthischapterexceptacourtactionagainstanycountyunderanyprovisionofthischapterexcepta noticebeforetheCommissiononLocalGovernmentpriortoJanuary1,1987.D noticebeforetheCommissiononLocalGovernmentpriortoJanuary1,1987.DnoticebeforetheCommissiononLocalGovernmentpriortoJanuary1,1987.D withtheexceptionofacharterforaproposedconsolidatedcity,nocitycha withtheexceptionofacharterforaproposedconsolidatedcity,nocitychawiththeexceptionofacharterforaproposedconsolidatedcity,nocitycha intoforceandnosuitornoticeshallbefiledtosecureacitycharter.Howev intoforceandnosuitornoticeshallbefiledtosecureacitycharter.Howevintoforceandnosuitornoticeshallbefiledtosecureacitycharter.Howev prohibittheinstitutionofnorrequirethestayofanannexationproceedin prohibittheinstitutionofnorrequirethestayofanannexationproceedinprohibittheinstitutionofnorrequirethestayofanannexationproceedin noticeforthepurposeofimplementinganannexationagreement,theextent noticeforthepurposeofimplementinganannexationagreement,theextentnoticeforthepurposeofimplementinganannexationagreement,theextent whichhavebeenagreeduponbyacountyandcity;norshalltheforegoingproh whichhavebeenagreeduponbyacountyandcity;norshalltheforegoingprohwhichhavebeenagreeduponbyacountyandcity;norshalltheforegoingproh requirethestayofanannexationproceedingbyacitywhich,priortoJanuar requirethestayofanannexationproceedingbyacitywhich,priortoJanuarrequirethestayofanannexationproceedingbyacitywhich,priortoJanuar proceedingbeforetheCommissiononLocalGovernmenttoreviewaproposedv proceedingbeforetheCommissiononLocalGovernmenttoreviewaproposedvproceedingbeforetheCommissiononLocalGovernmenttoreviewaproposedv pursuantto§15.23400;norshalltheforegoingprohibittheinstitutionoforrequirethesta - 3400;norshalltheforegoingprohibittheinstitutionoforrequirethesta3400;norshalltheforegoingprohibittheinstitutionoforrequirethesta annexationproceedingcommencedpursuantto§15.22907or15.23203,exceptthatnosuchproceeding -- annexationproceedingcommencedpursuantto§15.2annexationproceedingcommencedpursuantto§15.2 2907or15.2 - maybecommencedbyacityagainstanycounty,norshallanycitybeapetition maybecommencedbyacityagainstanycounty,norshallanycitybeapetitionmaybecommencedbyacityagainstanycounty,norshallanycitybeapetition proceedinginstitutedpursuantto§15.23203. - proceedinginstitutedpursuantto§15.2proceedinginstitutedpursuantto§15.2 3203.3203. - BeginningJanuary1,1988,andterminatingonthefirsttooccurof(i)July1 2024,or(ii)the BeginningJanuary1,1988,andterminatingonthefirsttooccurof(i)July1BeginningJanuary1,1988,andterminatingonthefirsttooccurof(i)July1 July1nextfollowingtheexpirationofanybiennium,otherthanthe19982000,20002002,20022004, --- July1nextfollowingtheexpirationofanybiennium,otherthanthe1998July1nextfollowingtheexpirationofanybiennium,otherthanthe1998 20062008,20082010,20102012,20122014,and20142016,20162018,20182020,20202022,and -------- 2012,20122012,20122014,and2014 2010,20102010,2010 --- - 2014,and2014 20222024 bienniums,duringwhichtheGeneralAssemblyappropriatedfordistributi - bienniums,duringwhichtheGeneralAssemblyappropriatedfordistributibienniums,duringwhichtheGeneralAssemblyappropriatedfordistributi aidintheirlawenforcementexpenditurespursuanttoArticle8(§9.1165etseq.)ofChapter1ofTitle -- enforcementexpenditurespursuanttoArticle8(§9.1enforcementexpenditurespursuanttoArticle8(§9.1 9.1anamountthatislessthanthetotalamountrequiredtobeappropriatedf 9.1anamountthatislessthanthetotalamountrequiredtobeappropriatedf9.1anamountthatislessthanthetotalamountrequiredtobeappropriatedf subsectionAof§9.1169,nocountyshallfileanoticeorpetitionpursuanttotheprovisionsofC - 169,nocountyshallfileanoticeorpetitionpursuanttotheprovisionsofC169,nocountyshallfileanoticeorpetitionpursuanttotheprovisionsofC 29(§15.22900etseq.)orChapter33(§15.23300etseq.)requestingtotalorpartialimmunityfrom -- 2900etseq.)orChapter33(§15.22900etseq.)orChapter33(§15.2 cityinitiatedannexationandfromtheincorporationofnewcitieswithinitsbo - initiatedannexationandfromtheincorporationofnewcitieswithinitsboinitiatedannexationandfromtheincorporationofnewcitieswithinitsbo foregoingshallnotprohibittheinstitutionofnorrequirethestayofanim filingofanimmunitynoticeforthepurposeofimplementinganimmunityagr andconditionsofwhichhavebeenagreeduponbyacountyandcity. 2.ThattheCommissiononLocalGovernmentbedirectedtoevaluatethestruc countiesintheCommonwealthandtheimpactofannexationuponlocalities. Commissionshallconsideralternativestothecurrentmoratoriumonannex CommissionshallissueitsfindingsandrecommendedpolicychangestotheG laterthanDecember1,2018.Duringitsevaluation,theCommissionshallco inputfromtheVirginiaMunicipalLeague,theVirginiaAssociationofCoun directlyaffectedbythecurrentannexationmoratorium.Allagenciesofth provideassistancetotheCommissionforthisevaluationuponrequest. 