Maintaining the Commitment

2005 Land Preservation, Parks, and Recreation Plan

Wicomico County, Maryland

February 2006

The Wicomico County Council adopted this plan on ______as a guide for land preservation and recreation in Wicomico County.

Wicomico County Department of Recreation, Parks, and Tourism

Land Preservation, Parks, And Recreation Advisors

Urban Research And Development Corporation Donald R. Marushak in association with Bethlehem, Pennsylvania Allentown, Pennsylvania

Wicomico County Council

Anthony S. Sarbanes, President/At Large Charles Dashiell, Vice President/At Large Edward T. Taylor, District 1 Stevie Prettyman, District 2 Gail M. Bartkovitch, District 3 Marvin R. Long, District 4 Larry W. Dodd, District 5

Wicomico County Salisbury/Wicomico Recreation Commission Planning Commission Ed Urban, Chairman Bill Hearn Corrine Les Callette, Chairman

Frank Gordy, Vice Chairman Kim Moreno Donald Bounds, Vice Chairman

Ralph Cordrey Trent Molnar James Magill

Mike Delano Barthine Sells Glen Robinson

Jimy Reed Mike Dunn Marvin Long

Bob Janeski Tony Sarbanes Lynn Cathcart

Tim Emge Mike Mercer Scott Rogers

Gary W. Mackes, Director Jack Lenox, Director

John E. Terrell Jr., Deputy Director

Wicomico County Department of Recreation and Parks Staff

Salisbury-Wicomico County Department of Planning, Zoning and Community Development Staff

Funding for this project was provided by Maryland’s Program Open Space administered by the Maryland Department of Natural Resources

ACKNOWLEDGEMENTS

The Wicomico County Department of Recreation. Parks, and Tourism expresses its appreciation for the cooperation and assistance that the following agencies and groups extended to our consultant and us during the preparation of the 2005 Wicomico County Land Preservation, Parks, and Recreation Plan.

Chesapeake Bay Foundation City of Salisbury Delmar Recreation Council East Side Recreation Council Friends of Pemberton Historical Park Local businesses Mardela Recreation Council Maryland Department of Natural Resources Maryland Department of Planning Pemberton Historical Park Advisory Board Salisbury Advisory Council on Youth Activities Salisbury Area Chamber of Commerce Salisbury-Wicomico Dept. of Planning, Zoning, & Community Development Salisbury and Wicomico County Planning Commissions Sharptown Recreation Council The Nature Conservancy Town of Delmar Town of Fruitland Town of Hebron Town of Pittsville Town of Sharptown Town of Willards U.S. Department of Agriculture, Soil Conservation Service West Side Community Center Advisory Board West Side Historical Society Wicomico County Agricultural Preservation Board Wicomico County Council Wicomico County Public Schools Wicomico County Recreation Commission Wicomico County staff Wicomico County Tourism Board Wicomico Environmental Trust Wicomico Equestrian Center Advisory Board Wicomico Historical Society

2005 Wicomico County Land Preservation, Parks, and Recreation Plan

CONTENTS

PAGE

CONTENTS ...... i

EXECUTIVE SUMMARY ...... vii

INTRODUCTION...... 1–1

Purposes of the Plan ...... 1–1 Local Preparation of the Plan ...... 1–3 Public Participation...... 1–4 Relationship to the Comprehensive Planning Process ...... 1–5 Recreation and the Quality of Life ...... 1–5 Economic Impacts...... 1–6 Social Benefits...... 1–6 Environmental Benefits...... 1–6 Personal Benefits...... 1–6 County Accomplishments ...... 1–7 Growing Older: The Importance of Maintenance ...... 1–10 Funding Challenges...... 1–11 Definitions Used in the Plan...... 1–12

FRAMEWORK ...... 2–1

Physical Characteristics ...... 2–1 Critical Areas, Wetlands, and Floodplains ...... 2–1 Woodlands and Natural Areas ...... 2–2 Development Pattern...... 2–3 Demographic Characteristics...... 2–5 Planning Areas...... 2–5 Population ...... 2–5 Age...... 2–7 Gender...... 2–7 Income...... 2–8 Current Planning Policies ...... 2–9 Resource Conservation Objectives ...... 2–9 Natural Resource and Sensitive Areas Protection Objectives ...... 2–9 Open Space and Recreation Objectives ...... 2–10 Open Space and Recreation Policies...... 2–10

2005 Wicomico County Land Preservation, Parks, and Recreation Plan

PAGE

RECREATION, PARKS, AND OPEN SPACE...... 3–1

Goals and Support...... 3–2 Needs Analysis...... 3–6 Land ...... 3–6 Facilities...... 3–9 Greenways, Bikeways, and Other Linear Corridors ...... 3–13 Heritage Tourism...... 3–14 Water Access...... 3–15 Programs ...... 3–16 Finances ...... 3–17 County Priorities...... 3–20

PLANNING AREAS...... 4–1

Tri-Town Planning Area...... 4–3 West Side Planning Area ...... 4–5 North Planning Area ...... 4–7 Central Planning Area...... 4–9 South Planning Area ...... 4–13 East Planning Area...... 4–15

AGRICULTURAL LAND PRESERVATION...... 5–1

Introduction...... 5–1 Background and Goals...... 5–1 Current Implementation Program ...... 5–6 Preservation Areas ...... 5–6 Easement Acquisition Mechanisms ...... 5–7 Wicomico County Agricultural Land Preservation Program...... 5–7 Maryland Agricultural Land Preservation Foundation...... 5–8 Maryland Rural Legacy Program...... 5–9 Maryland Environmental Trust...... 5–9 Funding for Easement Acquisition ...... 5–10 Land Use Management Authority...... 5–10 Farming Assistance Programs...... 5–11 Implementation Program Evaluation ...... 5–11 Preservation Strategy ...... 5–11 Funding ...... 5–12 Land Use Management Tools ...... 5–13 Program Performance ...... 5–14 Effects of Potential Development On Land Markets...... 5–14 Farming Assistance...... 5–15 Summary...... 5–16 ii

2005 Wicomico County Land Preservation, Parks, and Recreation Plan

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NATURAL RESOURCE CONSERVATION...... 6–1

Introduction...... 6–1 Background and Goals...... 6–1 Current Implementation Program ...... 6–5 Comprehensive Planning Context...... 6–5 Preserved Land and Green Infrastructure ...... 6–5 Easement Acquisition ...... 6–8 Land Use Management Authority...... 6–8 Implementation Program Evaluation ...... 6–9 Partnerships B The Critical Element of Resource Conservation ...... 6–9 Other Resource Conservation Program Elements...... 6–9 Potential Improvements ...... 6–10

