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Memo_BDAS_Report_Recommendation_10-01-12_WorksessionCOUNTY of FREDERICK Department of Planning and Development MEMORANDUM 540/665 - FAX: 540/665-6395 TO: Board of Supervisors Planning Commission Business Development Advancement Study (BDAS) Committee FROM: Eric R. Lawrence, AICP, Planning Director, . SUBJECT: Work session — Business Development Advancement Study Report and Recommendation DATE: September 24, 2012 There will be a Board of Supervisors work session on Monday, October 1, 2012 at 12:00 PM in the Board Meeting Room. The agenda item is the BDAS Report and Recommendation. Lunch will be provided. This past February, the Chairman of the Planning Commission established the Business Development Advancement Study (BDAS) Committee and tasked them to take the lead role in evaluating improved business development opportunities in the County, essentially implementing the Comprehensive Plan through business development. The Committee was structured to include representation from the Board of Supervisors,'Planning Commission, Frederick County Sanitation Authority, and Winchester - Frederick County Economic Development Commission. Shortly after convening for its first meeting, the BDAS Committee adopted its Mission Statement: "To forward to the Planning Commission and Board of Supervisors a recommendation of priority business areas based on the evaluation of all information and infrastructure funding programs readily available, prioritization of planned industrial sites, advancement of preparations to accommodate shovel -ready sites, and providing economic development interests better choices in competitive locations." On July 12, 2012, the BDAS Committee concluded their study and endorsed their report and recommendation titled "A New Strategy: Advancing the Comprehensive Plan from Vision to Shovel -Ready Business Development Sites ". This report and recommendation are now 107 North Kent Street, Suite 202 • Winchester, Virginia 22601 -5000 Page 2 Board of Supervisors October 1, 2012 Work session - BDAS Report and Recommendation September 24, 2012 forwarded to the Planning Commission and Board of Supervisors for consideration, and will be discussed at a work session. The report and recommendations have been represented to various agencies /committees for preliminary comment. All comments heard during these presentations have been captured and will be shared at the work session. Attached is the BDAS Committee's report and recommendation, as well as the report's appendixes. An Executive Summary is located on pages 3 -5. Please contact staff with questions. Thank you. ERL /bad cc: Business Development Advancement Study Committee Attachments: BDAS Report. A New Strategy Appendix. Financing Tools For Promoting Business Development Appendix. Business Development — Office and Industrial Appendix. Achieving Fiscal Balance Through Land Use Planning Appendix. Cost Benefit Analysis BUSINESS DEVELOPMENT ADVANCEMENT STUDY 'i -i A New Strategy: Advancing the Comprehensive Plan from Vision to Shovel -Ready Business Development Sites Business Development Advancement Study (BDAS) Committee Recommendation July 12, 2012 Business development plays an important role in our local economy through employment opportunities and tax contributions. Efforts to advance its investment through welcoming and accommodating new construction would enhance our community's competiveness. The Frederick County 2030 Comprehensive Plan identifies areas for future business development, yet without the appropriate site zoning and infrastructure those future business development sites may not be deemed shovel -ready and capture prospective business investment. Following three months of research, presentations, discussions, and evaluations, the Business Development Advancement Study (BDAS) Committee offered their Preliminary Thoughts regarding Frederick County's planned business development areas. The Committee finalized their research and on July 12, 2012 forwarded a recommendation to the Frederick County Planning Commission and the Frederick County Board of Supervisors. This recommendation is included in the Business Development Advancement Study Report & Recommendation. July 12, 2012 Executive Summary BDAS Committee Business Development Defined Business Development Advancement Study Report & Recommendation Page 3 6 6 Issues Prompting Business Development Advancement Study 6 2030 Comprehensive Plan 10 Evaluation for Site Shovel- Readiness 13 BDAS Committee's Preliminary Thoughts 16 Cost — Benefit Analysis 18 BDAS Recommendation 20 Appendix Financing Tools for Promoting Business Development 2030 Comprehensive Plan - Business Development - Office and Industrial 2030 Comprehensive Plan — Achieving Fiscal Balance Through Land Use Planning Cost Benefit Analysis background Frederick County Planning Commission's Business Development Advancement Study Committee Page 2 of 23 July 12, 2012 Business Development Advancement Study Report & Recommendation Executive Summary Business investment within Frederick County is essential to our quality of life. The investment offers quality high wage employment opportunities for our residents. The investment offers stability to the workforce. The investment provides tax revenue to support the quality county services that meet our community's demand for a high quality of life. Frederick County is well positioned geographically to capture future business development. The community could better capitalize on its geographic location by zoning properties for business development and securing funds to address associated infrastructure improvements. In order to harness the benefits of business development, it is essential to have quality sites available for business to utilize. The BDAS has identified seven key business development areas reflective of the 2030 Comprehensive Plan's business development land use designation and goals, as well as ease in terms of facilitating transportation and water and sewer infrastructure improvements. The BDAS recommends that the County undertake the following initiatives which collectively will enhance the community's advancement of business development within the targeted business development areas identified in this report. Business Development Initiatives C Secure zoned and shovel -ready sites • Identify and prioritize key areas /sites • Encourage property owner initiated rezoning within prioritized areas • Utilize staff expertise to analyze sites and provide comment for rezoning applications o Waive rezoning application fee and detailed Impact Analysis (including TIA Transportation Impact Analysis ) if proffer statement adequately addresses mitigation of impacts e Establish public - private agreements to enable the Economic Development Commission's (EDC) marketing of key business development sites o Owner agreed upon sales price that can be marketed to prospective targeted business users Utilize independent appraisal that is updated every 3 years o Establish a pre- determined time frame to market property 10 years for target areas that are envisioned to development in the near future 20 years for target areas that are envisioned to development in the long term Frederick County Planning Commission's Business Development Advancement Study Committee Page 3 of 23 July 12, 2012 Business Development Advancement Study Report & Recommendation • Annually refund real estate land use tax deferment for business development sites o Calculate deferment : Land Use Tax Assessment value minus new Real Estate Assessment after rezoning Utilize a Performance Agreement between property owner and Industrial Development Authority (IDA) • Performance measures will include: proper zoning, executed sales price agreement, documented effort as a willing seller for EDC clients • Do not include Rollback • Deferment refund would continue until site is developed Perform preliminary site analysis for large tracts o Conduct wetlands and historic reviews in advance of site development o Design and construct regional stormwater management facilities per new state code • Fastrack Development Review Process for targeted businesses • Establish a coordinated review agency effort to enable targeted businesses to receive prompt development reviews. • Allow concurrent development application reviews • Assure that review agencies will provide development proposal review comments within set time frames all in an effort to promptly secure development review approvals • Development Application Review and agency review response time • Rezoning — 10 days for review agency comment; then 45 days for public hearings • Master Development Plan — 30 days • Subdivision — 30 days • Site Plan — 30 days • Land Disturbance -5 days • Building Permit -5 days o Fastrack program will enable cumulative approvals needed for building construction to be issued in less than 3 months, rather than the typical 12 -24 month process Frederick County Planning Commission's Business Development Advancement Study Committee Page 4 of 23 July 12, 2012 Business Development Advancement Study Report & Recommendation C Pursue public investment towards infrastructure needs associated with target businesses o Seek local, state, and federal financing Grants, low interest financing, bonding • Utilize Return on Investment (RO1) analysis when considering fiscal contributions 20 year RO1 payoff • Explore the use of an Industrial Development Corporation -type (IDC) of structure to invest, manage, and develop the business sites to fruition • Reserve water and sewer capacity for planned business development areas o Work with FCSA to assure that adequate capacities (within transmission systems as well as treatment facilities) will be available to serve the targeted EDC users within the planned business development areas. On July 12, 2012 the BDAS Committee forwarded this recommendation to the Board of Supervisors and Planning Commission for their consideration. Additional details on the recommendation are located beginning on page 20 of the report. Frederick County Planning Commission's Business Development Advancement Study Committee Page 5 of 23 July 12, 2012 Business Development Advancement Study Report & Recommendation Business Development Advancement Study Committee In February 2012, the Planning Commission set out to establish the Business Development Advancement Study (BDAS) Committee to take the lead role in evaluating improved business development opportunities in the County. The Committee was structured to include representation from the Board of Supervisors, Planning Commission, Frederick County Sanitation Authority, and Winchester- Frederick County Economic Development Commission. Mission Statement: "To forward to the Planning Commission and Board of Supervisors a