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1993-09-20 Work Session NEW HANOVER COUNTY BOARD OF COMMISSIONERS CONTINUED MEETING AND WORK SESSIONS, SEPTEMBER 20, 1993 BOOK 23 PAGE 712 ASSEMBLY The New Hanover County Board of Commissioners held a Work Session on Monday, September 20, 1993, at 1:00 P.M. in Room 501 of the New Hanover County Administration Building, 320 Chestnut Street, Wilmington, North Carolina. Members present were: Commissioners Sandra Barone; WilliamA. Caster; William E. Sisson, Jr.; vice-Chairman E. L. Mathews, Jr.; Chairman Robert G. Greer; Assistant County Manager, Dave Weaver; and Clerk to the Board, Lucie F. Harrell Chairman Greer called the Work Session to order and stated the purpose of the meeting is to discuss revisions of Land Use Plan after public comments received on September 7, 1993. Planning Director, Dexter Hayes, presented a revised Land Use Plan and reviewed Pages 1 through 74 reflecting the changes incorporated in the Land Use Plan after the Public Hearing. Commissioner 1 . 1 ( 9 ) on Page 4 accomplished? Barone expressed and inquired as concern to how for the addition of this policy can be Planning Director Hayes explained that current regulations require 75 feet setbacks from estuarine areas and drainage must be handled through swales, not piped or di tched to the waterway; however, the ordinance does not address private or public funded projects. Section 1.1(9) will require all private or public funded projects to be constructed in a manner that will minimize a negative impact on estuarine areas. For example, road building projects often do not comply to restrictive stormwater management requirements with siltation and pollution runoff from publicly funded projects. vice-Chairman Mathews commented on 1.2(7) on Page 11 pertaining to floating homes and asked if any problems have been experienced with floating homes in the County? Planning Director Hayes reported several years ago problems were experienced with floating homes; however, text amendments were incorporated into the Zoning Ordinance which has resolved most of these problems. The proposed revision listed under 1.2(7) will prohibit floating home development which will protect the public trust and estuarine waters. Chairman Greer commented on Section 11 on Page 15 and inquired as to why Class IV Standards were deleted in the use of private package treatment plants, and will this section, if approved, close all private package treatment systems in the County? Planning Director Hayes reported Class IV Standards are used for large volume package treatment plants with the requirement that an operator be on duty to ensure the system is properly functioning. Private package treatment plants throughout the County do not have operators; therefore, the only way the County becomes aware of a malfunctioning plant is through notification from a citizen who sees waste floating down a creek. The proposed revision will allow the County to support only package treatment plants of the highest quality. Assistant Planning Director, Patrick Lowe, commented on discussion of this matter by the joint Planning Boards and explained that Class IV Standards do not guarantee the highest safety standards; therefore, it was agreed to use compromise language that could fit the situation and not involve a full time operator. The systems would be gradually phased out and hopefully new package treatment plants will have state-of-the-art equipment. Presently, there is a malfunctioning system at the convenience NEW HANOVER COUNTY BOARD OF COMMISSIONERS CONTINUED MEETING AND WORK SESSIONS, SEPTEMBER 20, 1993 BOOK 23 PAGE 713 store next to the Northeast Cape Fear River Bridge, which lS a new system. Chairman Greer expressed concern for the following language: "phasing out and eliminating the use of private package treatment plants that do not meet the most stringent State requirements feasible to ensure the protection of our estuarine waters" and he inquired as to what will happen to this company's investment? Planning Director Hayes reported private utility companies would be given time to recover their investments before phasing out a system. With continued growth and the lack of sewer throughout the County, more pressure will be applied to allow these types of package treatment systems to be placed in the County. Emphasis was placed on the need to strictly regulate these type of package treatment systems until the County sewer system is completed. Commissioner Sisson commented on the mineral resource policies that do not address the issue of water extraction and referred to the present controversy in Pender County with Martin- Marietta. New Hanover County does have areas where the water table is suspect with Porters Neck being one of these areas; therefore, some verbiage should be added to the plan under the Mineral Resources Policy. Planning Director Hayes recommended adding verbiage about groundwater extraction in policies dealing with aquifer and groundwater. It was agreed to request the Planning Director to add the additional language. Discussion was held on Section 