LAND PRESERVATION, PARKS, AND RECREATION PLAN ...... 7–1

Plan Organization...... 7–1 County Perspective ...... 7–1 Policy/Program Recommendations...... 7–2 Recreation and Parks...... 7–2 Agricultural Preservation...... 7–8 Natural Resource Conservation ...... 7–10 Capital Recommendations ...... 7–12 Tri–Town Planning Area ...... 7–15 West Side Planning Area ...... 7–17 North Planning Area ...... 7–19 Central Planning Area...... 7–21 South Planning Area ...... 7–23 East Planning Area...... 7–25

APPENDIX – Wicomico County Recreation Areas and Facilities, 2005...... A–1

MAPS

2.1 Regional Location...... 2–2 2.2 Critical Areas, Wetlands, and Floodplains ...... following 2–2 2.3 Woodlands and Natural Areas ...... following 2–2 2.4 Development Pattern...... following 2–4 2.5 Land Conditions for Development...... following 2–4 2.6 Development Status 2000 ...... following 2–4 3.1 Wicomico County Parks and Recreation System, 2005 ...... following 3–6 3.2 Bikeways and Greenways...... following 3–14 4.1 Planning Areas...... following 4–2 5.1 Land Targeted for Preservation ...... following 5–4

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MAPS (Continued)

6.1 Preserved Land...... following 6–6 6.2 Green Infrastructure Hubs...... following 6–6 6.3 Preserved Land and Green Infrastructure Hubs...... following 6–10 7.1 Land Preservation, Parks, and Recreation Plan – Wicomico County.following 7–2 7.2 Land Preservation, Parks, and Recreation Plan – Tri–Town Planning Area ...... following 7–14 7.3 Land Preservation, Parks, and Recreation Plan – West Side Planning Area ...... following 7–16 7.4 Land Preservation, Parks, and Recreation Plan – North Planning Area ...... following 7–18 7.5 Land Preservation, Parks, and Recreation Plan – Central Planning Area ...... following 7–20 7.6 Land Preservation, Parks, and Recreation Plan – South Planning Area ...... following 7–22 7.7 Land Preservation, Parks, and Recreation Plan – East Planning Area ...... following 7–24

TABLES

1.1 Projects Completed, 1999–2003 ...... 1–8 1.2 Preserved Land by Program, 1999–2004...... 1–10 2.1 Metro Core Development, 1986–2004 ...... 2–3 2.2 Population, 1990–2020...... 2–6 2.3 Population by Planning Area, 1990–2020 ...... 2–7 2.4 Population by Age, 2000...... 2–8 2.5 Gender, 2000...... 2–8 2.6 Median Household Income, 1989–1999...... 2–8 3.1 Wicomico County Park Types...... 3-2 3.2 Wicomico County Recreation Sites, 2005...... 3-7 3.3 Recreation Land Classification and Need, 2005...... 3–8 3.4 Recreation Land, 2005–2020...... 3–8 3.5 Public Recreation Facility Supply, 2005 ...... 3–10 3.6 Public Recreation Facility Demand, 2005–2020 ...... 3–10 3.7 Public Recreation Facility Needs, 2005...... 3–11 3.8 Public Recreation Facility Needs, 2010...... 3–12 3.9 Public Recreation Facility Needs, 2015...... 3–12 3.10 Public Recreation Facility Needs, 2020...... 3–13 3.11 Public Recreation Registration, 1999–2003 ...... 3–18 3.12 Recreation and Parks Budget, 2001–2003...... 3–19

2005 Wicomico County Land Preservation, Parks, and Recreation Plan

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TABLES (Continued)

5.1 Selected Agricultural Characteristics, 1978–1992...... 5–2 5.2 Selected Agricultural Characteristics and Changes, 1997–2002 ...... 5–2 5.3 Agricultural Land Use, 1978–2002...... 5–2 5.4 Preserved Land by Program, 1987–2004...... 5–12 6.1 Green Infrastructure Hub Characteristics ...... 6–7 7.1 Comparison of Land Preservation Value and Development Value...... 7–9 7.2 Summary of Capital Recommendations ...... 7–12 7.3 Proposed Capital Improvements, Tri-Town Planning Area ...... 7–15 7.4 Proposed Capital Improvements, West Side Planning Area...... 7–17 7.5 Proposed Capital Improvements, North Planning Area...... 7–19 7.6 Proposed Capital Improvements, Central Planning Area ...... 7–21 7.7 Proposed Capital Improvements, South Planning Area...... 7–23 7.8 Proposed Capital Improvements, East Planning Area ...... 7–25

FIGURES

5.1 Farmland Preserved vs. Agricultural Land Lost in Wicomico County ...... 5–15

2005 Wicomico County Land Preservation, Parks, and Recreation Plan

EXECUTIVE SUMMARY

The 2005 Wicomico County Land Preservation, Parks, and Recreation Plan is a significant step in planning within Wicomico County. The plan furthers the goals of the county comprehensive plan in addition to assessing progress in meeting the leisure needs of a growing population and helping to preserve land. The plan also presents a long-range capital improvements program for parks and recreation.

The plan is prepared in response to the requirements of Maryland’s Program Open Space (POS) and includes a complete discussion of relevant topics as prescribed in the guidelines from the Maryland Department of Planning (MDP) and the Maryland Department of Natural Resources (DNR) for POS plans. Chapters of the plan are:

1 Introduction 2 Framework 3 Parks and Recreation 4 Planning Areas 5 Agricultural Preservation 6 Natural Resource Conservation 7 Land Preservation, Parks, and Recreation Plan

The following summary provides a brief look at key information about Wicomico County and the recommendations of the plan.

Framework

The framework for the 2005 Wicomico County Land Preservation, Parks, and Recreation Plan includes information on the physical characteristics, demographic characteristics, and current planning policies of the county. The following points summarize the key findings of the plan framework.

• Wicomico County is the heart of the Delmarva Peninsula. Located south of Delaware between the Chesapeake Bay and the Atlantic Ocean, Wicomico County is within easy driving distance of the major cities on the east coast.

• Natural features cover a significant amount of land in Wicomico County. The Nanticoke, Wicomico, and Pocomoke Rivers, large areas of woodlands, large tracts of Chesapeake State Forest and other woodlands, wetlands, and much agricultural land give Wicomico County a rural character outside the City of Salisbury and the associated Metro Core.

• Development is centered on the City of Salisbury and the surrounding Metro Core. Pressure for Metro Core expansion and increased public services, including parks and recreation, is likely to occur to the west and northwest of Salisbury because of proximity to existing services.

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• Wicomico County population increased from 74,339 in 1990 to 84,644 in 2000, to an estimated 88,900 in 2005, which represents a 19.6 percent increase in 15 years. Population is expected to increase by an additional 16.2 percent to 103,300 by 2020.