recommendation of priority business areas based on the evaluation of all information and infrastructure funding programs readily available, prioritization of planned industrial sites, advancement of preparations to accommodate shovel -ready sites, and providing economic development interests better choices in competitive locations." Business Development Defined For the purpose of this study, the Committee coined the term Business Development to encompass the business and industrial sectors that have been identified as targeted businesses in the County's 2030 Comprehensive Plan as well as by the Winchester- Frederick County Economic Development Commission (EDC). Those targeted businesses include: • Healthcare Research and Development • Food Processing, • Plastics Manufacturing, • Back Office Support, • Distribution /Repackaging and Assembly Centers, and • Government Activity The County's 2030 Comprehensive Plan accommodates business development within the planned business and industrial land use areas of the 2030 Comprehensive Plan. The Zoning Ordinance permits the business development uses in the OM Office Manufacturing, M1 Light Industrial, and the M2 Industrial General Zoning Districts. Frederick County Planning Commission's Business Development Advancement Study Committee Page 6 of 23 July 12, 2012 Business Development Advancement Study Report & Recommendation Issues Prompting Business Development Advancement Study Because of the use of the internet and the work of consultants, the economic developer's time to influence and work with a prospect has diminished significantly. By the time state and local economic developers learn of a project, it is generally more advanced and consequently the prospect is closer to making a decision. While a project could have required eighteen months to reach a conclusion ten years ago, today it is not unusual for a project to run its course in four to six months. The challenge then is to understand and confront these changes. Business cannot be done the way it has always been done. If prospects are making decisions faster, then the availability of information and the responsiveness of economic development organizations must also be faster. If customers are using the internet as a way to collect data, websites must be accurate, complete and easy to navigate. If consultants have been integrated into the process, then understanding their needs and including them in marketing efforts is essential. Knowledge of active business sectors and those community assets which align with their needs will offer value to the consultant and the client. The critical factors of business in deciding a location include: • Labor • Product (sites and buildings) • Transportation and Markets • Business Climate • Quality of Life In the product category, quality sites and buildings must be available and ready to go. The competition has them, so a community that does not is at a distinct disadvantage. Once a decision has been made to move forward on a project, businesses want to begin without delay. It is not acceptable to be held up by zoning issues or other public hearing procedures. Getting the new project underway is essential and anything that hinders this reduces a community's chances of success While with labor considerations, it is most likely the prospect will want to explore the availability of sites, existing buildings, or build -to -suit opportunities. Business expects ready -to- go properties; as was mentioned previously, the time frame for projects is such that business cannot wait for property to be rezoned or for extensive site work. Nor do businesses want to endure what is many times a distasteful public process, especially if speed -to- market and competitive opportunities are in play. Product is not just the responsibility of local government. The private sector plays a critical role in providing this location factor. The local economic development organization and local Frederick County Planning Commission's Business Development Advancement Study Committee Page 7 of 23 July 12, 2012 Business Development Advancement Study Report & Recommendation government must encourage and assist the private sector where possible in the development of quality product. Part of the product development effort that does fall squarely on local government is the development of adequate local infrastructure, especially water and sewer. Having capacity available helps to ensure competitiveness, and it is an essential element in encouraging the local private sector developer to invest his or her resources to provide quality product. Local governments must also work with the private sector to encourage the development of telecommunications, especially broadband networks. Timeframes for site location decisions have condensed rapidly during the last 10 years. All other things being equal, a community that has buildings and sites ready -to -go will win business decisions over those which do not. It is the Committee's opinion that it is time to consider an enhancement to the implementation process in an effort to advance the positive tax advantages of targeted business developments. Business Opportunities Lost It is recognized that not all businesses that express interest in locating in Frederick County may be appropriate fits for the county. But, regardless, the county should be prepared to accommodate all businesses with an emphasis on those targeted business (see attached table for businesses). Land must be planned and be available to accommodate business interest. The conclusion is that there are limited sites to market. Year Parcels Total Acres Average 2011 Parcels Acreage Parcel 2007 6 235 Size Total Undeveloped InclustrialIN 158 2,500 15.8 Zoned Land 9 1035 110 Acreage Available > 19.99 acre 34 1,440 42.3 Parcels with Agreed Upon 13 650 50 Predetermined Sale Price (available for EDC marketing) The conclusion is that there are limited sites to market. Year Parcels Total Acres Largest Tract 2011 13 650 120 2007 6 235 110 2006 6 460 110 2000 9 1035 110 Frederick County Planning Commission's Business Development Advancement Study Committee Page 8 of 23 July 12, 2012 Business Development Advancement Study Report & Recommendation And the amount of acreage available for marketing has decreased significantly over the past decade. Our community's limited inventory of pre - qualified Virginia Economic Development Partnership (VEDP) sites has contributed to our being removed very early from the site selection process. Why or How the system is broken? • Time needed for rezoning • Increased taxes to property owner when rezoned from rural to business development lands • Cost of proffers • Wastewater availability /capacity /costs • Cost of land, when compared to competing jurisdictions • Less cost to property owner to develop rural residential lots versus business development lands. • Fluidity of required transportation demands • Replenishment rate of economic development lands Frederick County Planning Commission's Business Development Advancement Study Committee Page 9 of 23 July 12, 2012 Business Development Advancement Study Report & Recommendation 2030 Comprehensive Plan The 2030 Comprehensive Plan offers guidance for future land use decisions and, more importantly, identifies key areas that are planned for future business development opportunities. The development of commercial and industrial sites is vital to the financial success of Frederick County, and our efforts to achieve our fiscal goals in providing services to county residents. A number of Policies of the 2030 Comprehensive Plan were specifically crafted to support Business Development such as: • Identify and recognize areas in the county most strategically suited to meet the requirements of office and industrial development • Proactively attract desired business entities, and • Consider regulations encouraging and /or requiring service redundancy in office and industrial areas The 2030 Comprehensive Plan's planned industrial land uses are so designated after consideration of: site topography and geology; existing and planned transportation networks; existing and potential for public water and sewer service infrastructure; existing and potential for electric and communication network improvements; and proximity to residential land uses to avoid use conflicts. It is through The Plan that these key sites are identified and reserved for future business development, all in an effort to achieve the targeted tax assessment ratio of 25 percent C/I to 75 percent Other land uses such as residential. Implementation of business development land uses depicted in The Plan has been by a property owner's initiative to seek a rezoning. It is through the rezoning process that a property owner is expected to mitigate transportation impacts, and extend water and sewer to the property presuming the property is not already served. Target: Plan for C/I to Represent 25 Percent of Real Estate Assessments In an effort to maintain the county's ability to provide high quality services while at the same time maintaining low real estate tax rates, the 2030 Comprehensive Plan is utilizing land use planning and C/I opportunities to offset impacts from existing and planned residential uses. If it is a goal for Frederick County to have 25 percent of the total county assessments come from C/1 land use values, then it is obvious that at only 13.56 percent (4,556 acres) the county needs additional developed C/I uses. To achieve the 25 percent assessment target in 2010, an additional 2,761 developed acres of C/I land uses are needed. Recognizing the county's 2.9 percent annual growth rate over the past 3 decades, the 2030 Comprehensive Plan is designed to accommodate an additional 4,859 acres of new C/1 opportunities. This projection indicates that the 2030 Comprehensive Plan contains a minimum Frederick County Planning Commission's Business Development Advancement Study Committee Page 10 of 23 July 12, 2012 Business Development Advancement Study Report & Recommendation designation of 12,176 acres for C/I land uses within the Sewer and Water Service Area (SWSA). Further fluctuations may be anticipated with additional residential growth. The Committee looked at planned industrial areas depicted in the County's 2030 Comprehensive Plan, more specifically depicted on the Eastern Frederick Long Range Land Use Plan, as locations to accommodate future business development. These business development areas were further refined to include only areas that contained planned industrial land use opportunities and were vacant. Seven key Planned Business Development Areas were targeted for further study as part of the BDAS. Frederick County Planning Commission's Business Development Advancement Study Committee Page 11 of 23 July 12, 2012 Business