31 VIRGINIAACTSOFASSEMBLY2016SESSION -- CHAPTER364 AnActtoamendandreenact§15.23201oftheCodeofVirginia,relatingtoannexation. - [H945] ApprovedMarch11,2016 BeitenactedbytheGeneralAssemblyofVirginia: 1.That§15.23201oftheCodeofVirginiaisamendedandreenactedasfollows: - §15.23201.Temporaryrestrictionsongrantingofcitycharters,filingannexat - institutionsofannexationproceedings,andcountyimmunityproceedings BeginningJanuary1,1987,andterminatingonthefirsttooccurof(i)July1 2024,or(ii)the July1nextfollowingtheexpirationofanybiennium,otherthanthe19982000,20002002,20022004, --- 20062008,20082010,20102012,20122014,and20142016,20162018,20182020,20202022,and -------- 20222024 bienniums,duringwhichtheGeneralAssemblyappropriatedfordistributi - aidintheirlawenforcementexpenditurespursuanttoArticle8(§9.1165etseq.)ofChapter1ofTitle -- 9.1anamountthatislessthanthetotalamountrequiredtobeappropriatedf 9.1anamountthatislessthanthetotalamountrequiredtobeappropriatedf9.1anamountthatislessthanthetotalamountrequiredtobeappropriatedf subsectionAof§9.1169,nocityshallfileagainstanycountyanannexationnoticewiththe - 169,nocityshallfileagainstanycountyanannexationnoticewiththe169,nocityshallfileagainstanycountyanannexationnoticewiththe CommissiononLocalGovernmentpursuantto§15.22907,andnocityshallinstituteanannexation - 2907,andnocityshallinstituteanannexation2907,andnocityshallinstituteanannexation courtactionagainstanycountyunderanyprovisionofthischapterexcepta courtactionagainstanycountyunderanyprovisionofthischapterexceptacourtactionagainstanycountyunderanyprovisionofthischapterexcepta noticebeforetheCommissiononLocalGovernmentpriortoJanuary1,1987.D noticebeforetheCommissiononLocalGovernmentpriortoJanuary1,1987.DnoticebeforetheCommissiononLocalGovernmentpriortoJanuary1,1987.D withtheexceptionofacharterforaproposedconsolidatedcity,nocitycha withtheexceptionofacharterforaproposedconsolidatedcity,nocitychawiththeexceptionofacharterforaproposedconsolidatedcity,nocitycha intoforceandnosuitornoticeshallbefiledtosecureacitycharter.Howev intoforceandnosuitornoticeshallbefiledtosecureacitycharter.Howevintoforceandnosuitornoticeshallbefiledtosecureacitycharter.Howev prohibittheinstitutionofnorrequirethestayofanannexationproceedin prohibittheinstitutionofnorrequirethestayofanannexationproceedinprohibittheinstitutionofnorrequirethestayofanannexationproceedin noticeforthepurposeofimplementinganannexationagreement,theextent noticeforthepurposeofimplementinganannexationagreement,theextentnoticeforthepurposeofimplementinganannexationagreement,theextent whichhavebeenagreeduponbyacountyandcity;norshalltheforegoingproh whichhavebeenagreeduponbyacountyandcity;norshalltheforegoingprohwhichhavebeenagreeduponbyacountyandcity;norshalltheforegoingproh requirethestayofanannexationproceedingbyacitywhich,priortoJanuar requirethestayofanannexationproceedingbyacitywhich,priortoJanuarrequirethestayofanannexationproceedingbyacitywhich,priortoJanuar proceedingbeforetheCommissiononLocalGovernmenttoreviewaproposedv proceedingbeforetheCommissiononLocalGovernmenttoreviewaproposedvproceedingbeforetheCommissiononLocalGovernmenttoreviewaproposedv pursuantto§15.23400;norshalltheforegoingprohibittheinstitutionoforrequirethesta - 3400;norshalltheforegoingprohibittheinstitutionoforrequirethesta3400;norshalltheforegoingprohibittheinstitutionoforrequirethesta annexationproceedingcommencedpursuantto§15.22907or15.23203,exceptthatnosuchproceeding -- annexationproceedingcommencedpursuantto§15.2annexationproceedingcommencedpursuantto§15.2 2907or15.2 - maybecommencedbyacityagainstanycounty,norshallanycitybeapetition maybecommencedbyacityagainstanycounty,norshallanycitybeapetitionmaybecommencedbyacityagainstanycounty,norshallanycitybeapetition proceedinginstitutedpursuantto§15.23203. - proceedinginstitutedpursuantto§15.2proceedinginstitutedpursuantto§15.2 3203.3203. - BeginningJanuary1,1988,andterminatingonthefirsttooccurof(i)July1 2024,or(ii)the BeginningJanuary1,1988,andterminatingonthefirsttooccurof(i)July1BeginningJanuary1,1988,andterminatingonthefirsttooccurof(i)July1 July1nextfollowingtheexpirationofanybiennium,otherthanthe19982000,20002002,20022004, --- July1nextfollowingtheexpirationofanybiennium,otherthanthe1998July1nextfollowingtheexpirationofanybiennium,otherthanthe1998 20062008,20082010,20102012,20122014,and20142016,20162018,20182020,20202022,and -------- 2012,20122012,20122014,and2014 2010,20102010,2010 --- - 2014,and2014 20222024 bienniums,duringwhichtheGeneralAssemblyappropriatedfordistributi - bienniums,duringwhichtheGeneralAssemblyappropriatedfordistributibienniums,duringwhichtheGeneralAssemblyappropriatedfordistributi aidintheirlawenforcementexpenditurespursuanttoArticle8(§9.1165etseq.)ofChapter1ofTitle -- enforcementexpenditurespursuanttoArticle8(§9.1enforcementexpenditurespursuanttoArticle8(§9.1 9.1anamountthatislessthanthetotalamountrequiredtobeappropriatedf 9.1anamountthatislessthanthetotalamountrequiredtobeappropriatedf9.1anamountthatislessthanthetotalamountrequiredtobeappropriatedf