• For planning purposes, the 2005 Wicomico County Land Preservation, Parks, and Recreation Plan divides the county into planning areas, with an approximate population distribution as follows:

o Central: 54% West Sector: 14% East Sector: 12% Salisbury: 28% o North: 10% o South: 18% o East: 6% o Tri-Town: 6% o West: 5%

• Clearly, the action with the largest impact on the recreation and parks system in Wicomico County is the local revenue cap approved by voters in November 2000.1 The revenue cap has severely affected many county services, including recreation and parks. Program fees have increased significantly, resulting in decreased participation. Support funding has been drastically reduced, which is causing maintenance to be deferred and will result in higher future costs or unsafe and unattractive park sites and subpar equipment.

Parks, Recreation, and Open Space

For several decades, Wicomico County has had a vibrant, growing park system and recreation programs that have provided residents with constructive, life-enriching leisure and educational activities. The recently enacted revenue cap has severely hampered the way in which the Depart- ment of Recreation, Parks and Tourism develops, renovates, and maintains the park system and offers recreation programs.

The Wicomico County parks system includes three major types of parks––countywide, community, and neighborhood––each designed to serve geographic areas based on the size of the park and the recreation facilities included in the park. The three park types work together to provide residents with a variety of recreation opportunities within a reasonable distance from home.

1 The calculation and consequences of the revenue cap are explained in more detail in chapter 1, the introduction to the plan.

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2005 Wicomico County Land Preservation, Parks, and Recreation Plan

The Wicomico County recreation system includes many parks, recreation facilities, and other recreation sites, some of which are owned and/or operated by quasi-public and/or private entities. The public recreation system—comprised of municipal, county, Board of Education, state, and federal sites—includes the following areas and facilities (Tables A–1 through A–6 in the appendix):

• 103 sites • 28 pavilions • 25,365.4 acres of land • 2.2 miles of beach • 48 softball fields (14 w/lights) • 33.5 miles of trails • 24 baseball fields (3 w/lights) • 18 concession stands • 58 football/soccer/lacrosse fields (6 w/lights) • 28 restrooms • 41 outdoor basketball courts (5 w/lights) • 12 boat ramps • 52 tennis courts (14 w/lights) • 263 boat slips • 30,350 stadium seats • 24 fishing and/or hunting areas • 54 playgrounds • 28 horseshoe courts • 282 picnic tables

Program Open Space (POS) sets a goal of 30.0 acres of local recreation land for every 1,000 residents (ac/000). The needs analysis conducted as part of the 2005 Wicomico County Land Preservation, Parks, and Recreation Plan identified 38.0 ac/000 of local recreation land (Table 3.3). Therefore, Wicomico County has met the POS goal for recreation land, and the county is eligible to use up to 100% of its POS allocation for development. Furthermore, the county should be able to meet the goal at least through 2020 (Table 3.4). Nevertheless, the county recognizes the continuing need for recreation land and open space and expects to acquire additional land to meet future recreation needs.

The needs analysis also determined the need for individual recreation facilities. The county currently has a need for two additional softball fields, seven football/soccer/lacrosse fields, one swimming pool, and one boat ramp (Table 3.7). The plan also identifies additional facility needs as the county population increases (Tables 3.8 through 3.10).

Greenways, heritage tourism, and access to water are also significant recreation issues in Wicomico County. Each topic is discussed in more detail in chapter 3.

Planning Areas

Chapter 4 of the plan presents the information from the plan framework and the recreation and parks system for each of the planning areas identified above. The plan also includes capital recommendations for each area.

Agricultural Land Preservation

Agriculture is a mainstay of the Wicomico County economy. The 2002 U. S. Census of Agricul- ture identifies 512 farms in the county on 88,470 acres producing goods worth $175 million (Tables 5.2 and 5.3).

2005 Wicomico County Land Preservation, Parks, and Recreation Plan

Five major programs/tools preserve agricultural land:

• The Wicomico County Agricultural Land Preservation Program, which uses county funds to purchase development rights. The goal of the county program is to preserve 200 acres of farmland per year.

• Maryland Agricultural Land Preservation Foundation (MALPF), which provides state money to purchase development rights. The state goal is to preserve 1,030,000 acres of farmland by 2022.

• Maryland Rural Legacy Program, which also provides state funds to purchase development rights. The goal set in the county application for the Rural Legacy program is to preserve 450 acres of land per year.

• The Maryland Environmental Trust (MET), which accepts donated easements. No goal has been established for land preservation through MET in Wicomico County.

• Wicomico County land development regulations, which require new residences in the agricultural zoning district to be clustered on smaller lots to preserve the remaining land. The county has not set a goal for land preservation through development regulation.

Approximately 7,730 acres have been preserved through the first four programs (Table 5.4), excluding local land development regulations). The 2005 Wicomico County Land Preservation, Parks, and Recreation Plan cites a prorated share of the MALPF goal as a combined goal for land preservation. If the MALPF goal were prorated on the basis of land area, Wicomico County’s share would be approximately 1,350 acres per year. At an average price of $1,500 per acre, meeting the total goal would require slightly more than $2.0 million per year.

Natural Resource Conservation

Wicomico County policies for natural resource conservation are rooted in the Wicomico County Comprehensive Plan (3 Feb 1998). The 2005 Wicomico County Land Preservation, Parks, and Recreation Plan endorses the county policies from the comprehensive plan.

The preserved lands in Wicomico County (Map 6.1) include:

• Land where development is prohibited or severely restricted by regulation, such as wetlands or Chesapeake Bay Critical Areas.

• Land upon which conservation easements have been purchased through The Nature Con- servancy, the Maryland Environmental Trust (MET), MALPF, Rural Legacy, or the Wicomico County agricultural easement purchase program.

• Land which is in public ownership for recreational use or to preserve natural features, such as the Chesapeake Forest, county and municipal parklands, or other lands owned by the federal, state, or local governments.

2005 Wicomico County Land Preservation, Parks, and Recreation Plan

• Natural areas, which have been identified as the location of a plant or animal species or geologic formation worth of preservation.

• Transmission line and railroad corridors––which foster wildlife migration and provide habitat and links between preserved lands––are likely to remain undeveloped as links in vital transportation systems.

The plan concludes that Wicomico County’s land preservation policies, illustrated by the pattern of preserved land in the county, do an excellent job of supporting the state’s Green Infrastructure concept (Map 6.3).

Land Preservation, Parks, and Recreation Plan

The plan itself is contained in the final chapter of the plan document and is composed of:

• A map (Map 7.1). • Policy recommendations in recreation/parks/open space, agricultural land preservation, and natural resource conservation. • A capital improvements program.

Policy recommendations are identified below by subject area.

Recreation/Parks (RP)-1 Continue to strengthen recreation council relationships to support programs and park operations.

RP-2 Continue to review the county fee structure for possible modifications to increase participation.