Development Advancement Study Report & Recommendation Planned Business Development Areas ( Based on 2030 Comprehensive Plan) t �y s f4 m m -- 9 0 0.5 _ I 2 Miles 1 1 1 1 1 1 1 0 Ur nceveioemeni aee Scorer aM Wwl , 5e,.. Area vie,ne� Busmass oe,momen1 maze Frederick County Planning Commission's Business Development Advancement Study Committee Page 12 of 23 July 12, 2012 Evaluation for Site Shovel- Readiness Business Development Advancement Study Report & Recommendation In an effort to advance business development, and increase the quantity of quality shovel -ready sites, the BDAS Committee reviewed the following: • The 2030 Comprehensive Plan's Planned Industrial sites; • Geological conditions; • Water and sewer availability; • Transportation; and, • Known funding and incentive programs in an effort to prioritize and advance sites towards a shovel -ready status. Geology The areas planned for business development are generally located within either shale or karst geology. Shale is the dominant geology east of Interstate 81; Karst is the dominant geology west of Interstate 81. Shale geology offers excellent advantages as shale may be utilized for fill materials eliminating the need to import fill. Shale also offers a solid base on which structure foundations and stormwater facilities may be constructed. The shale geology is generally more economical for development purposes. The soluble nature of Karsts geology makes the soil susceptible to sinkholes, and the limestone deposits add to blasting and rock removal expenses. Due to the dissolution of karsts soils, stormwater management facilities generally need to be lined to avoid washouts. The soluble materials could also lead to building pad failures. Construction expenses associated with karst soils may be minimized with advance exploration techniques such as deep boring, air probes, and seismic refractions to identify deep bedrock depositions; such an exploration could indicate areas that could be susceptible to sinkholes and therefore areas that should be avoided. Best locations for business development, from a geology perspective: Reliance Road area; Route 5225 /Tasker Road area; and the Route 5225 /Route 37 /Parkins Road area. The committee concluded that while construction costs associated with developing sites in karsts dominated areas are typically higher, the price differential is rarely significant enough to justify not marketing those sites for C/I development. Frederick County Planning Commission's Business Development Advancement Study Committee Page 13 of 23 July 12, 2012 Business Development Advancement Study Report & Recommendation Water and Sewer Availability The Frederick County Sanitation Authority (FCSA) recognizes the County's Sewer and Water Service Area (SWSA) as county policy which defines the boundary limits for water and sewer service as provided by the FCSA. The SWSA does not guarantee the availability of water and sewer service. The FCSA is responsible for the water supply and sanitary sewer transmission within the designated sewer and water service area. The FCSA manages the system with a water capacity of 7.42 Million Gallons per Day (MGD), with an average annual use of 4.75 MGD. Various quarries provide the majority of the system's water supply, with an agreement with the City of Winchester supplementing the system with up to 2MGD. On the sanitary side, FCSA is able to treat 11.895 MGD. Based on various factor such as existing conveyance system infrastructure, and proximity to supply and treatment facilities, the FCSA indicated that some of the 2030 Plan's planned industrial areas are more economical to serve than others. As such, the FCSA identified three areas that warrant consideration as priority areas from a service perspective: • Rt522S /Future Route 37 vicinity • Water main is located on Rt522 adjacent to area • Sewer plant (Parkins Mill Plant) is located adjacent to area on Parkins Mill Road • 1 -81 /Route 37 /Martinsburg Pike vicinity • Area is presently served by water and sewer; additional capacities are available • Red Bud Run pump station is capable of increased flows (a 1.8 MGD capability, operating at 1.0 MGD) Y Rest Church Road vicinity & Hopewell Road vicinity o Area could ultimately be served by a new sewer package plant ( "plant #4 ") designed solely for non - residential uses. o Estimated $5,000,000 plant 0 2 -3 MGD o Implement composting and other land applications (creative solutions) to address nutrient limitations • Water supply to area is limited so no food processing or other heavy water users envisioned • Does need a water storage tank of approximately 150 -200 feet high to satisfy water pressure needs Frederick County Planning Commission's Business Development Advancement Study Committee Page 14 of 23 July 12, 2012 Business Development Advancement Study Report & Recommendation Transportation The transportation improvements that were evaluated and discussed were those improvements included on the adopted Eastern Road Plan (ERP), a component of the 2030 Comprehensive Plan. It was noted that while all the improvements identified in the ERP may not be needed to bring a single site to shovel -ready status, the overall planned road improvements would be essential to accommodate the traffic generated with ultimate build - out of the planned Business Development areas. It was noted that some of the studied planned industrial areas were more suitable than others for business development simply reflective of the economics of being able to utilize existing transportation infrastructure. With consideration of the additional expense of new infrastructure, the following areas were identified as cost effective areas to support business development: e Rt5225 /Future Route 37 vicinity o Good transportation access today; planned improvements would enable additional business development without burdening transportation network • Could potentially use the Route 522 /Route 37 (planned intersection) as access point into Area to accommodate initial access. Preliminary access could be constructed to ultimate Route 37 design standards • This area offers the most desirable site in terms of cost of improvements compared to potential acreage and existing capabilities • This is a significant land bay that is well set up to be able to distribute traffic to roadways with available capacity as well as potential future interchanges • 1 -81 /Route 37 /Martinsburg Pike vicinity • Economic Access Funding is being utilized to assist the developer construct Snowden Bridge Boulevard from Route 11 to the Graystone Industrial Park. • Economic Access Funding has been reserved for upgrading and signalization of Ebert Road, but this funding may be returned to VDOT for redistribution in the near future if the developer match is not committed Creative financing may be needed regardless of the planned industrial area. TIF and BID -type financing should be evaluated. VDOT Revenue Sharing and Economic Access Funding programs should be promoted. Sensible roads and not roads designed to last forever should be considered. Possibly utilize one program (i.e. TIF) to represent required match funding for another program. Frederick County Planning Commission's Business Development Advancement Study Committee Page 15 of 23 July 12, 2012 BDAS Committee's Preliminary Thoughts Business Development Advancement Study Report & Recommendation Following presentations and discussions by experts in the fields of water and sewer, transportation, geology, and economic development, the BDAS Committee generated their Preliminary Thoughts for how the County could best advance shovel -ready business development sites. The Business Development Advancement Study (BDAS) Committee's Preliminary Thoughts: Prioritize future business development areas that could contain shovel -ready sites and serve the community over the next 20 — 30 years. Some areas will be available in the near term, others toward the end of the 20 -30 period. The Planned Business Development areas identified below are listed in order of priority considering the shovel- readiness criteria. • Route 522 South and Parkins Mill Road (and future Route 37 East) area • 1 -81 /Route 37 /Route 11 North Stephenson area • Kernstown area— Route 37 /Route 11 /Shady Elm Road • Clearbrook area —1 -81 Exit 321 and Exit 323, around interchanges and east of Route 11 • Stephens City east area— northwest of Route 277 and Route 522 • Stephens City south area — within town boundaries • Reliance Road area • Secure business development zoning for planned business areas. • Encourage and support property owner initiated rezoning of Comprehensive Plan identified business areas /sites • Business Development zoning includes: • M1 Light Industrial • M2 Industrial General • OM Office - Manufacturing Park • Secure infrastructure funding to improve transportation access and water and sewer service to the business areas • Secure Real Estate Tax Relief for business zoned yet agriculturally used properties o Current Virginia law states that if a property owner requests a rezoning, then the property will no longer qualify for the Land Use (LU) Tax Assessment program. Therefore, the rezoned site will be taxed based on the newly rezoned assessment. o Current Virginia tax law states that if the zoning is changed by the locality (the Board's action NOT a request from the landowner) then that farmer may remain in land use (LU) as long as he continues to.farm the property. Frederick County Planning Commission's Business Development Advancement Study Committee Page 16 of 23 July 12, 2012 Business Development Advancement Study Report & Recommendation In an effort to support property owner initiated rezoning requests and not penalize same for seeking to implement business development zoning while continuing to utilize sites for agricultural uses, it may be appropriate to seek legislation at the General Assembly to enable the Frederick County Commissioner of the Revenue to permit continued use of the Land Use (LU) Tax Assessment program for properties that continue to be in agricultural use yet may have been rezoned to enable future business development. At such time as the property implements business development use, roll -back taxes for the proceeding five year should be due • Establish public - private partnerships to advance key planned business areas to shovel ready status. o Enter into agreement with property owner regarding a sales price for their land holdings, with consideration for annual inflationary adjustments, and a 10 -year term on the sales price agreement • Waive rezoning application fees and impact analysis for properties • Encourage favorable consideration of rezoning applications that adequately address and mitigate future transportation impacts via a conditional rezoning proffer