2, Page 29. Commissioner Sisson recommended inserting a section that will request the State to explore the potential for amending State Law, if necessary, to allow transfers of development rights to occur. It was agreed to include this additional verbiage. Emphasis was placed on the importance of Section 3.0(6), Page 35, and the need for the City and County to coordinate efforts to develop regulations through interlocal agreements ln order to provide for a more orderly growth. Discussion held on Section 7, Page 37, which will allow establishment of commercial nodes as viable means of preventing encroachments into established or future neighborhoods as well as limit strip commercial zoning of major thoroughfares. vice-Chairman Mathews commented on Section 12, agreed with development of service/ frontage roads thoroughfares. Page 39, and along maj or Commissioner Caster expressed concern for Section 13, Page 39, and inquired as to why it is unacceptable to build along a commercial thoroughfare, such as College Road? Planning Director Hayes reported the N. C. Department of Transportation is opposed to the service/frontage roads concept because it increases additional rights-of-way and maintenance responsibilities. Also, Highway 132 was constructed with public funds to provide a thoroughfare for better movement of traffic and materials through New Hanover County. When development occurred on College Road with an unlimited number of curb cuts, the original purpose of the road was negated. Also, the cost of providing services (water and sewer) is much more costly on a linear foot. Discussion was held on Section 3.1(2), Page 40, encouraging housing opportunities for citizens of all economic status to include the elderly, physically and mentally challenged, single parent households, and the area's homeless population. NEW HANOVER COUNTY BOARD OF COMMISSIONERS CONTINUED MEETING AND WORK SESSIONS, SEPTEMBER 20, 1993 BOOK 23 PAGE 714 Commissioner Caster inquired as to why this section lS included in a planning document? Planning Director Hayes reported the State of North Carolina enacted legislation that allows group housing quarters in neighborhoods; therefore, this section was added to re-enforce the State's policy. Emphasis was placed on the increase in single parent households in New Hanover County and the need to address this sector of the population. Discussion was held on the new policies listed on Page 53 of the plan pertaining to encouraging the location of industries that will promote on-going education programs in marine sciences and will be compatible with the area's ecosystem. The City and County should encourage the location of diversified industries through the provision of an adequately trained employee pool with new industrial activities being located within existing industrial corridors. The tourism industry shall be considered in the recruitment and location of industrial firms. Industries that may pose a threat to the built or natural environment shall not be located in proximity to residential development or to established tourism attractions such as the historic core of the City of Wilmington. The operation and placement of oil refinery operations shall be prohibited in close proximity to established residential and historic resources or in such locations that may result in the potential for significant impact on the area's environmental resources. Discussion was held on Section 6, Page 55 referencing support of planned growth of the N. C. State Ports Authority. Commissioner Sisson expressed concern for the County not initiating more support of the Port, which is vital to the economy of the State and Southeastern North Carolina. Discussion of held on Section 3.4(8) Page 59, which addresses some concerns of the SOLO group by prohibiting new or enlarged through highways in areas classified as resource protection or conservation without a comprehensive environmental assessment of the proposed route. Discussion was held on Section 3.7(5), Page 65, the use of off-premise signs. Commissioner Caster inquired as to whether wording can be incorporated into the policy to avoid installation of signs that block the view on land and in the waterways. After further discussion of public safety, the Planning Director was requested to add additional verbiage. Discussion was held on Section 5.0(4), Page 71, pertaining to the event of a hurricane. Vice-Chairman Mathews recommended using "any natural disaster" in the document instead of referring to hurricanes only. It was agreed to change the verbiage to include any natural disaster. Vice-Chairman Mathews expressed appreciation to the Planning Staff for the excellent format and the effort given in developing the revised Land Use Plan. Chairman Greer commented on the Joint City/County Work Session scheduled for September 28, 1993, and recommended not holding the Work Session until comments have been received from the groups that requested the 30-day extension. Emphasis was placed on the importance of adopting a Land Use Plan that is workable and will serve all interests of the County. Commissioner