RP-3 Continue to establish and maintain park restoration funds to address capital rehabilitation issues.

RP-4 Consider establishing a small addition to the real estate tax to fund park and open space initiatives.

RP-5 Continue to use enterprise funding wherever possible for new recreation programs and recreation facility maintenance.

RP-6 Assess the life span of facilities that support Nanticoke Harbor and the Cedar Hill Marina and establish a “harbor restoration fee” (in addition to the annual rental fee) to replace/rehabilitate capital items as needed.

RP-7 Continue to bring visitors and dollars into the county by leveraging the county’s outstanding recreation and parks system. Specific examples include:

• The Henry S. Parker Athletic Complex, Perdue Stadium, and the Wicomico Youth and Civic Center should be promoted continuously as the potential site for as many regional and national sporting and entertainment events as possible.

2005 Wicomico County Land Preservation, Parks, and Recreation Plan

• Scenic bike routes should be expanded and promoted through department websites (www.wicomicorecandparks.org and www.wicomicotourism.org).

• Market the county as a one-day or weekend destination. Highlight specific county attractions, in essence “sharing” local resources with tourists, including:

Scenic bike routes Outstanding fishing and boating opportunities Natural and heritage areas Abundant flat land, particularly for low-impact outdoor fitness programs which appeal to the senior population Regional signature special events, such as Pork in the Park and the Wine Festival.

• Establish training programs for visitor counselors to increase knowledge of tourist attractions and develop skills in public contact.

• Help to establish and promote the proposed Blue Crab Scenic Byway.

RP-8 Explore the establishment of a county festival site.

RP-9 Work with DNR and local equestrian groups to develop equestrian trails in the Chesapeake Forest.

RP-10 Consider public/private partnerships, including corporate sponsorships and facility naming rights, to help fund county recreation activities.

RP-11 Work with the Board of Education to reduce the fees paid by the county for public recreational use of school facilities.

RP-12 Establish a public relations initiative to inform residents about the recent changes in financing public recreation at the county level (e.g., less local money to match other sources; less resources to begin new programs).

RP-13 Require developers to provide and improve land to establish neighborhood greens in new developments.

RP-14 Continue to evaluate older playgrounds to ensure compliance with the U. S. Consumer Product Safety Commission (CPSC) guidelines.

RP-15 Continue to enhance the comprehensive parks maintenance management program to ensure safe and attractive parks and to replace older equipment and vehicles.

RP-16 Establish an endowment to support scholarships and programs for the county’s at-risk populations.

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2005 Wicomico County Land Preservation, Parks, and Recreation Plan

RP-17 Continue providing land to support bike lanes in new developments.

RP-18 Work with DNR and MDP to develop public access to waterways through state lands, including the Chesapeake State Forest, and to utilize state lands for public trails, birding, photography, and biking opportunities.

RP-19 Consider developing recreation programs which address the leisure needs of the county=s continually diversifying population.

RP-20 Develop trail guides and features that explore and enhance the natural and historic features of Wicomico County.

Agricultural Preservation (A)-1 Consider modifying open space requirements to obtain parcels large enough to make farming a viable use of undeveloped land.

A-2 Expedite the review process for participating in the county agricultural preservation program to encourage participation in the program.

A-3 Develop an educational process for elected officials, real estate professionals, and residents to explain the benefits of a transfer of development rights (TDR) program.

A-4 Reduce the minimum acreage requirement for participation in the county easement program from 50 acres to 30-40 contiguous acres.

A-5 Expand the role of the county agricultural review board.

A-6 Develop alternative methods of compensation for easements to meet a variety of financial needs of farm families.

A-7 Update the land use element of the county comprehensive plan to reassess the most suitable areas for growth in the county by considering all elements of the landscape.

A-8 Reassess the impact of the county’s land development regulations on agricultural land preservation and make changes where appropriate.

A-9 Establish numerical goals for preserved open space and preserved agricultural land by specific program for an identifiable time period.

Natural Resouce Conservation (N)-1 Support the initiatives of various environmental groups to preserve open space and improve the quality of the Chesapeake Bay tributaries.

N-2 Consider land banking along Wicomico County waterways.

N-3 Strengthen the county focus on corridor development with an integrated approach involving state, county, and nonprofit groups to protect natural resources, habitat areas, and historic sites and to develop waterway trails.

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2005 Wicomico County Land Preservation, Parks, and Recreation Plan

N-4 Foster a strong working relationship between the county and the state in areas of mutual interest.

N-5 Update the land use element of the county comprehensive plan to reassess the most suitable areas for growth in the county by considering all elements of the landscape.

The capital recommendations of the plan include 54 projects totaling more than $19.77 million (Table 7.2). Highlights of the capital recommendations include:

• Acquisition of 127.0 acres of land, 80.0 acres of which will be developed into two new parks.

• Development of three new parks to meet recreation needs of areas experiencing or expected to experience significant growth:

o Pirates Wharf (West Side Planning Area) o A new community park in the West Metro Core (Central Planning Area) o A new community park in the South Planning Area

• A total of $6.26 million—32% of total estimated cost—devoted to rehabilitation of existing facilities, in response to the plan’s emphasis on park and facility rehabilitation.

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2005 Wicomico County Land Preservation, Parks, and Recreation Plan

INTRODUCTION

For the past several decades, Wicomico County has established a model system of parks, recreation, and open space for small counties nationwide. Aided by state and federal funding programs and strong partnerships with other public and private organizations, the Wicomico County Department of Recreation, Parks, and Tourism has increased leisure services to residents and tourists far beyond county resources.

To fulfill the requirements of Maryland’s Program Open Space (POS), the 2005 Wicomico County Land Preservation, Parks, and Recreation Plan describes the county’s current status and efforts not only in recreation and parks, but in agricultural preservation and natural resource conservation as well. The following introduction to the plan presents the context for the plan, including local policies that have directed land preservation, parks, and recreation efforts and other circumstances that have had significant impacts on county leisure services.

PURPOSES OF THE PLAN

The 2005 Wicomico County Land Preservation, Parks, and Recreation Plan is important and timely for several key reasons. In addition to continuing the county’s eligibility for annual POS funding, the plan:

• Assesses the county’s progress in: o Meeting the leisure service needs of Wicomico County residents. o Preserving open space. o Preserving agricultural land and activities. o Conserving important natural resources.

• Identifies the impacts on county services caused by recent changes in local funding mechanisms.

• Illustrates the combined effect of county, state, and federal land preservation programs on the landscape and future character of Wicomico County.

Regulations for POS require all counties to prepare a land preservation, parks, and recreation plan every six years. In accordance with guidelines prepared by the Maryland Department of Planning (MDP) and the Maryland Department of Natural Resources (DNR), two major goals of the plan are:

• Comply with the State of Maryland mandate that all local jurisdictions adopt recreation and land preservation plans to qualify for Maryland Program Open Space funds.