statement • Seek funding opportunities to implement necessary infrastructure • Evaluate and secure infrastructure funding programs that are appropriate for specific sites • Private Consortium Financing • Grant Funding • Low Interest Rate Financing • Tax Increment Financing (TIP) • Special Tax District Financing • Reserve water and sewer capacity for planned business development areas o Work with FCSA to assure that adequate capacities (within transmission systems as well as treatment facilities) will be available to serve the targeted EDC users within the planned business development areas. Cost — Benefit Analysis In an effort to better understand the fiscal benefits (a.k.a. Return on Investment) derived from business development, the BDAS Committee analyzed a development scenario for three of the top prioritized BDAS business development areas: • Parkins Mill (Route 522 South and Parkins Mill Road and future Route 37 East area), Frederick County Planning Commission's Business Development Advancement Study Committee Page 17 of 23 July 12, 2012 Business Development Advancement Study Report & Recommendation • Winchester North (1 -81 /Route 37 /Route 11 North Stephenson area), and • Rest Church (Clearbrook area —1 -81 Exit 321 and Exit 323, around interchanges and east of Route 11) The scenarios included considerations pertaining to: acreage potentially available for business development; cost of transportation, water and sewer infrastructure improvements necessary to serve the business development; potential sewer system capacity limitations that directly correlates with the type of business development that might be possible; non -local infrastructure improvement funding sources; and projected Return on Investment benefits to the community. The scenarios consider Manufacturing and Warehousing land uses, independently as well as a blend of the two uses within each development area scenario. It is noteworthy to mention that the fiscal benefit analysis does not factor in the number of jobs and their associated wages. Frederick County Planning Commission's Business Development Advancement Study Committee Page 18 of 23 July 12, 2012 Business Development Advancement Study Report & Recommendation Return on Investment Scenarios (Blend - 50/50) 20 year j -- -------------------- Break -even Year 6 7 1 3 (Manufacturing) i ----- ___ ------------------------- ___._ -------- 1________________--_________.____..__ -------- _ -------- _ ---- -____-- Break-even Year j 10 13 3 (Warehousing) Break -even Year i 7 i 9 3 (Blend - 50/50) j - - - - ---- --- - - -- - -- -- --- --- --- - - -- -- -- Assumptions /Notes • Manufacturing per acre return: $19,355 • Warehousing per acre return: $9,155 • Blend per acre return: $14,225 • First project does not locate until year 3 • Projects occurs every three years absorbing 20 acres • Bond terms are 4% for 20 year • Rest Church plan calls for $8 million capital outlay to gain additional 500,000 MGD, added with third project. Frederick County Planning Commission's Business Development Advancement Study Committee Page 19 of 23 Parkins Mill Winchester North Rest Church Total Acreage 1,732 1 810 1 1,469 i Total Immediate i 500 j 250 i 350 Developable Acreage - - Wastewater Capacity j - - - - - -+--------------------------------------+--------------------------------------- Up to 3 MGD Up to 800,000 MGD Up to 600,000 MGD Available j j t ---------------------------------- - - - - -- ----------------------------------- Immediate - - - - -- ----------------- $5,275,000 j - - - - ----- - - - $6,250,000 j --- $9,415,500 Infrastructure Cost I ------------------- - ------- ------------------------------- Infrastructure Funded $1,500,000 $1,500,000 $637,500 via Non -Local Funds i *road access multiple awards *road access multiple awards j *road access - ------ --- -- - -- -- *special taxing district 1 -- -------------- -- ---------- Net Immediate i ------- --- --- $3,775,000 1 -- -----i $4,750,000 $8,112,381 Infrastructure Cost ------------------ - - - - -- ----------------------------------------- Infrastructure Bonding - - - - -- -------- $5,490,182 j - - - - -- $6,908,177 i ---------------------- $14,816,221 Costs 20 year j I __ __ Net Revenues $18,897,118 $17,479,123 $16,247,919 (Manufacturing) 20 year j - - - Net Revenues - - - -- - - - - ---- $6,045,118 --- --- -- -- - -- - -- - - - - -- $4,627,123 j $3,422,919 (Warehousing) 20 year j - -- --- - - - - -- Net Revenues - - - - - -- -- - - - - -- 12,497,118 - $ - - -__- 11, 053 ,123 $ -- - - - - -- -- - - - - -- $9,848,919 (Blend - 50/50) 20 year j -- -------------------- Break -even Year 6 7 1 3 (Manufacturing) i ----- ___ ------------------------- ___._ -------- 1________________--_________.____..__ -------- _ -------- _ ---- -____-- Break-even Year j 10 13 3 (Warehousing) Break -even Year i 7 i 9 3 (Blend - 50/50) j - - - - ---- --- - - -- - -- -- --- --- --- - - -- -- -- Assumptions /Notes • Manufacturing per acre return: $19,355 • Warehousing per acre return: $9,155 • Blend per acre return: $14,225 • First project does not locate until year 3 • Projects occurs every three years absorbing 20 acres • Bond terms are 4% for 20 year • Rest Church plan calls for $8 million capital outlay to gain additional 500,000 MGD, added with third project. Frederick County Planning Commission's Business Development Advancement Study Committee Page 19 of 23 July 12, 2012 Business Development Advancement Study Report & Recommendation BDAS Recommendation The Business Development Advancement Strategy has been designed to bring shovel -ready sites into readiness for the owner, the potential user, and the county in terms of increased revenue. There has been an attempt to bring predictability to the economic development process in an environment which has changed significantly over the past several years. It looks more like a partnership of owner, user, and County and getting each of the partners to an effective end result for each. Efforts have been incorporated that contribute towards the implementation of the 2030 Comprehensive Plan, specifically its business development land use designations (resulting in OM, M1, and M2 zoning districts). It is also suggested that energies be concentrated at a few strategic locations so as to maximize the program's benefits: Focus public - private investment in the highest priority areas to improve transportation and water and sewer availability. The BDAS has identified seven key business development areas reflective of the 2030 Comprehensive Plan's business development land use designation and goals, as well as ease in terms of facilitating transportation and water and sewer infrastructure improvements. Those areas are listed below, with the top prioritized area listed first: o Parkins Mill area 0 Route 522 South / Parkins Mill Road (and future Route 37 E) area 0 Approximately 1,732 Acres 0 32 properties over 10 acres in size 0 Land Use Plan Designation: Mixed Use Office /Industrial Land Uses 0 Envisioned Zoning District: OM Office Manufacturing o Winchester North area 0 1 -81 Exit 317 0 Approximately810Acres 0 19 properties over 10 acres in size e Land Use Plan Designation: Industrial Land Uses 0 Envisioned Zoning District: M1 Light Industrial o Rest Church Road area e 1 -81 Exit 323 0 Approximately 1,469 Acres 0 32 properties over 10 acres in size e Land Use Plan Designation: Mixed Use Industrial /Office, Industrial, Heavy Industrial, and Warehouse Land Uses 0 Envisioned Zoning District: OM Office Manufacturing, M1 Light Industrial, and M2 Industrial General Frederick County Planning Commission's Business Development Advancement Study Committee Page 20 of 23 July 12, 2012 Business Development Advancement Study Report & Recommendation o Kernstown area C 1 -81 Exit 310 /Route 37 South /Route 11 South C Approximately 378 Acres • 10 properties over 10 acres in size • Land Use Designation: Industrial Land Uses • Envisioned Zoning Designation: M1 Light Industrial o Clearbrook area • 1 -81 Exit 321 /1-lopewell Road Y Approximately 665 Acres • 12 properties over 10 acres in size • Land Use Plan Designation: Industrial and Mixed Use Industrial /Office Land Uses • Envisioned Zoning District: M1 Light Industrial, OM Office Manufacturing, and B3 Industrial Transition o Stephens City East area • Route 277 / Route 522 S / Route 636 • Approximately 1,052 Acres • 23 properties over 10 acres in size • Land Use Plan Designation: Mixed Use Industrial /Office and Industrial • Envisioned Zoning District: OM Office Manufacturing and M1 Light Industrial o Stephens City Proper area • With the Town of Stephens City • Approximately 191 Acres • 3 properties over 10 acres in size • Land Use Designation: Industrial Land Use • Envisioned Zoning District: 1 -1 Industrial Transition and 1 -2 General Industrial The BDAS recommends that the County undertake the following initiatives which collectively will enhance the community's advancement of business development in the target business areas. Business Development Initiatives • Secure zoned and shovel -ready sites Frederick County Planning Commission's Business Development Advancement Study Committee Page 21 of 23 July 12, 2012 Business Development Advancement Study Report & Recommendation o Identify and prioritize key areas /sites • Encourage property owner initiated rezoning within prioritized areas • Utilize staff expertise to analyze sites and provide comment for rezoning applications • Waive rezoning application fee and detailed Impact Analysis (including TIA Transportation Impact Analysis ) if proffer statement adequately addresses mitigation of impacts • Establish public - private agreements to enable the Economic Development Commission's (EDC) marketing of key business development sites o Owner agreed upon sales price that can be marketed to prospective targeted business users • Utilize independent appraisal that is updated every 3 years o Establish a pre- determined time frame to market property 10 years for target areas that are envisioned to development in the near future • 20 years for target areas that are envisioned to development in the long term Annually refund real estate land use tax deferment for business development sites o Calculate deferment : Land Use Tax Assessment value minus new Real Estate Assessment after rezoning o Utilize a Performance Agreement between property owner and Industrial Development Authority (IDA) • Performance measures will include: proper zoning, executed sales price agreement, documented effort as a willing seller for EDC clients Do not include Rollback • Deferment refund would continue until site is developed • Perform preliminary site analysis for large tracts • Conduct wetlands and historic reviews in advance of site development • Design and construct regional stormwater management facilities per new