Sisson reported the public has spoken and their needs are well documented. Bill Cameron, Dan Dawson, Terry Bache and others were aware of the Public Hearings held and could have presented their concerns during those meetings. He strongly objected to the delay in adoption of the Land Use Plan. NEW HANOVER COUNTY BOARD OF COMMISSIONERS CONTINUED MEETING AND WORK SESSIONS, SEPTEMBER 20, 1993 BOOK 23 PAGE 715 vice-Chairman Mathews commented on the schedule adopted at the September 7, 1993, meeting and suggested complying to the November deadline. Concern was expressed for the Coastal Resources Commission adopting the plan as submitted if the County Commissioners do not adopt a plan by November. Consensus: After a lengthy discussion on the 30-day delay, it was the consensus of the Board to take the following action: -Hold Joint City/County Work Session on September 28, 1993, at 5:30 P.M. in the City Council Chamber to discuss the Airport Burn pit Site Clean-up, if necessary. -Hold the City/County Public Hearing on October 11, 1993, at 7:00 P.M. in the City Council Chambers as scheduled to hear comments from the industrial and trade groups who requested the 30-day delay. Authorize the Chairman to write a letter to these groups to submit written comments before the October 11 Public Hearing with those comments being presented at the Public Hearing that evening. After the Public Hearing is closed, the City and County can decide on the dates for additional Work Sessions, if necessary. -Adopt the plan the last week in November. Chairman Greer, on behalf of the Board, expressed appreciation to the Planning Staff for the time and effort given in preparing the revised Land Use Plan. Chairman Greer expressed concern for a letter received from the N. C. Department of Human Resources and inquired as to why the Assistant Planning Director, Patrick Lowe, called this office and informed them of the 30-day delay when the date for adoption of the plan is still pending? Assistant Planning Director, Patrick Lowe, reported the previous schedule for adoption of the plan in October had already been forwarded to John Crews, with the N. C. Department of Human Resources; therefore, the plan would have been adopted before the Coastal Resources Commission (CRC) meeting scheduled in November. The purpose of the call was to inform them of the delay in order to see if the 30-day extension would create a problem. Discussion of Terms for Newly Elected Trustees to New Hanover Regional Medical Center Chairman Greer reported on meeting with Attorney Dumay Gorham, representing New Hanover Regional Medical Center, relative to a request from the Hospital Board of Trustees for implementation of an appointment schedule to comply with three year terms. The proposed plan would appoint four members for 3 -year terms and gradually increase the membership to 20 Trustees at which time the membership would begin to decrease and return to 15 members. At the meeting this morning, the Commissioners appointed two members to serve 2-year terms with one member serving a 3-year term which would stagger the terms and allow the membership to remain at 15. He requested direction from the Board. Commissioner Sisson recommended allowing the appointments to remain unchanged as voted upon at the regular meeting this morning. He expressed concern for this being a problem to the Hospital Board of Trustees and stated, in his opinion, this type of decision should be made by the Board of County Commissioners. Commissioner Caster reported on seeing the implementation plan, but stated he was not aware the plan had been written into the Hospital By-Laws. Consensus: After discussion of the By-Laws already being amended, it was the consensus of the Board to decide on the terms of office NEW HANOVER COUNTY BOARD OF COMMISSIONERS CONTINUED MEETING AND WORK SESSIONS, SEPTEMBER 20, 1993 BOOK 23 PAGE 716 for the newly elected Trustees at the meeting scheduled for October 4, 1993. BUDGET WORK SESSION ON METHODICAL REVIEW OF COUNTY GOVERNMENT Assistant County Manager, Dave Weaver, reported the following topics will be discussed: Who lS New Hanover County? How lS New Hanover County Government made up? What direction should future workshops take? Presentation of Statistical Data on New Hanover County Family Staff Planner I, Chris O'Keefe, and Planner I, Wanda Coston, presented relevant statistics on housing, household composition, ancestry; commuting time for workers; employment, income, education, and age groups in New Hanover County. Population figures were presented reflecting growth from 1970 until 2010. Emphasis was placed on the fact that the population figures projected for revising the Land Use Plan were underestimated. The figure projected for 1992 was 124,000 with an actual increase of 128,000. The rate of growth has been at 3.7%, and if this growth continues, the population by the year 2000 will be 170,000. Figures were presented on the median age from 1970, at 27.6, to 37.3 by the year 2000. The housing units have increased from 31,475 in 1970 to 67,535 by the year 2000. Aid to Families to Dependent Children has