subsectionAof§9.1169,nocountyshallfileanoticeorpetitionpursuanttotheprovisionsofC - 169,nocountyshallfileanoticeorpetitionpursuanttotheprovisionsofC169,nocountyshallfileanoticeorpetitionpursuanttotheprovisionsofC 29(§15.22900etseq.)orChapter33(§15.23300etseq.)requestingtotalorpartialimmunityfrom -- 2900etseq.)orChapter33(§15.22900etseq.)orChapter33(§15.2 cityinitiatedannexationandfromtheincorporationofnewcitieswithinitsbo - initiatedannexationandfromtheincorporationofnewcitieswithinitsboinitiatedannexationandfromtheincorporationofnewcitieswithinitsbo foregoingshallnotprohibittheinstitutionofnorrequirethestayofanim filingofanimmunitynoticeforthepurposeofimplementinganimmunityagr andconditionsofwhichhavebeenagreeduponbyacountyandcity. 2.ThattheCommissiononLocalGovernmentbedirectedtoevaluatethestruc countiesintheCommonwealthandtheimpactofannexationuponlocalities. Commissionshallconsideralternativestothecurrentmoratoriumonannex CommissionshallissueitsfindingsandrecommendedpolicychangestotheG laterthanDecember1,2018.Duringitsevaluation,theCommissionshallco inputfromtheVirginiaMunicipalLeague,theVirginiaAssociationofCoun directlyaffectedbythecurrentannexationmoratorium.Allagenciesofth provideassistancetotheCommissionforthisevaluationuponrequest. 32 AppendixB:InitialPublicComments InitialInitialPublicPublic CommentsComments B: 33 STATEMENT TO COMMISSIONON LOCAL GOVERNMENT STAUNTON, VIRGINIA September 13, 2016 Mr. Chairman, members of the Commission: I am Bill Robertson, Chairman of the Board of Supervisors of Pri have been a member of the Board of Supervisors since 2004. PRINCE GEORGE Prince George County is located in south central Virginia adjace Hopewell and Petersburg as well as a number of other cities and counties (Map 1). The County is comprised of 282 square miles with a currentestimatedpopulation of 37,862. Since the Civil War, over 23.65 square miles have been taken from Prince Georgeas the result of the Prince GeorgePrince George incorporation of Hopewell as a city and numerous annexations sin incorporation of Hopewell as a city and numerous annexations sinincorporation of Hopewell as a city and numerous annexations sin Hopewell. The County is governed by a five-member Board of Supervisors elected from two member Board of Supervisors elected from two member Board of Supervisors elected from two elections districts. Prince George itself, provides most servicesthat you would expect to see in servicesservices that you would expect to see in that you would expect to see in most most cities. The County has recently received a number of upgrades in its . The County has recently received a number of upgrades in its . The County has recently received a number of upgrades in its rated as a AA+locality.For the last 12 years, the County has received the GFOA Award for years, the County has received the GFOA Award for years, the County has received the GFOA Award for Excellence in government accounting. ANNEXATION ANNEXATIONANNEXATION A short look at the history of annexation of Prince George County provides a perfect case of of history of annexation history of annexation Prince George County provid study in why city annexation of adjacent counties is an archaic, outdated proc ity annexation of adjacent counties is an archaic, outdated procity annexation of adjacent counties is an archaic, outdated proc nothing and surprisingly; actually can cause harm to the annexing cityin addition to the harm actuallyactuallycause harmcause harm can actually can actually that it inflicts on counties. The annexation process also harms the State as a whole because it that it inflicts on counties. The annexation prothat it inflicts on counties. The annexation pro destabilizes citizens’ expectations and complicates long-term investment decisions by destabilizes citizens’ expectations and destabilizes citizens’ expectations and complicates businesses. 1971ANNEXATION 1971 In the last successful annexation of Prince George by Petersburg in 1971,Petersburg successful annexation of Prince George by Petersburg in 197successful annexation of Prince George by Petersburg in 197 obtained over nine (9)square miles of the County, in part because the City arguedthat it was better prepared to provide municipal-type services than Prince George and that the Cityneeded more land for expected new development. The annexation also str of its commercial tax base. 1985 ANNEXATION Fast forward just 14years, to1985 and Petersburg was back at the tableagainseeking more land from Prince George. This time the City of Hopewellalsojoined the fray to try to pick off commercial areas of Prince George, a city that already hadhuge amounts of taxable industry within its borders. But this time, after five years of expensive and disruptive litigation, the results were different.Virginia courts, including the Supreme Court, unanimously ruled citieshad not shown that annexation would benefit theircities or was necessary to provide effective governmentalservices to Prince George residents. 