state code • Fastrack Development Review Process for targeted businesses • Establish a coordinated review agency effort to enable targeted businesses to receive prompt development reviews. • Allow concurrent development application reviews • Assure that review agencies will provide development proposal review comments within set time frames all in an effort to promptly secure development review approvals • Development Application Review and agency review response time Frederick County Planning Commission's Business Development Advancement Study Committee Page 22 of 23 July 12, 2012 Business Development Advancement Study Report & Recommendation • Rezoning — 10 days for review agency comment; then 45 days for public hearings • Master Development Plan — 30 days • Subdivision — 30 days • Site Plan — 30 days • Land Disturbance -5 days • Building Permit — 5 days o Fastrack program will enable cumulative approvals needed for building construction to be issued in less than 3 months • Pursue public investment towards infrastructure needs associated with target businesses o Seek local, state, and federal financing • Grants, low interest financing, bonding • Utilize Return on Investment (ROI) analysis when considering fiscal contributions • 20 year RO1 payoff • Utilize an Industrial Development Corporation (IDC) to manage and implement infrastructure improvements • Reserve water and sewer capacity for planned business development areas o Work with FCSA to assure that adequate capacities (within transmission systems as well as treatment facilities) will be available to serve the targeted EDC users within the planned business development areas. Frederick County Planning Commission's Business Development Advancement Study Committee Page 23 of 23 I Financing 'Tools F ®r Promoting Business Development BDAS Report Appendix: Financing Tools for Promoting Business Development Road Development 1. Transportation Partnership Opportunity Fund Description It provides grants, revolving loans, or other financial tools and equity contributions to encourage the development of transportation projects and to provide monies to address the transportation aspects of economic development opportunities. The financial assistance may be used for transportation capacity development, on and off site; road, rail, mass transit or other transportation access costs beyond the funding capability of existing programs; studies of transportation projects including but not limited to environmental analysis, geotechnical assessment, survey, design and engineering, advance right -of -way acquisition, traffic analysis, toll sensitivity studies, financial analysis, or any other transportation development activity permitted by law. Amount $30 million = Loans from the Fund of up to $30 million will be interest -free. Loan terms will vary but shall not exceed seven years. $5 million = Grants of up to $5 million Notes Must meet Governor's Opportunity Fund criteria Still eligible for other State road funding pools 2. Virginia Transportation Infrastructure Bank Description Bank is intended to alleviate, in part, a critical need for additional sources of funding to finance present and future needs of the Commonwealth of Virginia for the design and construction of roads and highways. This includes including toll facilities, mass transit, freight, passenger and commuter rail, including rolling stock, port and airport and other transportation facilities. The purpose of the bank is also to encourage the investment of both public and private funds in the development of eligible transportation projects and to provide an alternative source of financing for present and future transportation needs in the commonwealth. Under the VTIB Act, a Project means i) the construction, reconstruction, rehabilitation or replacement of any interstate, state highway, toll road, tunnel, local road, or bridge; or ii) the construction, reconstruction, rehabilitation or replacement of any a) mass transit, b) commuter, passenger or freight rail, c) port, or d) airport facility; or the acquisition of any rolling stock, vehicle or equipment to be used therewith. Loans, grants, credit enhancement and other financial assistance available. Amount $282 million = Initial capitalization by General Assembly $56 million = Grants to Governmental Entities to finance projects. Governmental Entities applying for a grant must demonstrate, to the satisfaction of the Manager, the project cannot be financed on reasonable terms or would otherwise be financially infeasible without the grant. 3. Economic Development Access Fund Description This is a state - funded incentive program intended to assist localities in attracting sustainable businesses that create jobs and generate tax revenues within the locality. The program makes funds available to localities for road improvements needed to provide adequate access for new or substantially expanding qualifying establishments. Economic Development Access funds are allocated by the Commonwealth Transportation Board in accordance with its policy and may be used for financing the construction or improvement of secondary or local system roads within all counties and cities and certain towns that are part of the Urban System. "Qualifying Establishments" include manufacturing, processing, research and development facilities, distribution centers, regional service centers, corporate headquarters, or other qualifying establishments that also meet basic employer criteria as determined by the VEDP in consultation with the VDBA. Amount $600,000 = unmatched $150,000 = additional if match by non -State source Notes Regular or bond project eligible Five year window to capture capital investment and jobs on bonded project It is intended that Economic Development Access Program funds be requested as reasonably needed by the localities of the state, but that these funds not be anticipated from year to year. Unused eligibility from a preceding year cannot be carried forward to an ensuing fiscal year. Subject to available funding, the maximum unmatched allocation to a locality within any one fiscal year is $500,000 4. Revenue Sharing Description This program provides additional funding for use by a county, city, or town to construct or improve the highway systems within such county, city, or town, with statutory limitations on the amount of state funds authorized per locality. Funds can also be requested for eligible additions in certain counties of the Commonwealth. Locality funds are matched with state funds for qualifying projects. An annual allocation of funds for this program is designated by the CTB. Eligible projects include work including construction, reconstruction, improvement, and eligible street additions. Any work deemed to be maintenance work is not eligible for Revenue Sharing funding. Amount $10 million = maximum of locality application Each locality's request for up to $1 million in Revenue Sharing Program funding will be evaluated before considering additional funding for requests that exceed $1 million. Priority will be given to allocations that accelerate projects in the Commonwealth Transportation Six Year Improvement Program or the locality's capital plan and prioritized as follows. Notes Requires dollar for dollar match 5. Special Taxing District Description A special district is an independent unit of local government organized to perform a single governmental function or a restricted number of related functions. Special districts usually have the power to incur debt and levy taxes; however, certain types of special districts are entirely dependent upon enterprise earnings and cannot impose taxes. Examples of special districts are water and flood control districts, and transit authorities, port authorities, and electric power authorities. Amount $10 million to 141 million Notes Examples Prince William Parkway Project ($40,000,000) in Prince William County A levy of $0.20 per $100 assessed value on commercial and industrial zoned property (including commercial apartments), or property used for commercial or industrial purposes within the district State code permits special tax levy on real estate only, creates some challenges Water & Wastewater Development 1. Community Development Block Grant Description The Virginia Community Development Block Grant (VCDBG) is a federally- funded grant administered by the Virginia Department of Housing and Community Development (DHCD) since 1982. DHCD provides funding to eligible units of local government (non - entitlement communities only) for projects that address critical community needs including housing, infrastructure, and economic development. The three national objectives for CDBG funding are: Activities benefiting low- and moderate - income persons; Activities which aid in the prevention or elimination of slums or blight; and Activities designed to meet community needs having a particular urgency. Community Improvement Grants (CIG's) enable localities to implement solutions to identified local community development problems. These grants include acquisition, construction, reconstruction, installation, and development of comprehensive, economic development, housing, community facility, and community service facility projects. A substantial majority of the Virginia CDBG allocation will be made available to localities in the form of these types of grants. Amount $700,000 - $1,000,000 (annual estimate) Notes Must go toward projects that create job and business opportunities for low- and moderate - income persons, particularly in the most economically disadvantaged 2. Water and Waste Disposal Direct Loans and Grants (United Stated Department of Agriculture Rural Development) Description Program seeks to develop water and waste disposal systems in rural areas and towns with a population not in excess of 10,000. To qualify, applicants must be unable to obtain the financing from other sources at rates and terms they can afford and /or their own resources. Funds can be used for construction, land acquisition, legal fees, engineering fees, capitalized interest, equipment, initial operation and maintenance costs, project contingencies, and any other cost that is determined by the Rural Development to be necessary for the completion of the project. Projects must be primarily for the benefit of rural users. Business Development Office and Industrial BUSINESS DEVELOPMENT - OFFICE & INDUSTRIAL BUSINESS DEVELOPMENT - OFFICE AND INDUSTRIAL CURRENT CONDITIONS Strategically placed in the Mid - Atlantic region of the United States, Frederick County's location on the eastern seaboard is a valuable asset to companies serving the US markets and Europe. Frederick County is the northernmost community in the Commonwealth of Virginia. The County's location places its businesses halfway