doubled since 1987 until July 1993. Other figures were presented on the increase in crime and the school population. In summary, New Hanover County ranked 11th among the most populous counties in the State and the third highest in retail sales. The County also ranked 18th among 23 counties with net migration rates of 10% or greater. The 2.5% population growth for 1991 and 3.7% for 1992 are the highest annual growth rates for the County since 1980. The labor force has grown by an average of 2.2% per year in the past five years; however, in 1991, the number of unemployed people reached its highest level since 1984. Emphasis was placed on the need to prepare and plan for the present and future growth in order to meet demands on County services. Overview of County Government Budget Director, Cam McAbee, presented an organizational chart of County Government reflecting budget figures for each department. A chart of expenditures and general government revenues was presented for the past ten years. Discussion was held on the manner ln which information is presented during the budgetary process. Commissioner Sisson requested that figures be presented to show exactly how much money is being allocated to each department or agency, such as the DSS or the schools. Chairman Greer expressed difficulty in understanding revenues and expenditures for the various departments and the manner in which figures are presented. For example, with the DSS Budget, at one place it appears that the County's contribution is $27 million and in another place it appears that the County's contribution is $9 million. After further discussion, it was agreed to request figures that will show the direct relationship between the different County funds and various major transfers that are moved from one fund to the other. Commissioner Sisson reported on the Southeastern Center's budget where monies must pass through the Center in order for various agencies, such as the Thomas S or Willie M programs, to NEW HANOVER COUNTY BOARD OF COMMISSIONERS CONTINUED MEETING AND WORK SESSIONS, SEPTEMBER 20, 1993 BOOK 23 PAGE 717 receive funds. When reviewing the budget for the Center, these funds have to appear in the budget, but do not relate to the costs involved with operation of the Southeastern Center. He recommended preparing a separate section for pass through funds when presenting budget figures in order to clarify actual dollars for an agency of this type. After further discussion, it was agreed that a separate section should be prepared showing funds received and passed through to other agencies when presenting department budgets. The following major budget issues were presented: Education: Nearly 26% of the County's expenditures (excluding enterprise funds) are for education. This figure continues to grow, and if the voters approve the $53 million bond issue the tax rate will increase by six cents over the next several years. If the bond issue fails, the County will then have to decide how to fund the needs of the schools and Cape Fear Community College. Also, if the State continues to pass down more school items to be locally funded, this matter will have to be addressed. Consolidation: It appears the atmosphere for consolidating various Ci ty and County Departments is more favorable. The following departments are ideal candidates for consolidation or merger: (1) Law Enforcement; (2) Parks/Recreation; (3) Planning; (4) Management Information Services; and (5) Purchasing. As to an immediate savings from the consolidation or merger of various departments, it would not be noticed on a short-term basis but should become cost effective on a long-term basis. Fire Service: The Special Fire Service District was established in 1986 to provide funds to volunteer fire department in the unincorporated areas of the County. The Commissioners established a Board of Fire Commissioners to assist and advise them on fire- related matters, including but not limited to departmental budgets, changes in fire legislation, and recommendations relative to the annual contracts between the volunteer fire departments and the County. The Fire District property tax rate for property owners within the service district is 2.5 cents for FY 1993-94. The Department of Emergency Management serves as the staff liaison to the Board of Fire Commissioners. As the County becomes more urbanized and the training requirements for volunteer fire fighters becomes more complex, some changes may have to be considered in providing fire protection services. The following options were presented: (1) a paid full-time fire service; (2) contract with the City of Wilmington for fire protection; (3) contract with a private provider for fire protection; (4) a mix of paid and volunteer firefighters; and (5) continue with all volunteer firefighters. Environmental Management: Future funding for solid waste disposal is a rnaj or issue facing the County. Al though the County has tradi tionally relied primarily on the tip fee to pay the large capital costs for WASTEC and the Landfill, there is concern for the high tip fee at $60 per ton. The fee