• Guide the development of recreation and park services, and direct county efforts to conserve and protect the natural environment and farmland.

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The guidelines also establish the following objectives for the plan:

• Review goals and objectives of state and local programs for three principal elements: parks and recreation, agriculture, and natural resources.

• Identify where these goals and objectives are essentially the same, where they are complementary or mutually supportive, and where they are simply different.

• Evaluate the ability of implementation programs and funding sources for each element to achieve related goals and objectives.

• Identify desirable improvements to policies, plans, and funding strategies, to better achieve goals and improve return on public investment.

• Recommend to state and local legislatures, governing bodies, and agencies any changes to the current comprehensive plan which are needed to overcome any shortcomings in meeting local program goals and, ultimately, to ensure good return on public investment.

• Identify the outdoor recreation needs and priorities of current and future state and local populations.

• Achieve legislative goals of state and local land preservation programs.

• Recommend to state and local legislatures, governing bodies and agencies, any changes to the current comprehensive plan which are needed to overcome any shortcomings in meeting local program goals, and ultimately ensure good return on public investment.

Guiding principles of the plan endorse and reflect the eight visions of the Maryland Planning Act (1992, as amended in 2000). Each of the eight visions are presented below (in bold) with the corresponding principle(s) of the Wicomico plan (in italics).

• Concentrate development in suitable areas.

Provide active recreation opportunities near existing and planned population centers.

• Protect sensitive areas.

Provide open space to protect streams, stream buffers, floodplains, and habitats of endangered and threatened species.

• In rural areas, direct growth to existing population centers and protect resource areas.

Provide active recreation opportunities on preserved lands associated with natural features to help meet the leisure needs of people living in rural areas.

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• Demonstrate stewardship of the Chesapeake Bay and the land.

Identify recreation and open space land in environmentally sensitive locations that can be damaged by residential or nonresidential development. Provide environmental education opportunities by preserving land in environmentally sensitive areas and developing nature, recreation, and environmental centers.

• Conserve and reduce the consumption of natural resource areas.

Acquire key parcels of land, as resources permit, to help protect larger resource areas.

• Encourage economic growth and streamline land use regulatory measures to encourage the achievement of the preceding five visions.

Provide attractive recreation opportunities as a positive incentive for economic development. Improve existing parks to maintain the benefit of previous public expenses. Incorporate provisions in land regulatory ordinances to preserve unique natural resources and to require either land for recreation or cash in lieu of land to help meet the leisure needs of new residents.

• Adequate public facilities and infrastructure under the control of the county or municipal corporation are available or planned in areas where growth is to occur.

Provide sufficient parkland, recreation facilities, programs, and open space in identified growth areas to meet the needs of current and future residents.

• Address funding mechanisms to achieve this policy.

Funding has become a critical element of the Wicomico County plan. State funding through Program Open Space has declined significantly in recent years to meet shrinking state budgets. In addition, the county has enacted a property tax revenue cap that has severely reduced county funds for public services.

Preserving the Chesapeake Bay is extremely important in Wicomico County, which is reflected in the plan policies. The plan strongly endorses land preservation and feasible public access along the bay, the Nanticoke River, and the Wicomico River. Maintaining open land as a buffer along streams to preserve attractive waterway corridors and to enhance water quality throughout the county and beyond are equally important plan policies.

LOCAL PREPARATION OF THE PLAN

The Wicomico County Department of Recreation, Parks, and Tourism is the lead agency and driving force behind the 2005 Wicomico County Land Preservation, Parks, and Recreation Plan. Mr. Gary Mackes, director of the department, is the Program Open Space liaison. The department of Recreation, Parks, and Tourism has primary responsibility for implementing recommendations related to recreation and park services. Guidelines for the 2005 plan require information regarding

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agricultural preservation and resource conservation, which is primarily taken from existing sources and county policies. Implementation of the recommendations regarding agricultural preservation and natural resource conservation will be the responsibility of the Salisbury-Wicomico County Department of Planning, Zoning, and Community Development.

Public Participation

The 2005 Wicomico County Land Preservation, Parks, and Recreation Plan is based in large part on the ideas and concepts obtained through three information sources:

• Statewide survey of households concerning park and recreation activities conducted in January 20031 — The survey divided the state into seven regions. Wicomico County was included in the Lower Eastern Shore region along with Dorchester, Somerset, and Worcester Counties. Within each region, 400 households chosen at random were interviewed by phone concerning participation in local park and recreation activities. The survey results provided information about:

o The percentage of households and individuals participating in 71 specific recreation activities (participation rates).

o The number of times a participant was active in the activity within the year (frequency of participation).

o Respondents attitudes about the adequacy of recreation facilities in the respondent’s county.

The survey results were used in the analysis of needed facilities in chapter 3 and as corroboration of findings from interviews and meetings.

• Stakeholder interviews — The Wicomico County 2005 Land Preservation, Parks, and Recreation Plan includes ideas derived from interviews with the following interests:

· Chesapeake Bay Foundation · Pemberton Historical Park Adv. Bd. · Town of Hebron · Wicomico County Council · City of Salisbury · Salisbury Adv. Council on Youth · Town of Pittsville · Wicomico County Public Schools · Delmar Recreation Council Activities · Town of Sharptown · Wicomico Co. Recreation Comm. · East Side Recreation Council · Salisbury Area Chamber of Commerce · Town of Willards · Wicomico County staff · Friends of Pemberton · Salisbury-Wicomico Co. Dept. of · U.S. Dept. of Ag., Soil · Wicomico County Tourism Board Historical Park Planning, Zoning, & Comm. Devel. Conservation Service · Wicomico Environmental Trust · Local businesses · Sharptown Recreation Council · West Side Comm. Ctr. Adv. Bd. · Wicomico Equestrian Center · Mardela Recreation Council · The Nature Conservancy · West Side Historical Society Adv. Bd. · MD Dept. of Natural Resources · Town of Delmar · Wicomico County Agricultural · Wicomico Historical Society · MD Dept. of Planning · Town of Fruitland Preservation Board

• Meetings — The county sponsored meetings of both county officials and the general public to explain the project and solicit ideas for the plan.