between the markets of the north and south, within a one -day haul of 50% of the U.S. population. Over 60% of the goods manufactured in the United States are distributed from the 750 -mile (1,207 kilometers) area. In addition to being half way between Boston and Atlanta, Winchester - Frederick County is well positioned equidistant between Los Angeles and London. For national and international companies, being in the Eastern Time Zone maximizes their hours of operations, which helps to improve efficiencies. Excellent road, rail, inland ocean port and the Dulles World Cargo Center provide access to the major markets in North America, Latin America, and globally. Interstate 81 runs directly through the County. Several major airports are within 100 miles of Frederick County, including Washington - Dulles International Airport, Baltimore - Washington International Airport, and Ronald Reagan Washington National Airport. Frederick County is home to a growing regional general aviation airport. These assets support access to Frederick County's economic development opportunities. With the formation of the Washington - Baltimore Metropolitan Statistical Area after the 1990 US Census, the fifth largest USA market begins at the County Line. This close proximity to Washington D.C. also provides access to the unique opportunities associated with the Federal Government and the County's location is supportive of those policies established for purposes of Homeland Security. In addition to the ideal geographic location of Frederick County, other significant strengths of the Frederick County market, particular to attracting new office and industrial development, include favorable tax rates, a high quality of life, education, healthcare, workforce, and a diverse current office and industrial community. Frederick County is currently home to several THE 2030 COMPREHENSIVE PLAN 5 BUSINESS DEVELOPMENT - OFFICE & INDUSTRIAL government agencies including, FEMA, Corps. of Engineers, and the FBI. Frederick County has an incredibly low tax rate in comparison to neighboring communities. Supported by a proactive Economic Development Commission (EDC), the areas workforce has a high work ethic and a low turnover rate. The area has an educated workforce with 84% of county residents being high school graduates and 24% with bachelors or more advanced degrees. Education opportunities abound in Frederick County which has a well respected primary education system. In addition, higher education opportunities exist with a growing student base at the following establishments; • Shenandoah University • Lord Fairfax Community College The community has an excellent healthcare system which is centered around the Valley Health Systems. Facilities include: • Winchester Medical Center • Regional Referral Center • Level II Trauma Center • Quick Care / Urgent Care Centers • Health and Wellness Center Frederick County provides a high quality of life which is considered to be an important factor in recruiting companies and maintaining a desirable workforce. The City of Winchester, with its successful downtown walking mall, is a resource for additional workforce and provides numerous retail and entertainment opportunities. Current office and industrial operations within the community provide for diversity in current business markets. The area is not linked to one major industry or employer. There is a redundancy in resources offered at certain business parks. In addition, a Foreign Trade Zone with several locations provides tax free trade areas. FUTURE Focus Frederick County should focus on targeted office and industrial economic development opportunities over the next twenty years. It can be anticipated that there will be an increased opportunity to capitalize on the following operations: THE 2030 COMPREHENSIVE PLAN P. BUSINESS DEVELOPMENT - OFFICE & INDUSTRIAL Food Processing Anticipate increase in number of food processors locating in area as out - sourcing internationally is not an option. Processers seek access to resources, location and workforce within a right -to -work locality. Water resources will be necessary for this industry. Distribution /Repackaging and Assembly Centers Anticipate increase in distribution and repackaging centers based on area location and proximity to transportation Healthcare Research & Development Anticipate increase in healthcare related research and development operations Plastics Manufacturing Anticipate increase in plastics manufacturing, an industry already common in this area. Water resources will be necessary for this industry. Back Office Support Anticipate increase in back office support organizations. Current examples operating in Frederick County include Navy Federal Credit Union and American Background. Government Activity Anticipate an increase in government agencies locating operations to Frederick County. Location plays major factor, in particular, Homeland Security locational factors are extremely favorable in Frederick County. COOP's, Continuity of Operations Plans, highlight the attributes of Frederick County. Additional government activity in Frederick County will result in an increase in the number of jobs directly related to their presence. Those jobs will typically be highly skilled, high paying jobs. In addition, there will be an increase in support and ancillary jobs. Similarly, there will be a significant increase in ancillary support business opportunities such as support contractors, many of which will be higher tech. As previously noted, this will drive a need for services, housing, entertainment, retail, and other businesses. A well planned business development marketing strategy will not be effective if insufficient acreage has been set aside to accommodate desired business uses in suitable key locations. The Area Plans will need to identify and THE 2030 COMPREHENSIVE PLAN 7 BUSINESS DEVELOPMENT - OFFICE & INDUSTRIAL incorporate ample areas of business and industrial land use in support of the business development goals of The Plan. Frederick County is supportive of green initiatives in the field of economic development. Sustainable development initiatives should be recognized and their implementation incentivized. Such an example is rail access and transportation which will become more valuable and expected in industrial settings due to desire to operate effectively and efficiently. Frederick County should be proactive in ensuring the resources necessary for economic development are planned in a sustainable way and available in support of the identified office and industrial users. With regards to water, waste water treatment, and electricity, manufacturers will be concerned with quantity and availability, but also of equal or greater importance will be. quality and service reliability. There is a finite capacity of these resources that must be managed accordingly. The concept of redundancy will need to be a priority. Manufacturers and government agencies will require redundancy in services necessary to support their economic investment and growth. COMMUNITY BENEFITS The value of office and industrial business development to Frederick County is immeasurable. As part of the County's economic development effort, office and industrial growth is a key component for ensuring a selection of employment opportunities for the citizens of Frederick County. The continuation of a low residential tax rate is a direct result of the expansion of the commercial and industrial tax. Currently commercial and industrial tax revenue accounts for approximately 13% of the County's tax base. The County's goal indicates this should be around 25% to ensure a balanced fiscal environment and a continuance of low real estate taxes. The County's development impact model projection for a single - family home anticipates tax revenue of approximately fifty percent of the projected costs to the County. The County's fiscal survival is dependent upon recruiting office and industrial occupants which offset those residential costs. An effective office and industrial business development strategy will also ensure the stabilization of the workforce and maintain low levels of unemployment. An increase in high skill, high paying jobs locally will result in THE 2030 COMPREHENSIVE PLAN BUSINESS DEVELOPMENT - OFFICE & INDUSTRIAL a decrease in number of skilled residents commuting outside the region to the Northern Virginia region. Overall, a sound office and industrial business development strategy will result in the conservation of a variety of finite resources and promote a high quality of life for the citizens of Frederick County. POLICIES /IMPLEMENTATION POLICY: IDENTIFY AND RECOGNIZE AREAS IN THE COUNTY MOST STRATEGICALLY SUITED TO MEET THE REQUIREMENTS OF OFFICE AND INDUSTRIAL DEVELOPMENT IMPLEMENTATION: • Complete review of area land use plans to ensure sufficient acreage is identified and reserved for office and industrial use to enable a balanced County tax base. • Lands identified for business use should avoid limestone areas where karst geology is present. • Ensure these lands are properly located in relation to transportation and water, sewer, and natural gas. • Communications infrastructure, such as voice and data fiber, should be extended to areas identified for office and industrial use. • The zoning process and support should be examined by the County to encourage willingness on the part of landowners of properties identified in Area Plans (see Appendix I) to proceed with rezoning. POLICY: PROACTIVELY ATTRACT DESIRED BUSINESS ENTITIES IMPLEMENTATION: Review /revise office and manufacturing zoning to minimize the number of low tax generating entities locating in the area. o Minimize distribution centers as they have a minimal personal property tax, typically result in lower paying jobs, and absorb greater land mass than other uses. THE 2030 COMPREHENSIVE PLAN we BUSINESS DEVELOPMENT - OFFICE & INDUSTRIAL o Maximize targeted industries such as governmental facilities, as well as high -tax base industries that have a low resource requirement. • Continue to examine and fund business location marketing that builds or modifies the current business base to take the County forward to its goal of increased income for its citizens and tax value for the County. POLICY: CONSIDER REGULATIONS ENCOURAGING AND/OR REQUIRING SERVICE REDUNDANCY IN OFFICE & INDUSTRIAL AREAS IMPLEMENTATION: • Complete an analysis to determine services most desirable for redundancy and determine the feasibility of service redundancy in currently zoned office and industrial areas. • Create incentives for industrial site developers to implement service redundancy. POLICY: FUNDING OF POLICIES IMPLEMENTATION: • Determine funding plan for policies such as service redundancy, water availability, electric