34 IMPACTS OF ANNEXATION But even after winning and with no change in Prince George’s boundaries, the annexation litigation touched off decades of negative impact on regional rehips.These strained relationshipsslowed down regional progress and eroded business confidence in the region. The level of local hostility was so high that the normally very conservative voters in Prince George voted 4,375 to 270 to treat Prince George as a city for the purpose of issuing debtthereby eliminating the referendum requirementfor debt issuance. This was a remarkableresponse from avery conservative electorateto the threat of annexation. And for yearsafter the litigation, governmental services in the County had to be shaped in ways to make sure that Prince George would be in a position to defend itself against any future annex CITY GOVERNANCE Nor does just adding acreage to cities cure political conflict wincity councils or cure governance problems within cities. As an example, much of the undeveloped acreage a within cities. As an example, much of the undeveloped acreage awithin cities. As an example, much of the undeveloped acreage a from Prince George in 1971was still undeveloped by the time of the 1985 annexation; a poin was still undeveloped by the time of the 1985 annexation; a poinwas still undeveloped by the time of the 1985 annexation; a poin dwelt upon by the court when rejecting Petersburg’s annexation pAndI might add this dwelt upon by the court when rejecting Petersburg’s annexation pdwelt upon by the court when rejecting Petersburg’s annexation p land is still mostly vacant today. Andalthough Prince George has thrived during the moratorium although Prince George has thrived during the moratorium although Prince George has thrived during the moratorium period, Petersburg continues to struggle with internal governancAlsoin 1985the U. S. period, Petersburg continues to struggle with internal governancperiod, Petersburg continues to struggle with internal governancAlso Department of Defenseweighed in on a local issue bystrongly opposingPetersburg’s attempted ngly opposngly oppos weighed in on a local issue byweighed in on a local issue byingingPetersburg’s attempted strostro annexation because of the presenceof Fort Lee in Prince George. Now with the annexation of Fort Lee in Prince George. Now with the annexation of Fort Lee in Prince George. Now with the annexation moratorium in place for a number of years, I feel we –in the Tri-Cities area, have moved beyond in the Triin the Tri I feel we Cities area ––- the destructive, blunt instrument of annexation. the destructive, blunt instrument of annexation. the destructive, blunt instrument of annexation. EQUALIZATION OF POWERS EQUALIZATION OF POWERSEQUALIZATION OF POWERS Significantly, during the annexation moratorium, the powers of cities and counties have annexationannexation moratorium moratorium been largely equalized by the General Assembly. There is virtuanow that a city can been largely equalized by the General Assembly. There is virtuabeen largely equalized by the General Assembly. There is virtua dothat a county cannot do. Countiescan now use variedapproaches to providing services and that a county cannot do. Countiethat a county cannot do. Countie scan can now use now use s can easily differentiate between developed and undeveloped areas can easily differentiate between developed and undeveloped areascan easily differentiate between developed and undeveloped areas needs. REGIONAL COOPERATION REGIONAL COOPERATIONREGIONAL COOPERATION Since the last annexation,the General Assembly’semphasis has been on incentivizing Since the last annexationSince the last annexation regional cooperation and the joint provisions of services. For example, in today’s positive the the joint provisions of services. For example, in today’s positive joint provisions of services. For example, in today’s positive moratorium environment, Prince George participates with many other jurisdic regional services in such areas as: 1.Community Corrections - probation/drug court; 2.Libraries (1 city & 2 counties); 3.Economic development (3 cities & 5 counties); 4.Regional jail (3 cities & 3 counties); 5.Vocational high school (3 counties); 6.Sewer, water and waste authorities(2 cities & 3 counties); 7.Police and fire mutual aidagreements(all adjoining localities –we are first responders in certain areas of Hopewell [Fire]); 8.Workforce Investment Board (4 cities & 5 counties). Localities can only participate in these positive relationships, partnerships or joint ventures when they are not threatened by annexation. 