1 Norris, Donald F. and Hanson, Royce, Participation in Local Park and Recreation Activities in Maryland, May 2003, University of Maryland, Baltimore County, Baltimore (MD)

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RELATIONSHIP TO THE COMPREHENSIVE PLANNING PROCESS

The current Wicomico County Comprehensive Plan was adopted on 3 February 1998. The plan includes eight major elements:

• Land Use • Historic and Cultural Preservation • Natural Resources and Sensitive Area Protection • Housing and Community Development • Transportation • Mineral Resources • Community Facilities • Implementation

Open space and recreation are part of the community facilities element of the plan, along with the following subjects:

• Water and sewerage facilities • Library • Stormwater drainage • Police • Solid waste management • Fire, rescue, and ambulance protection • Education

The Wicomico County land preservation and recreation plan prepared as a requirement of Program Open Space is integrated into the Wicomico County Comprehensive Plan. In the words of the comprehensive plan:

“ A detailed presentation of County policies, planning and programming to achieve its open space and recreation objectives [is] contained in the Wicomico County Land Preservation and Recreation Plan. This Plan is an extension of this County Comprehensive Plan.” 2

The background information, policies, and recommendations regarding open space and recreation contained in the Wicomico County Comprehensive Plan are taken from the land preservation and recreation plan.

RECREATION AND THE QUALITY OF LIFE

“Quality of life” is an ordinary phrase for an extraordinary concept. What determines the community’s “quality of life”? What allows one place to offer a “better” quality of life than another? Public services often make the difference in the locational decisions of both residents and employers. Public schools are important to families with children. Libraries are important for people to continue pursuing education. Parks and recreation are important to occupy leisure time in healthful, productive ways. Open space adds to the visual character of the community and supports habitats for plants and animals. In the competition for residents, tourists, and jobs, recreation, parks, and open space are among Wicomico County’s strongest assets.

2 Salisbury-Wicomico County Department of Planning, Zoning, and Community Development (P&Z), Wicomico County Comprehensive Plan, 3 February 1998, p. 126

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Economic Impacts

Leisure service is a industry business that generates hundreds of billions of dollars each year in the United States. Land and natural resource preservation are significant contributors to a strong economy, particularly in agriculture, forestry, and commercial fishing. Since the advent of Program Open Space in 1969, the Wicomico County Department of Recreation, Parks, and Tourism has successfully positioned itself to be a major contributor to the local economy.

Special recreation events, such as sporting events and festivals, generate significant revenue for local businesses and promote the high quality of life in Wicomico County. For example, the department hosted 21 softball tournaments in 2004 at which 260 of the 360 teams came in from outside the county. The county obtains similar benefits at other events, such as the Autumn Wine Festival, Pork in the Park Barbecue Festival, and the Seagull Century Tour Bike Event. Special events and sports tournaments infused over $1,000,000 within the local economy, with visitors spending an average of $397 for every room-night at a local place of lodging.

Social Benefits

Recreation and leisure services contribute directly to quality of life. Research shows that a community’s recreation amenities strongly influence the feelings of both residents and workers about an area. Recreation opportunities instill community pride. Activities such as hunting, golf, and recreational fishing offer a chance to develop valuable friendships and partnerships. Leisure events frequently leave participants with an enhanced sense of community spirit. Certain forms of recreation also give the physically disabled a chance to become more involved in community activities. Youths who participate in organized recreation are less likely to engage in antisocial behavior, need social services, or become involved in the criminal court system. Furthermore, recreation programs are much less expensive than the $150 per person per day cost to incarcerate troubled youth.

Environmental Benefits

Protecting our natural environment is a primary concern of people throughout the country. Sustaining open space in its natural state avoids the interrelated ecological consequences of disturbing sensitive environmental features like steep slopes, flood prone areas, and woodlands. Conserving natural areas by preserving land safeguards the habitat of native and exotic flora and fauna, especially those with a limited niche that need specific localized conditions to flourish. Preserving forests and farmlands also improves water quality.

Preserving farmland adds another dimension to the benefits of land preservation. In addition to the economic importance of agriculture, saving farmland helps sustain rural landscapes. The scenery and pastoral environments rural areas provide are often irreplaceable.

Personal Benefits

Healthy people usually live longer, tend to have positive mental attitudes, and often develop better self-esteem. Recreation can deter substance abuse and help develop interpersonal skills. Older people who participate in leisure activities are frequently happier and less lonely than those who do

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not, thereby reducing the need for professional care. Intergenerational recreation activities give young and older people the chance to learn from each other.

COUNTY ACCOMPLISHMENTS

The Wicomico County Department of Recreation, Parks, and Tourism has an impressive record of achievement. The county system includes not only typical facilities, such as different types of fields and courts, but several unique facilities, including the Wicomico Youth and Civic Center, Wicomico Equestrian Center, Perdue Stadium, Pemberton Historical Park, Cedar Hill Park and Marina, and the Henry S. Parker Athletic Complex, all of which attract events of local, regional, and national scope. The following sample of accomplishments illustrates Wicomico County’s longstanding commitment to high-quality parks and recreation opportunities and land preservation:

• Approximately 80% of all facilities in the system have been developed in the past 20 years.

• The county implemented a comprehensive maintenance management system to streamline maintenance tasks and reduce costs.

• The physical assets of the county park system are valued at more than $32 million, which is extremely high for a county with a population of less than 100,000. Of the current value, county tax dollars account for less than 10%.

• In addition to the county park system, the department is responsible for the operation and maintenance of the Wicomico Youth and Civic Center, valued at more than $40 million. Wicomico County is also the home of Arthur Perdue Stadium, maintained and operated by Comcast/Spectacor and valued at more than $18 million.

• From 1999 to 2003, the department completed 49 projects throughout the county, at a cost of almost $5.0 million (Table 1.1). Again, the vast majority of funding for recent improvements came from sources other than county tax dollars.

• Wicomico County preserved 286.1 acres of land in 2004 by purchasing the first conservation easements through the county agricultural easement program. Through the county program and county support of state programs, such as the Maryland Agricultural Land Preser- vation Foundation (MALPF), Rural Legacy Program, and Maryland Environmental Trust (MET), almost 4,000 acres of land has been preserved between 1999 and 2004 (Table 1.2)

• The department has established a major presence on the Internet with three websites which provide information and interactive services for residents:

o www.wicomicorecandparks.org o www.wicomicociviccenter.org o www.wicomicotourism.org

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Table 1.1 Projects Completed, 1999-2003