would be higher if the operation was not subsidized by $2.5 million from unobligated sales tax revenues and General Fund transfers. The tip fee will not decrease over the next several years because of the high debt service cost which is now more than $4 million per year. If the tip fee remains high, there could be a problem with controlling the solid waste flow in the County. A low tip fee of $20 to $30 per ton would be the most effective way to keep solid waste in the County. Other environmental issues are cleaning up the Airport Burn pit Site and the Flemington Landfill Clean-up. The Board is aware of the situation with the Burn pit; however, the County (along with seven other defendants) is now facing action by EPA to recover NEW HANOVER COUNTY BOARD OF COMMISSIONERS CONTINUED MEETING AND WORK SESSIONS, SEPTEMBER 20, 1993 BOOK 23 PAGE 718 $400,000 in EPA costs for investigation into potential pollution caused by the closed Flemington Landfill. The County's share would be approximately $80,000. Future EPA and State monitoring costs will be incurred. Water & Sewer District: The Water & Sewer District has reached a critical point in its growth due to no revenue sources for future expansion of the system. Also, additional funds will be needed if the County decides to aggressively expand water service to areas beyond the service areas recently purchased by the County. Assistant County Manager, Dave Weaver, reported the data has finally been received from the former consulting engineer and the Sewer Task Force will begin to meet and become more active in preparing the next sewer study. Capital Projects: In FY 1992-93, funds in the amount of $200,000 were budgeted for future Capital Projects. In FY 1993-94, no funds were budgeted for Capital Projects, but the following requests were presented for consideration at a later date: Parks: Plans to utilize bond funds for parks acquisition and development. Emphasis is now being placed on planning for acquired park areas. Plans for the downtown park are now being finalized by a citizens committee. The funding goal has been reached by solicitation of private contributions. Aging: The Department of Aging is requesting funding to expand the parking area at the new Senior Center by 103 spaces for storage of miscellaneous equipment. The Department is also requesting a 40' x 20' enclosed heated pool. Emergency Medical Services: A substation in the Empie Park area would provide separate quarters for the EMS staff currently housed at the Empie Park City of Wilmington Fire Station. Cooperative Extension Service: The Cooperative Extension Service is requesting funding to refurbish the exterior of the building and construct rest room facilities with handicap access for Arboretum guests and visitors. Health Department/Vector Control: Funding is being requested to replace the current Vector Control trailer with a 1,000 square foot addition to the Vector Control Lab. Library: The Library is requesting construction of a northeast branch library to serve the citizens in that area. It would be located on a recently purchased site, consist of a 12,000 square foot building, and provide parking spaces for 75 vehicles. This would replace the Plaza East Branch Library. They also wish to hire an architect to develop a master plan for the future expansion of the Main Library. Department of Social Services: The Department of Social Services is requesting funding to expand its current facility due to non-compliance to federal guidelines. Expansion of Office Space for County Employees and Improvements to the Annex Building: The space needs for County employees and improvements to the Annex Building are needs that will have to be addressed in the not too distant future. Implementation of a County-wide Communications System: This project has already begun with the construction of the Radio Tower. Expansion of Jail and Judicial Facilities: The jail NEW HANOVER COUNTY BOARD OF COMMISSIONERS CONTINUED MEETING AND WORK SESSIONS, SEPTEMBER 20, 1993 BOOK 23 PAGE 719 facilities are already overcrowded, and as the State adds programs, additional office space, by State Statute, will have to be provided in the Judicial Building. Assistant County Manager Weaver announced this concludes the presentation and requested the Board to decide on whether the budget review should follow a detailed departmental analysis or be based on the functions provided by County government with the overall picture of the resources necessary to provide these functions. Chairman Greer expressed concern for continually increasing funding for departments, such as WASTEC, where funds are budgeted in a fiscal year for capital expenditures but are used for another purpose. During the next fiscal year, funds will be allocated again for the purchase of the equipment which increases the department's budget by that amount. A perfect example of this situation was approval of a $3 million Special Obligation Bond Issue for WASTEC to purchase equipment that was budgeted last year, but spent on other items. He strongly objected to continuing this practice, which increases the