service, communication, etc. These could include public /private funding and transportation access funds for industrial development. Address how the County's public role could be used more effectively in lowering development costs. COMMUNITY PARTNERS AND STAKEHOLDERS • Winchester- Frederick County Economic Development Commission • Industrial Development Authority • Industrial Parks Association • Blue Ridge Board of Realtors THE 2030 COMPREHENSIVE PLAN 101 BUSINESS DEVELOPMENT - OFFICE & INDUSTRIAL SUPPORTING MATERIALS AND RESOURCES • Economic Development Commission Targeted Business Plan • WinVa.com THE 2030 COMPREHENSIVE PLAN 11 MIM Achieving Fiscal Balance Through Land Use Planning APPENDIX II — BACKGROUND ANALYSIS AND SUPPORTING STUDIES ACHIEVING FISCAL BALANCE THROUGH LAND USE PLANNING THE 25% COMMERCIAL /INDUSTRIAL — 75% OTHER REAL ESTATE TAX ASSESSMENT RATIO Local governments throughout the country rely on the revenue collected from real estate taxes to fund their general operation. Therefore, it is understandable that the revenue - generating potential for properties receives strong consideration during land use and development decisions. In many circumstances, a site's ability to generate revenue, and an applicant's capability to adequately mitigate negative fiscal impacts, are driving factors behind the development approval process. Prompted in part by fiscal concerns, local governments plan and ultimately zone large tracts of land for commercial and industrial use, to ensure that there is not only adequate land available for current demand but also for future demand. This practice of using land use policies (a.k.a. Comprehensive Plan) and the zoning ordinance to achieve fiscal objectives rather than purely land -use objectives is commonly referred to as 'fiscal zoning'. Under the fiscal zoning approach, local governments discourage proposed developments that have the potential to create a net financial burden on the county and will instead encourage development that promises a net financial gain. Fiscal consideration is a significant element of land use planning. The county has successfully utilized the Comprehensive Policy Plan to designate areas of the county for future commercial and industrial (C /I) land use opportunities since the early 1970s. Over the years this practice has helped reserve designated land for vital tax generating land uses. Through the policies of the Comprehensive Plan areas designated for C/I land uses can be implemented through the rezoning process, which then allows the property owner to develop the site into commercial and /or industrial uses. Once the C/I use has been constructed, the county is then able to bring in additional tax revenues from the site. Through the support and encouragement of C/I uses, the county over the past decade has successfully maintained a relatively low (0.51 to 0.71 percent) real estate tax rate while continuing to provide a high quality of public services to its citizens. The Frederick County 2030 Comprehensive Plan strives to incorporate a more comprehensive analysis of the C/I land uses and their contribution towards the county's fiscal health into its overall community planning effort. The importance of the C/I land use has elevated in recent years as the country strives to overcome the challenging economic times. In an effort to plan for the county's prosperous future, the 2030 Comprehensive Plan has been drafted to designate sufficient acreage for C/I land use opportunities that is necessary to generate tax revenue that is necessary to offset the county's costs for providing public services to the important but more financially burdensome residential land use. 35 THE 2030 COMPREHENSIVE PLAN APPENDIX II — BACKGROUND ANALYSIS AND SUPPORTING STUDIES It is the county's goal to create a policy plan that balances land uses and their associated tax contributions to ensure that those contributions offset the countywide cost of community services. This goal should be achieved by utilizing the land use plan to assist the county in achieving a real estate tax assessment ratio of 25 percent C/I to 75 percent Other land uses such as residential. Ultimately, the land use plan should be designed to plan for adequate revenue opportunities to ensure that the county is capable of providing its citizens with desired public services without having to place additional tax burdens on those citizens to fund the services. This document strives to provide additional background materials and a better understanding in support of the C/I policies and goals of Frederick County. ANALYSIS Evaluation of Costs of Community Services (COCS) by /and use A Cost of Community Services study is one of the simplest forms of fiscal analysis available to local government. This study groups major land use categories together and evaluates all revenues and expenditures of the land uses throughout the county. In 2003, the American Farmland Trust (AFT), in working with the Frederick County Farm Bureau, analyzed Frederick County's FY02 budget, its revenue and expenditures, in an effort to determine the Costs of Community Services (COCS) by land use. This study was targeted to illustrate the minimal impact that agricultural lands place on county services, but residential and commercial /industrial land uses were also analyzed. The study concentrated on fiscal year 2002 (July 2001 to June 2002), and represented a 12 month 'snap - shot'. The American Farmland Trust study of Frederick County, VA found the following: Land Use Cost of Service per $1 Revenue Generated Residential $ 1.19 Commercial/Industrial 0.23 Agricultural/Open S ace $0.33 The AFT study found that residential land uses receive $1.19 in community services for every $1 contributed in tax revenue. More importantly, this study also found that the revenue generated by C/I land uses are more than four times their projected costs for community service. While it is noted that this study was conducted a few years ago, the premise behind the analysis does capture a key aspect of the county's typical financial situation: C/I is vital to the county's tax base, and that in 2002, the C/I land uses contributed 18.82% of the total real estate tax revenue. 36 THE 2030 COMPREHENSIVE PLAN APPENDIX II — BACKGROUND ANALYSIS AND SUPPORTING STUDIES In order to project the capital fiscal impacts that would be associated with residential developments, Frederick County utilizes a Development Impact Model (DIM). This DIM is a micro -level model with the ability to analyze site specific land use data. In 2010, as part of the annual review of the DIM, the Development Impact Model- Oversight Committee (DIM -OC) utilized the DIM to evaluate the costs for service for residential land uses. The DIM projects fiscal analysis over a 20 year period (a 20 year 'snap-shot'), and considers full revenue contributions and expenditure demands, traditional budget elements as well as the associated Capital Improvement Plan projects. The DIM considers the various revenue sources such as real estate and property taxes, as well as sales, meals, and other potential taxes enabled within the community. The findings that were generated from the residential analysis were surprising. The DIM projected that over a 20 year period a single family residence valued at $270,000 would cost the county $1.95 for every $1 contributed. The DIM's projections indicate a significant disparity in the relationship between residential tax contributions and its associated service expectations. 2010 Development Impact Model (DIM) projections over 20 year period $270,000 Single Family Dwelling Tax Revenue $72,881 Real Estate direct contributions $26,125 Personal Property, Sales, Meals, etc indirect contributions $46,756 County Service Expenditures $142,3Q_4 Capital (schools, public safety, library, etc $ 21,672 Operations $120,722 These two studies reinforce the generally accepted belief that residential land uses require more services than their associated tax contributions cover, while on the other hand commercial and industrial land uses offer significant tax revenues which exceed their associated cost for community services. More importantly, these two studies show that the revenues generated by C/I land uses are essential in the county being able to mitigate the residential land use costs for community services, and provide for more opportunities and quality of life elements that make for a great community. Evaluation of County Tax Revenue and Expenditures Utilizing figures for the county's fiscal year ending June 30, 2010, one gains a better understanding from where funds are derived, and where those funds are then spent. 37 THE 2030 COMPREHENSIVE PLAN APPENDIX II — BACKGROUND ANALYSIS AND SUPPORTING STUDIES Real Estate taxes represented 43 percent ($41.1 million) of the county's tax revenue in 2010. This real estate tax revenue is derived from various land uses: residential, commercial, industrial, and agricultural. In 2010 C/I land uses brought in $5.6 million in real estate taxes, or 13.56 percent of the total real estate tax revenue. It should be noted that C/I uses only occupy 1.79 percent of the County's total land area and contribute $1,229.5 per acre in real estate taxes. In addition to real estate taxes, C/I land uses are also significant contributors to personal property, local sales, meals and lodging, business license, and other local taxes. C/I land uses are vital contributors to the local tax revenue and ultimately contribute over 75 percent of the County's total tax revenue. At the other end of the spectrum, residential land uses brought in $24.3 million in real estate taxes, or 59.2 percent of the total real estate tax revenue. Residential land uses make up 27 percent of the County's total land area and contribute an average of $353.40 per acre in real estate taxes. In reviewing the county's expenditures for the same period, a significant portion of the county's funds are directed towards education ($65.3 million). At 52.1 percent of the expenditures, the county is clearly committed to educating its residents, preparing for the future, and providing for a high quality of life. THE 2030 COMPREHENSIVE PLAN 2010 Tax Revenue Recordation& Utility,3.2% Wills, 1 "% Vehicle ■RealEstake Licenses, 2.2% Personal ■ Other taxes Meals & Property, 31.0, ■ Local Sales & Use Lodging, 3.9% Business ■ Communications Licenses, 4.5 % ■ Business Licenses Communications, 1. IN Meals & Lodging 5% s Vehicle Licenses Local Sales & Use, 9.2% s Recordation & Wills Other taxes, 0.31Y. 3 Utility ■ Personal Property This real estate tax revenue is derived from various land uses: residential, commercial, industrial, and agricultural. In 2010 C/I land uses brought in $5.6 million in real estate taxes, or 13.56 percent of the total real estate tax