Site Project Cost Central Planning Area Youth and Civic Center - Repair exterior masonry $165,000 Henry Parker Athletic Complex - Bleacher restoration and irrigation system $50,000 - Night lighting for soccer/softball fields $810,000 Pemberton Historic Park - Construct orchard fences $10,000 - Road restoration and well sweep $30,000 - Relocate and rebuild 17th century home $168,000 Salisbury Zoo - Rehabilitate playground equipment $25,000 Riverwalk - Construct bulkhead and sidewalks $162,000 - Add landscaping and lighting North Lake Park - Replace electric panel $6,000 - Construct curbing Nick Meyer Park - Replace fence $24,000 - Add new play module - Stabilize parking Schumaker Park - Make restroom accessible $30,000 - Contract roof replacement - Add new play modules - Rehabilitate pier $20,000 WinterPlace - Irrigation and landscaping $48,000 - Repair equestrian center roof $59,000 Indian Village Playground - Make restrooms accessible $50,000 - Contact building roof and plumbing - New play module Riverside Boat Ramp - Rehabilitate boat ramp $135,000 Leonard’s Mill Park - Rehabilitate boat launching facility $25,000 Allen - Land acquisition $10,000 Crooked Oak Playground - Replace playground module $16,000 City Park - Rehabilitate tennis courts $80,000 - Play equipment $57,000 - Greenway landscaping $16,000 Upper Ferry Road - Bike lane $30,000 Lake Street Playground - Renovate contact building, basketball courts playground, $320,000 fencing, bleachers, and landscaping Subtotal -- Central Planning Area 24 projects $2,346,000 East Planning Area Willards Park - Rehabilitate dugouts, fences, equipment $27,000 - Stone parking lot Pittsville Playground - Acquire/install new playground equipment $20,000

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Site Project Cost Adkins Mill Park - Rehabilitate boardwalk $65,000 - Develop public restrooms $40,000 Pittsville Softball Field - Replace lights $12,000 East Side Youth Sports Complex - Develop facilities $360,000 Subtotal -- East Planning Area 6 projects $524,000 South Planning Area Fruitland Recreation Park - Install exercise trail $12,000 Fruitland Youth Sports Complex - Develop facilities $240,000 Subtotal -- South Planning Area 2 Projects $252,000 West Side Planning Area Cedar Hill Park - Replace bleachers $30,000 - Add playground module - Add pavilion $45,000 - Refurbish bath house $10,000 - Refurbish bulkhead $82,000 Nanticoke Park - Engineering study for jetty reconstruction $50,000 - Construct handicapped-accessible pier $20,000 - Rehabilitate bulkhead $84,000 - Construct additional boat ramps/parking lot $281,000 - Dredging $668,000 Roaring Point - Acquire 30 acres $425,000 - Develop access $44,000 West Side Community Center - Handicapped access and parking lot $14,000 Subtotal -- West Side Planning Area 12 projects $1,753,000 Tri-Town Planning Area Sharptown Park/Cherry Beach - Stabilize shoreline $12,000 - Stabilize parking lot $27,000 - Rehab fences, bleachers, building Sharptown Playground - Construct parking lot $25,000 - Add treescape Hebron Community Park - Rehabilitate basketball court $25,000 Mardela - Rehabilitate fences $30,000 - Add treescape - Add play module Subtotal -- Tri-Town Planning Area 5 projects $119,000 TOTALS 49 projects $4,994,000

Source: Wicomico County Department of Recreation, Parks, and Tourism

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Table 1.2 Preserved Land by Program, 1999–2004

Purchased Easements MET Total MALPF Wicomico County Rural Legacy TOTALS Acres Preserved Acres Cost Acres Cost Acres Cost Acres Cost Cost/Acre (Donated) Acres 1999 119.06 $76,287 0.00 $0 0.00 $0 119.06 $76,287 $641 93.03 212.09 2000 415.40 $617,586 0.00 $0 0.00 $0 415.40 $617,586 $1,487 0.00 415.40 2001 241.84 $178,166 0.00 $0 0.00 $0 241.84 $178,166 $737 67.50 309.34 2002 603.98 $597,520 0.00 $0 0.00 $0 603.98 $597,520 $989 687.22 1,291.20 2003 431.50 $348,793 0.00 $0 750.5 $778,689 1,182.00 $1,127,482 $953 120.19 1,221.69 2004 143.85 $205,937 286.10 $434,200 0.00 $0 429.95 $640,137 $1,489 0.00 429.95 Totals 1,955.63 $2,024,289 286.10 $434,200 750.5 $778,689 2,992.23 $3,237,178 $1,082 967.94 3,960.17

Source: Salisbury-Wicomico Department of Planning, Zoning and Community Development

GROWING OLDER: THE IMPORTANCE OF MAINTENANCE

Fueled, in part, by POS funding and by an increasing population as more and more people discover the desirable living environment of Wicomico County, the recreation and parks system has grown significantly in the past 20 years. The department has acquired land and developed parks throughout the county to meet a growing need for leisure services.

Today, as some of Wicomico’s older parks begin to show signs of aging, the department must consider a new horizon: the life cycle of parks and recreation equipment. Some of the older parks are in need of major renovation. For each older park, the county must ask if a “facelift”, new paint, play equipment safety compliance, fencing and court rehabilitation, building restoration, resurfacing, reestablishment of turf areas, reseeding, etc. will suffice, or has the park reached the stage where a more expensive, complete redevelopment is required?

The average life cycle of a park is approximately 25 years and depends on many factors, including the duration of peak seasons and number of users. The decision about the need for complete rehabilitation of a park can be postponed (and the park’s life cycle lengthened) with diligent maintenance. Wicomico is fortunate to have a department with the foresight to recognize the importance of park maintenance in controlling costs and providing an attractive, safe park system for the community. The department has a strong maintenance management system in place, which allows staff to anticipate major expenses and take the most cost-effective preventive measures to extend the life of each park and all major equipment. Nevertheless, some of the parks are reaching the point where major improvements will have to be considered.

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FUNDING CHALLENGES

Clearly, the action with the largest impact on the recreation and parks system in Wicomico is the local revenue cap approved by voters in November 2000. Under the rules of the cap, the county can collect only 2% more in revenue from existing real properties from one year to the next. In other words, if the county collects $100 in 2005, the county can only collect $102 in 2006 (2% more). As assessments go up by more than 2%, the tax rate is lowered because the revenue comes from assessments times the tax rate. Total annual increase in real property tax revenues is limited to either 2.0% or the change in the Consumer Price Index, whichever is less. As a result of the cap, property owners have seen their county tax liability level off or decline.

However, many county services have been severely affected by the constraints in revenue, including recreation and parks. For example,

• Fees for recreation programs offered directly by the department have increased by as much as 460%. Program registration has decreased, in part, because some residents cannot afford the increased program fees.

• From 1990 to 2000, prior to the revenue cap, the department received an average of approximately $250,000 per year for parks projects. From 2000 to 2004, with the revenue cap in place, the department received an average of $11,125 per year for parks projects, a 95% decrease in annual funding for county parks.