35 MOBILITY OF CITIZENS Much else has changed in society sincethe 1971 annexation of Prince George as well. A notable change is theincreasedmobility of citizens who will not be constrained by artificial political boundaries caused by annexation that run roughshod ove where they want to live. If citizens are unhappy about being involuntarily switchedto a different locality, they will vote with their feet by moving. IN CONCLUSION For all these reasons we are asking the Commission to recommend the continuation of the current moratorium on city-initiated annexations. All of the demonstrated negative impacts of annexation are not just conjecture or guesses. These bad outcom years by the reality of governmental relations in the Tri-Cities area. Annexation is an antiquated system that has no relevance todayand opening up the possibilities of annexation makes no and opening up the possibilities of annexation makes no and opening up the possibilities of annexation makes no sense for Virginia in the future. Thank you for your time. Respectfully submitted, Respectfully submitted,Respectfully submitted, William A. Robertson, Jr., Chairman William A. Robertson, Jr., Chairman William A. Robertson, Jr., Chairman Prince George County Board of Supervisors Prince George County Board of Supervisors Prince George County Board of Supervisors 36 CV: OMMONWEALTH OF IRGINIA Commission on Local Government,Annexation Moratorium Study Comments from the City of Martinsville ________________________________________________________________ The annexation moratorium, and the special-legislation immunity certain counties have from annexation, has locked local government into the 1980s. Since that time, massive changes in population and demographics, industry and economy, and governmen Virginia, but the inabilityof cities to grow through annexation ignores all of this, and forces to grow through annexation ignores all of this, and forces to grow through annexation ignores all of this, and forces st cities to address 21centuryissues within a footprint which is now almost four decades out of footprint which is now almost four decades out of footprint which is now almost four decades out of date. The annexation moratorium was originally intended to be a short-term solution to the antagonism to be a short- to be a short-olution to the antagonism olution to the antagonism term sterm s inherent in growth scenariosarising between independent and separate cities and counties. I arising between independent and separate cities and counties. Iarising between independent and separate cities and counties. I was anticipated that a comprehensive, rather than stop-gap, solution to local government was anticipated that a comprehensive, rather than stop, solution to local gov, solution to local gov gapgap - was anticipated that a comprehensive, rather than stop structure would be developed, but over 35 years later this has yet to occur. structure would be developed, but over 35 yearstructure would be developed, but over 35 years later this has yet to s later this has yet to Theconcept of cities completely independent from counties, with the concept of cities completely independent from counties, with theconcept of cities completely independent from counties, with the thth ththth a zero-sum game, is rooted in the 18 and 19 centuries. Virginia is the only state in the Union -sum game, is rooted in the 18-sum game, is rooted in the 18 and 19 and 19 centuries. Virginia is the only centuries. Virginia is the only which still follows this systemof local government, and it puts the Commonwealth at a locallocal of of government, and it puts the Commonwealth government, and it puts the Commonwealth system competitive disadvantage against all of the 49 other states. The annexatio disadvantage against all of the 49 other states. The annexatio disadvantage against all of the 49 other states. The annexatio one symptom of this antiquated system. Virginia should adopt comprehensive reform in its uated uated iq. Virginia should adopt comprehensive iq systemsystem . Virginia should adopt comprehensive one symptom of this antone symptom of this ant system of local government, to conform to the structure of the rest of America.It is imperative of local government, to conform to the structure of local government, to conform to the structure that the Commonwealth address the urgent need to bring local gov that the Commonwealth address the urgent need to bring local govthat the Commonwealth address the urgent need to bring local gov modern age. It is essential that reform actually occur through the passage of legislation, and that It is essential that It is essential that reform actually occur through the pasreform actually occur through the pas such reform occur quickly. Merely conducting a study, or formin such reform occur quickly. Merely conducting a study, or forminsuch reform occur quickly. Merely conducting a study, or formin make recommendations which are then shelved, will do nothing to