revenue. It should be noted that C/I uses only occupy 1.79 percent of the County's total land area and contribute $1,229.5 per acre in real estate taxes. In addition to real estate taxes, C/I land uses are also significant contributors to personal property, local sales, meals and lodging, business license, and other local taxes. C/I land uses are vital contributors to the local tax revenue and ultimately contribute over 75 percent of the County's total tax revenue. At the other end of the spectrum, residential land uses brought in $24.3 million in real estate taxes, or 59.2 percent of the total real estate tax revenue. Residential land uses make up 27 percent of the County's total land area and contribute an average of $353.40 per acre in real estate taxes. In reviewing the county's expenditures for the same period, a significant portion of the county's funds are directed towards education ($65.3 million). At 52.1 percent of the expenditures, the county is clearly committed to educating its residents, preparing for the future, and providing for a high quality of life. THE 2030 COMPREHENSIVE PLAN APPENDIX II — BACKGROUND ANALYSIS AND SUPPORTING STUDIES Health& 2010 Expenditures Welfare, 6.5% Public Works, 2.8°1 Judical ■ Education Administration, ■Parks, Rec & Cultural uf� ■ Community Development ■Interest on Long -term Debt ■General Government ■ Judical Administration ■ Public5afety General M Public Works Government, 5.0% Interest on Health & Welfare Long -term Community Parks, Rec & Debt, 5.2% Development, 1,7% Cultural, 4.2 °% This review of the County's 2010 tax revenues and expenditures clearly illustrates that while residential land use contribute a majority of the real estate taxes collected by the County, the costs for covering services provided to those resident far exceeds their contributions. As depicted in the chart above, the expenditures for education (which is a service connected with residential land uses), is more than three times the contributions made from residential property. Through solid land use and financial planning, the county has maintained a stable, relatively low real estate tax rate for the past decade while continuing to provide top notch services to its residents. Utilizing the benefits of C /I, an increase in C/I land uses would offer the county an even greater ability to provide services or cover the increasing costs of services. Recognition of C11 Contributions to the Tax Base Commercial and industrial land uses offer significant benefits to the community, in terms of tax contributions (real estate, meals, machinery, room, etc.) with minimal expectations and impacts on county services. C/I land uses also offer key employment opportunities for the residents of the county to help improve their individual quality of life and achieve their personal goals. THE 2030 COMPREHENSIVE PLAN APPENDIX II - BACKGROUND ANALYSIS AND SUPPORTING STUDIES Based on the 2010 tax revenues, C/I properties represented more than 13 percent of the total real estate property assessments in the county, but accounted for less than 2 percent of the land area within the county. While land values will certainly fluctuate with the ebb and flow of the economy, C/I values will continue to be significant contributors to the county's tax base and more importantly, C/I tax contributions will offset the residential land use cost for services. Target: Plan for C/I to Represent 25 Percent of Real Estate Assessments In an effort to maintain the county's ability to provide high quality services while at the same time maintaining low real estate tax rates, the 2030 Comprehensive Plan is utilizing land use planning and C/I opportunities to offset impacts from existing and planned residential uses. If it is a goal for Frederick County to have 25 percent of the total county assessments come from C/I land use values, then it is obvious that at only 13.56 percent (4,556 acres) the county needs additional developed C/I uses. To achieve the 25 percent assessment target in 2010, an additional 2,761 developed acres of C/I land uses would have been needed. Recognizing the county's 2.9 percent annual growth rate over the past 3 decades, the 2030 Comprehensive Plan should be designed to accommodate an additional 4,859 acres of new C/I opportunities. This projection indicates that the 2030 Comprehensive Plan should contain a minimum designation of 12,176 acres for C/I land uses within the Sewer and Water Service Area (SWSA). Further fluctuations may be anticipated with additional residential growth. 2030 Comprehensive Plan The 2030 Comprehensive Plan has been developed to incorporate a balance of land uses in order to achieve needed tax revenues. The Plan achieves the land use policy target of ensuring that 25 percent of the projected assessments will be in C/I land uses. This is accomplished by designating 16,700 acres for future C/I land uses, which will occupy approximately 2/3 of the 25,000 -acre Sewer and Water Service Area (SWSA). The Plan also incorporates opportunities for mixed use developments and single family residential uses at a minimum density of 4 units per acres within the designated Urban Development Area (UDA). The policy of directing residential growth into the UDA also promotes a more efficient use of land and community services, ultimately offering additional cost savings to the county. Mixed use developments also offer additional revenues to address the demands for services generated by the residential uses. Mixed -use developments - such as urban center and neighborhood villages - are planned developments that encourage and accommodate a mix of land uses. 40 THE 2030 COMPREHENSIVE PLAN APPENDIX II — BACKGROUND ANALYSIS AND SUPPORTING STUDIES These projects include an appropriate mix of commercial, office, and residential development. They provide an efficient development pattern that can foster economic development, provide diversity in land use, and reduce the number and the length of automobile trips. These mixed uses projects are encouraged in appropriate locations in the 2030 Comprehensive Plan. CONCLUSION The land use designations contained within the 2030 Comprehensive Plan accommodate the goal of providing 25 percent C/I land uses to 75 percent Other land uses. Maintaining a healthy C/I ratio will help the county maintain its current tax rates while continuing to enhance the services provided the residents - particularity in the area of education. It is through the use of land use policies contained within the Comprehensive Plan that these goals will be supported and achieved. In an effort to reinforce a sound policy basis that balances land use planninc and fiscal policies, the ratio of 25/75 between C/I and other land uses in terms of available land areas and taxable value of the land uses shall be the established benchmark. This policy shall dictate that at least 25 percent of the taxable land value (land plus improvement value) in the county should contain C/I land uses, and conversely that no more than 75 percent of the taxable land area should be for uses other than C/I land. By achieving this policy goal, the County will ensure that taxable land values equate to the projected expenditures. THE 2030 COMPREHENSIVE PLAN MM Cost - Benefit Analysis BDAS Report Appendix: Cost - Benefit Analysis Cost Estimates Parkins Mill Item Unit Price Total Pump Station 1 $ 1,250,000 $ 1,250,000 8" Force Main 9500 $ 30 $ 285,000 Waterline 19000 $ 30 $ 570,000 Fire hyrants 48 $ 2,500 $ 120,000 24' Rural Road 11000 $ 150 $ 1,650,000 Improve Ex. Road 10000 $ 80 $ 800,000 Regional Pond 1 $ 600,000 $ 600,000 increase sewage capcity $ 5,275,000 Total Winchester North Item Unit Price Total Rt 37 Slip Ramp 1 $ 1,250,000 $ 1,250,000 1 -81 Exit 317 NB Ramp Relocation 1 $ 6,200,000 $ 6,200,000 $ 7,450,000 Total Rest Church Item Unit Price Total Pump Station 1 $ 350,000 $ 350,000 6" Force Main 3500 $ 28 $ 98,000 Waterline 8500 $ 30 $ 255,000 Fire Hydrants 21 $ 2,500 $ 52,500 24' Rural Road 4500 $ 150 $ 675,000 $ 1,430,500 Total New Package Plant to increase sewage capcity to 500,000 GPD 1 $ 8,000,000 $ 8,000,000 $ 9,430,500 Total J 3 m O c V) G Q C C G CO y a m c U N } m i W i n i O i i a i M r Y v Y O O O O O O O 1 O O ti W Y M M ri v 00 00 �o n - o O O O O N m n a N N no i M Y m e O D O O V1 O N �y N O 0 O O O O O O M mm a M � m .n N �y N N N O O a O O O O O O e o � H N N a m N N Q Q OV 1 m r N N i m ti O m O m O W vl O ry n Y N a N N N N N N o m o n N a Y m m 0 0 0 +A N 0 0 O N a N N O O o O VOI ti e e > n m N N m m O Q O m a v e e n m Y N oN N N oo 1 .e'i o NO n o Y ry m N N N 0 0 � N m N N O JI N N Y r m r r � N N O N 3 7 V1 v u v j r u ~ a 0 Z o o u 2 o a V j i c 3 v Q U Q U K O i m ti O m O m O W vl O ry n Y N a N N N N N N o m o n N a Y m m 0 0 0 +A N 0 0 O N a N N O O o O VOI ti e e > n m N N m m O Q O m a v e e n m Y N oN N N oo 1 .e'i o NO n o Y ry m N N N 0 0 � N m N N O JI N N Y r m r r � N N O N C W r u ~ r U h V Z o o u 2 o a W j i c 3 v Q U Q U H K 0 O m N Y w i n i O i i e r r T T O tiO b O m o d O ti n ry N To m n m n . m na m x N �Q v n m > v. n ry n N C3 i m r m � N . n i a u ui i e � H O l O c 1 0 ' ry - ti ro O v w n Y O M �i ro L of m - O W o ti m 6 o m °o °m N 'ef N N ti N a m m v o H e n N N ti e i Oml W - �m 0 N N ' m o a m w v o 0 �O O r u m N r N VrR ' m m m N°u m r a f � O W O m rry .+ o � m N i 9 a - 3 3 C W Q U Q U K H Z i 9 a - 3 3 m 0 L v 0 C Q N 0 C m Y a O C U1 N 0 O i W v a r m v Y i Q r r YI I all 0 0 0 0 m m N r N N O O 0 0 aC n N N O O +o n m � N N O O N n +o m N N 0 0 N N O O O O m m a N N O O W b N VI O O 0 0 m m O N O O N N o a Q o O Ln N f O O ° °n m e o a ti O N N O O m w o m N N O O 0 0 � ry o °oo ui v H m N O O O O N Q N O O e o vmn. a O O o 0 e ri o � v N � O C r O N N v 3 3 C V1 N C v W 0 0 w > � Q li Q U w C C O �m 0 n n > O W 0 o w ry a > N N O .n o o e +o m n m � m v n o N n ry ry m > m o c n T N N O O O N N M > N N N 0 O o m n o > N No -m+ c m T ry N > N N NO O N vQl > N N N O ti ry N N a N N i o m v o n m ry e N N O � Q � N N N N O b N e ri N N m N o � r e N Q N 0 0� o ry r m N N O m 0 e � N N O ON r °w N m 0 o n m N N O O V O N N 0 r O v r O r n i 0 i i Q ' i i rN Y tQ•ry Q ro O i ao m n • m `m o 0 N N N N m N O i m e i .n+ q O m a i n m m m ♦ tQ0 ti N Q m v o ry N N N + m % m m o m ) N N +y N +D N N Q M O1 n i M r vni e N n m m i s q m m i °v i n m ) +o a N W rti r• 1 O N O r O+ y n Q N N O 3 W � C C O D V N w w � Z O 3 m O N �iy W bo 3 0 � � 3 Q � 0 07 C Y N a O a 0 i al i W N > Y v i Q v v > r i 0 0 ON 0 o m m o O] N > n O1 N N N o o m o 0 0 o e 0 � 0 0 m a � N N N O O O O O o o o O O T O O n .+ N N N O O O o n O N � N N 0 o 0 0 0 o o o m a I o °P N N O O O o o o 0 0 N > a m o o Q o 0 0 0 0 a Q O Sri o o m NN NN 0 0 M o o o o o o ry m m w w N N O O Q i a ry .. 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