department's budget and the County's debt service. Commissioner Sisson stated, in his opinion, the County is paying for past neglect of WASTEC; however, with the improvements in maintenance and personnel, the cost of operation and expenditures can be better controlled. He recommended that debt service be broken down by departments. It was agreed that a breakdown of debt serVlce as applicable to each department would be beneficial. Assistant County Manager Weaver reported $1.3 million was budgeted for the landfill cell expansion and closure; however, funds were used for needed improvements to the Waste-to-Energy Facili ty and for the shortfall experienced from the loss of electric revenues due to an error by Carolina Power & Light Company. With completion of the expanded facility, implementation of the Preventative Maintenance Plan, and additional qualified staff, the budget process and forecast for WASTEC should greatly improve with more accurate projections of revenues and expenditures. Chairman Greer requested Board approval of any maj or purchases or change in line items. He also expressed concern for obligated general fund monies being transferred over from one budget year to the next budget year and requested designating these funds as a designated part of the fund balance. For example, if the Health Department budgeted $300,000 for the purchase of a computer system in FY 1993-94 and these funds were not expended during that fiscal year, there should be a way to know that the $300,000 is still pending before purchasing some other item. Budget Director McAbee reported these funds are rolled over as unencumbered with the designated items purchased during the next fiscal year. After further discussion, Chairman Greer requested the Board to decide if a line item review or function approach should be used ln the FY 1994-95 budgetary process. Consensus: After discussion, it was the consensus of the Board to direct staff to perform a functional review. Commissioner Barone expressed concern for the following items and requested the Commissioners to consider review of these recommendations during the budgetary process: Travel Policy: Only one person should attend meetings with NEW HANOVER COUNTY BOARD OF COMMISSIONERS CONTINUED MEETING AND WORK SESSIONS, SEPTEMBER 20, 1993 BOOK 23 PAGE 720 any pertinent data brought back to other interested employees. There is no reason to allow four or five persons from a department to attend the same meeting. Accountability for Personal Telephone Calls: There should be some accountability for personal telephone calls. If employees are making personal phone calls, they should pay for the cost of the call plus a 20% administration fee because of the time taken from company business to conduct personal business. This fee would discourage personal calls. Supplies: Investigate the manner ln which the County purchases supplies. Training: Mandatory training is fine, but voluntary training is not necessary during the downsizing of government. Discussion was held on the length of the proposed Budget Work Sessions. Commissioners Caster and Sisson requested adhering to a time schedule in order to plan time away from work. Consensus: It was the consensus of the Board to hold the next Budget Work Session on Thursday, September 30, 1993, after the staff meeting from 10:00 A.M. until 11:00 A.M. with two functions being presented. ADJOURNMENT Motion: Commissioner Caster MOVED, SECONDED by Commissioner Sisson to adjourn. Upon vote, the MOTION CARRIED UNANIMOUSLY. Chairman Greer adjourned the continued meeting and Work Session at 5:20 P.M. Respectfully submitted, Lucie F. Harrell Clerk to the Board . . . ~ MrNUTES OF CONTINUED MEETING AND WORK SESSIONS ON LAND USE PLAN AND BUDGET REVIEW, SEPTEMBER 20" 1993 PAGE 720 any pertinent data brought back to other interested employees. There is no reason to allow four or five persons from a department to attend the same meeting. Accountability for Personal Telephone Calls: There should be some accountability for personal telephone calls. If employees are making personal phone calls, they should pay for the cost of the call plus a 20% administration fee because of the time taken from company business to conduct personal business. This fee would discourage personal calls. Supplies: Investigate the manner in which the Co~nty purchases supplies. Training: Mandatory training is fine, but voluntary training is not necessary during the downsizing of government. Discussion was held on the length of the proposed Budget Work Sessions. Commissioners Caster and Sisson requested adhering to a time schedule in order to plan time away from work. Consensus: It was the consensus of the Board to hold the next Budget Work Session on Thursday, September 30, 1993, after the staff meeting from 10:00 A.M. until 11:00 A.M. with two functions being presented. ADJOURNMENT Motion: Commissioner Caster ~OVED, SECONDED by Commissioner Sisson to adjourn. Upon vote, the MOTION CARRIED UNANIMOUSLY. Chairman Greer adjourned the continued meeting and Work Session at 5:20 P.M. Respectfully submitted, ~y::~ Clerk to the Board ~