challenges facing Virginia’s outdated local government structure Under the current structure, independent cities are landlocked. With changes in the economy shifting manufacturing out of the country, or in some cases simp manufacturing and technology occurs, many cities experience financial stress as costs to provide city services escalates while revenue to support those services Coupled with unfunded mandates, the state consistently underfund obligations and responsibilities (599 funding for example), and the state reaching into local government coffers to address state budget shortfalls, citiesare forced to continually raise taxes and fees, cut services, or examine reversion scenarios to surviv clear division between how independent cities and counties funct 38 Efforts should be placed on much higher priority issues in our c economic development, and employment opportunities for example, with taxpayer’s money to stretch already meager resources year a through another budget season. Specifically: 1.The Commonwealthshould immediately adopt financial incentives, similar to those offered in the Bedford City/County reversion, to encourage conso systems in the bottom quartile of the LCI, or which are experiencing declining enrollment in excess of 5% per annum. 2.The Commonwealth should consider additional financial incentives The Commonwealth should consider additional financial incentivesThe Commonwealth should consider additional financial incentives consolidation of duplicative departments in contiguous localitiesuch as social consolidation of duplicative departments in contiguous localitieconsolidation of duplicative departments in contiguous localitie services, parks and recreations, and public safety. Consolidati services, parks and recreations, and public safety. Consolidatiservices, parks and recreations, and public safety. Consolidati constitutional offices should also be made an easier option for localities. should also be made an easier option for should also be made an easier option for localities localities 3.The Commonwealth should consider conversion of the system of local government to should consider conversion of the system of local government to should consider conversion of the system of local government to that of the county as the preeminent unit of local government, a that of the county as the preeminent unit of local government, athat of the county as the preeminent unit of local government, a concept of completely independent cities. Such a system (North Carolina being an independent cities. Such a independent cities. Such a system (North Carolina being an system (North Carolina being an example) would dramatically reducethe adversarial, zero-sum nature of annexation dramatically reducethe adversarial, zerothe adversarial, zero between counties and cities, would create enhanced opportunities for economic , would create enhanced opportunities for economic , would create enhanced opportunities for economic development, and would enable greater economies of scale in the development, and would enable greater economies of scale in the development, and would enable greater economies of scale in the services. 4.The Commonwealth must fulfill the commitment it made to localiti The Commonwealth must fulfill the commitment it made to localitiThe Commonwealth must fulfill the commitment it made to localiti annexation moratorium was originally imposed by fully funding its commitment to local annexation moratorium was annexation moratorium was originally imposed by fully funding its commitment to local originally imposed by fully funding its commitment to local public safety in the HB 599 formula. The Commonwealth should incHB 599 public safety in the HB 599 formula. The Commonwealth should incpublic safety in the HB 599 formula. The Commonwealth should inc funding for cities to a higher rate to provide more support of P funding for cities to a higher rate to provide more support of Pfunding for cities to a higher rate to provide more support of P Sherriff’s criminal operations in counties. If HB 599 is not fully honored or increased, Sherriff’s criminal operations Sherriff’s criminal operations then the annexation moratorium should be repealed. 39 AppendixC:PublicCommentsonDraftReport PublicDraftDraft CommentsComments onon 40 (insertappendixChere) 41 AppendixD:VirginiaLocalGovernmentBoundaryMapsTimeSeries BoundaryBoundary GovernmentGovernment 42 AppendixE:PovertybyCityandCounty:19602015 byandand CityCity County:County: Poverty 52 AppendixF:LocalTaxingandSelectedFunctionalAuthoritySummary andSelectedSelectedFunctionalFunctional 60 AppendixG:AnalysisofStateandLocalCostofMandatedServices andandLocalLocal StateCostCost 69 AppendixH:AnnexationImmunityAnalysis AnnexationAnnexationImmunityImmunity 78 M E M O R A N D U M To: Members of the Board of Supervisors From: Ann Phillips, Deputy Clerk Date: July 20, 2018 Re: Karen Beck-Herzog, Site Manager of Cedar Creek and Belle Grove Historical Park Karen Beck-Herzog, is the Site Manager of Cedar Creek and Belle Grove National Historical Park in Middletown. Ms. Beck-Herzog has worked for the National Park Service (NPS) for 20 years. She has held administrative positions at Grand Canyon National Park before moving to the Comptrollers Office in Washington, DC, where she was a project two budget formulation systems used by the NPS. Ms. Beck-Herzog transferred to Shenandoah National Park as the Management Assistant and Public Affairs Officer where she worked for 13 yearson such issues as partnerships, external and community relations, lands, and media relations. Prior to joining the National Park Service, Ms. Beck-Herzog spent four years working at an institutional investment company outside of Philadelphia, inc manager of client services. Ms. Beck-Herzog is a native of New Jersey and graduated from Bucknell University with a B.A. in both International Relations and Economics. She now resides in Culpeper County with her two children and her husband, who is th Management at Shenandoah. REZONING APPLICATION #05-17 O-N MINERALS/dba CARMEUSE LIME & STONE Staff Report for the Board of Supervisors Prepared: July 17,2018 ReviewedAction Planning Commission: Planning Commission: Board of Supervisors: Board of Supervisors: Board of Supervisors: Board of Supervisors: Board of Supervisors: PROPOSAL: LOCATION: EXECUTIVE SUMMARY & CONCLUSION FOR THE 07/25/18 BOARD OF SUPERVISORS MEETING: Proffer Introduction Revisions to Proffer 2.2 o o o o o o o New Proffer 2.4 Revision to Proffer 5.1 Revision to Proffer 7.1 Revision to Proffer 9.1: Revision to Proffer 12.1 Revisions to Proffer 14.2 ReviewedAction Planning Commission: Planning Commission: Board of Supervisors: Board of Supervisors: Board of Supervisors: Board of Supervisors: Board of Supervisors: PROPOSAL: MAGISTERIAL DISTRICT: PROPERTYID NUMBERS: PROPERTY ZONING PRESENT USE: ADJOINING PROPERTY ZONING & PRESENT USE: PROPOSED USES: REVIEW EVALUATIONS: Planning & Zoning: 1)Site History: 2)Comprehensive Plan: The 2035 Comprehensive Plan is the guide for the future growth oCounty. Land Use Transportation and Access See proffer 2.1 3)Historic: 4)Proffer StatementDated June 13, 2005; revised and approved May 28, 2008: Proffer Introduction Revisions to Proffer 2.2 o o o o o o o New Proffer 2.4 Revision to Proffer 5.1 Revision to Proffer 7.1 Revision to Proffer 9.1: Revision to Proffer 12.1 Revisions to Proffer 14.2 PLANNING COMMISSION SUMMARY AND ACTION FROM THE 11/15/17 MEETING PLANNING COMMISSION SUMMARY AND ACTION FROM THE 02/21/18MEETING: BOARD OF SUPERVIORS SUMMARY AND ACTION FROM THE 03/14/18 MEETING BOARD OF SUPERVIORS SUMMARY AND ACTION FROM THE 04/25/18 MEETING: BOARD OF SUPERVIORS SUMMARY AND ACTION FROM THE 05/23/18 MEETING: BOARD OF SUPERVIORS SUMMARY AND ACTION FROM THE 06/13/18 MEETING: ST 627 REZ # 05 - 17 O-N Minerals (Chemstone) Co. PINs: ST ST 627 83 - A - 109, 90 - A - 23 759 ST 625 Rezoning from EM to EM Zoning Map ST 622 ST REZ #05-17 633 83 A 109 ST 627 ST 625 REZ #05-17 83 A 109 83 A 109 ST 627 ST ST 625 T-627 ST REZ #05-17 ST 757 842 Middletown 90 A 23 ST 624 ST 625 SHENANDOAH ST ST COUNTY 624 627 VIRGINIA ST 624 § ¨¦ 81 § ¨¦ 01 81 ST 11 ST 842 727 Applications Sewer and Water Service Area Parcels B1 (Neighborhood Business District) B2 (General Business District) B3 (Industrial Transition District) EM (Extractive Manufacturing District) § ¨¦ WARREN 81 HE (Higher Education District) COUNTY M1 (Light Industrial District) REZ # 05 - 17 Note: M2 (Industrial General District) Frederick County Dept of O-N Minerals MH1 (Mobile Home Community District) Planning & Development I MS (Medical Support District) (Chemstone) Co. 107 N Kent St Suite 202 OM (Office - Manufacturing Park) PINs: Winchester, VA 22601 R4 (Residential Planned Community District) 83 - A - 109, 90 - A - 23 540 - 665 - 5651 Rezoning from EM to EM R5 (Residential Recreational Community District) Map Created: October 18, 2017 Zoning Map RA (Rural Areas District) Staff: cperkins RP (Residential Performance District) 01,6003,2006,400Feet ST 627 REZ # 05 - 17 O-N Minerals (Chemstone) Co. PINs: ST ST 627 83 - A - 109, 90 - A - 23 759 ST 625 Rezoning from EM to EM Location Map ST 622 ST REZ #05-17 633 83 A 109 ST 627 ST 625 REZ #05-17 83 A 109 83 A 109 ST 627 ST ST 625 T-627 ST REZ #05-17 ST 757 842 Middletown 90 A 23 ST 624 ST 625 SHENANDOAH ST ST COUNTY 624 627 VIRGINIA ST 624 § ¨¦ 81 § ¨¦ 01 81 ST 11 ST 842 727 § ¨¦ WARREN 81 COUNTY REZ # 05 - 17 Note: Frederick County Dept of O-N Minerals Planning & Development I (Chemstone) Co. 107 N Kent St Suite 202 PINs: Winchester, VA 22601 83 - A - 109, 90 - A - 23 540 - 665 - 5651 Rezoning from EM to EM Applications Map Created: October 18, 2017 Location Map Sewer and Water Service Area Staff: cperkins Parcels 01,6003,2006,400Feet ST ST REZ # 05 - 17 638 622 O-N Minerals (Chemstone) Co. PINs:ST 627 ST 83 - A - 109, 90 - A - 23 ST 625 759 Rezoning from EM to EM Long Range Land Use Map ST 622 REZ #05-17 ST 633 83 A 109 ST 627 ST 625 REZ #05-17 83 A 109 83 A 109 ST 627 Applications ST ST Sewer and Water Service Area 625 T-627 ST ST REZ #05-17 Parcels 842 757 ST 90 A 23 Middletown Long Range Land Use 624 Residential SHENANDOAH ST 625 COUNTY Neighborhood Village ST VIRGINIA 624 ST Urban Center 627 Mobile Home Community ST 624 § ¨¦ Business 81 § ¨¦ 01 Highway Commercial 81 ST 11 Mixed-Use ST 842 727 Mixed Use Commercial/Office Mixed Use Industrial/Office Industrial Warehouse Heavy Industrial Extractive Mining Commercial Rec Rural Community Center Fire & Rescue Sensitive Natural Areas Institutional WARREN Planned Unit Development COUNTY VIRGINIA Park Recreation School Employment § ¨¦ 81 Airport Support Area B2 / B3 REZ # 05 - 17 Note: Residential, 4 u/a Frederick County Dept of O-N Minerals High-Density Residential, 6 u/a Planning & Development I High-Density Residential, 12-16 u/a (Chemstone) Co. 107 N Kent St Suite 202 Rural Area PINs: Winchester, VA 22601 Interstate Buffer 83 - A - 109, 90 - A - 23 540 - 665 - 5651 Rezoning from EM to EM Landfill Support Area Map Created: October 18, 2017 Long Range Land Use Map Natural Resources & Recreation Staff: cperkins Environmental & Recreational Resources 02,0004,0008,000Feet FIRST AMENDMENT TO PROFFER STATEMENT (amendment dated July __, 2018) Revisions to Proffer2.2 New Proffer 2.4 Revision to Proffer5.1 Revision to Proffer7.1 Revision to Proffer 9.1: Revision to Proffer 12.1 Revisions to Proffer 14.2 ORDINANCE Action: WHEREAS REZONING#05-17, , WHEREAS WHEREAS -2- WHEREAS, WHEREAS, WHEREAS, WHEREAS, WHEREAS NOW, THEREFORE, BE IT ORDAINED A COPY ATTEST Amended Condition7: The hours of operation maybe 24-hours. Following thispublic hearing, a decisionregarding this Conditional Use Permit application by the Board of Supervisors would be appropriate. The Applicant should be prepared to adequately address all concerns raised by the Board of Supervisors. This report is prepared by the Frederick County Planning Staff to provide information to the Planning Commission and the Board of Supervisors to assist them in making a decision on this application. It may also be useful to others interested in this zoning matter. Condition 7ofthe CUPto: The hours of operation maybe 24-hours. Amended Condition7: The hours of operation maybe 24-hours. Following thispublic hearing, a decisionregarding this Conditional Use Permit application by the Board of Supervisors would be appropriate. The Applicant should be prepared to adequately address all concerns raised by theBoard of Supervisors. 210 CUP # 07 - 18 HOGUE 231 CREEK LN HOGUE CREEK LN Winchester 101, LLC PIN:4876 NORTHWESTERN 40 - A - 66D PIKE 176 Convenience Store HOGUE CREEK LN Zoning Map 149 HOGUE CREEK LN 211 DEVLAND DR 148 HOGUE CREEK LN 189 DEVLAND DR CUP #07-18 40 A 66D 4827 NORTHWESTERN PIKE 4789 NORTHWESTERN PIKE 4722 NORTHWESTERN 4743 PIKE NORTHWESTERN PIKE 4769 NORTHWESTERN PIKE 4771 NORTHWESTERN PIKE 01 4747 50 4765 NORTHWESTERN NORTHWESTERN PIKE PIKE 159 4729 Applications DEVLAND DR NORTHWESTERN Parcels PIKE Building Footprints B1 (Neighborhood Business District) 267 B2 (General Business District) 01 50 MOUNT 267 B3 (Industrial Transition District) OLIVE RD MOUNT EM (Extractive Manufacturing District) OLIVE RD HE (Higher Education District) M1 (Light Industrial District) Note: M2 (Industrial General District) CUP # 07 - 18 Frederick County Dept of MH1 (Mobile Home Community District) Winchester 101, LLC Planning & Development I MS (Medical Support District) 107 N Kent St PIN: Suite 202 OM (Office - Manufacturing Park) 40 - A - 66D Winchester, VA 22601 R4 (Residential Planned Community District) Convenience Store 540 - 665 - 5651 R5 (Residential Recreational Community District) Zoning Map Map Created: April 30, 2018 RA (Rural Areas District) Staff: mcheran RP (Residential Performance District) 0105210420Feet 210 CUP # 07 - 18 HOGUE 231 CREEK LN HOGUE CREEK LN Winchester 101, LLC PIN:4876 NORTHWESTERN 40 - A - 66D PIKE 176 Convenience Store HOGUE CREEK LN Location Map 149 HOGUE CREEK LN 211 DEVLAND DR 148 HOGUE CREEK LN 189 DEVLAND DR CUP #07-18 40 A 66D 4827 NORTHWESTERN PIKE 4789 NORTHWESTERN PIKE 4722 NORTHWESTERN 4743 PIKE NORTHWESTERN PIKE 4769 NORTHWESTERN PIKE 4771 NORTHWESTERN PIKE 01 4747 50 4765 NORTHWESTERN NORTHWESTERN PIKE PIKE 159 4729 DEVLAND DR NORTHWESTERN PIKE 267 01 50 MOUNT 267 OLIVE RD MOUNT OLIVE RD Note: CUP # 07 - 18 Frederick County Dept of Winchester 101, LLC Planning & Development I 107 N Kent St PIN: Suite 202 40 - A - 66D Winchester, VA 22601 Convenience Store 540 - 665 - 5651 Applications Location Map Map Created: April 30, 2018 Parcels Staff: mcheran Building Footprints 0105210420Feet