• Critical maintenance items are being deferred because of a lack of funding. For example:

o Since the revenue cap has been instituted, the department has received about $10,000 per year to seal and restripe courts, but the task requires about $37,000 per year.

o Courts have been programmed for a complete resurfacing at the rate of about three per year, which means that each of the approximately 60 courts in the county is resurfaced every 20 years. A resurfacing costs about $15,000 per court, so the department needs about $45,000 per year to maintain the resurfacing program. The department has received no additional money for resurfacing. In other words, the complete maintenance program for courts requires approximately $82,000 per year: $37,000 for sealing and restriping, and $45,000 for resurfacing. Since the revenue cap was instituted, the department has received $10,000 per year—a shortfall of $72,000 per year.

o The department has received no county money for equipment replacement, although equipment needs amount to about $150,000 per year. The department has had to fund equipment needs through grants, in-kind services, and participation in government auctions to purchase used equipment, all of which have only totaled about $15,000 per

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year—10 percent of the amount required. The inevitable result of deferred maintenance is either higher future costs or unsafe and unattractive park sites and subpar equipment.

• The department has resorted to fund-raising activities to provide the required 10% local share of POS funds for park development.

DEFINITIONS USED IN THE PLAN

Several terms used in the 2005 Wicomico County Land Preservation, Parks, and Recreation Plan may have definitions unique to the county. In order for the reader to understand concepts presented in the plan, the following definitions are used throughout the plan:

• Buffer: Land that is set aside to protect land or water resources from the effects of adjacent use. A buffer can be placed around agricultural land or a water body, natural resource, historic or cultural feature, or development parcel.

• Development: Construction of a residential or commercial structure with associated site improvements.

• Development Right: the right to erect a dwelling unit on property.3

• Metro Core: the primary area where the majority [of] higher density growth is to be directed.4 The Metro Core includes the Cities of Fruitland and Salisbury, the Town of Delmar, and surrounding lands west of the U. S. 13 Bypass.

• Open Space: Land that is permanently set aside for nondevelopment purposes.

• Transfer of Development Rights: the program allowing development potential in the A-1 Agriculture-Rural zoning district to be transferred to an area more suited for development, thus allowing agricultural land in the A-1 district to be preserved.

3 Salisbury-Wicomico County P&Z, Wicomico County Zoning Code, effective 18 September 2004, p. 91

4 Salisbury-Wicomico County P&Z, Plan, p. 23

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FRAMEWORK

The framework for any plan is the characteristics of the community for which the plan is prepared. The framework for the 2005 Wicomico County Land Preservation, Parks, and Recreation Plan includes information on three important aspects of the county:

• Physical characteristics—Information on the county’s forests, woodlands, streams, wetlands, Critical Areas (associated with the Chesapeake Bay) soils, steep slopes, unique natural areas, and development patterns will help guide future park sites and recreation services. Later, in separate chapters, the plan discusses agricultural land and natural resources.

• Demographic characteristics—Information on the county’s people, such as population, age, gender, and income will help analyze current and future demand for recreation services.

• Current planning policies—Information on the county comprehensive plan and other plans will help determine current policies to strengthen or change to help meet the leisure service needs of current and future county residents.

PHYSICAL CHARACTERISTICS

Wicomico County is the heart of the Delmarva Peninsula. Located south of Delaware between the Chesapeake Bay and the Atlantic Ocean, Wicomico County is within easy driving distance of the major cities on the east coast (Map 2.1). Additional information on the following physical characteristics of Wicomico County is presented below:

• Critical Areas • Unique natural areas • Wetlands, floodplains • Development pattern • Woodlands • Preserved land

Critical Areas, Wetlands, and Floodplains

Water features (Map 2.2) are significant for all three components of the 2005 Wicomico County Land Preservation, Parks, and Recreation Plan: parks and recreation, agricultural preservation, and natural resource conservation. Federal and state law requires that wetlands, both tidal and nontidal, must be preserved or relocated. Floodplains should also be preserved, wherever possible. Development in floodplains should be severely restricted, with only the least intense uses allowed. Wicomico County has strong regulations restricting uses within floodplains.

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Map 2.1 Regional Location

Source: URDC, 2005

Critical Areas are regulated through the Wicomico County Critical Areas Program, adopted in 1989. As defined by State law, the Chesapeake Bay Critical Area includes the Chesapeake Bay, all tidal tributaries and wetlands, and all water and land areas within 1,000 feet of the upland boundary of the tidal waters and wetlands. In Wicomico County, the major bodies of water affected are the Wicomico and Nanticoke Rivers, but also included are smaller tidal tributaries as well as the land within 1,000 feet of all tidal waters. The county program divides land within the state-designated Chesapeake Bay Critical Area into three types of management areas, each permitting various types and intensities of development:

• Intensely Developed Areas • Limited Development Areas • Resource Conservation Areas

Woodlands and Natural Areas

Woodlands cover significant parts of Wicomico County (Map 2.3), providing wildlife habitat, ecological balance, and, in some cases, recreation opportunities for residents. Natural areas are extremely important to preserve the habitat of native flora and fauna, especially those with a limited niche and need specific localized conditions to flourish.

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Development Pattern

Development in Wicomico County is centered around the Cities of Salisbury and Fruitland and the Town of Delmar. The land around the municipalities in which the county encourages development is called the Metro Core. Most of the developed land in the county is inside the Metro Core.

In recent decades throughout the country, development has occurred in areas outside of urban cores, and Wicomico County is no exception. New development, exhibited by the number and size of final plats approved, has pushed against the boundaries of the Metro Core (Map 2.4). In the 19 years from 1986 through 2004, subdivisions outside of the Metro Core accounted for more than 60 percent of all lots on 81 percent of the newly developed land (Table 2.1).

Table 2.1 Metro Core Development, 1986—2004

Final Lots Acres Average Lot Area Number Percent Number Percent Size (ac.) Within Metro Core 1,779 38.8% 1,806 19.3% 1.0 Outside Metro Core 2,802 61.2% 7,553 80.7% 2.7 Total 4,581 100.0% 9,359 100.0% 2.0

Source: Salisbury—Wicomico County Department of Planning, Zoning, and Community Development (P&Z)

In June 1998, the Wicomico County Council amended the zoning code to restrict residential development in the agricultural zoning district. The A-1 Agricultural-Rural district, which covers the majority of the land area outside of the Metro Core, previously permitted two units per acre by zoning. The 1998 amendment revised the residential density to one unit per 15 acres or, if a clustering option was implemented, one unit per three acres with 50 percent of the entire site preserved as open space.

The effect of the zoning amendment has been to restrict the number and size of residential subdivisions in the county’s agricultural district, and to preserve open space. From June 1998 through December 2004, only 11 new subdivisions (comprising at least three lots) have been approved in the agricultural district. The 11 subdivisions contain 164 lots and comprise approximately 1,200 acres, but development has occurred on only 473 acres (39% of the total acreage), preserving the remaining 727 acres (61%) as open space through the new clustering provisions. In other words, the agricultural district has experienced 25 new lots in 1–2 subdivisions with approximately 110 acres preserved as open space each year since the new regulations were adopted.

Furthermore, the Metro Core has seen an increase in growth around the municipalities of Salisbury, Fruitland, and Delmar as land is annexed and proposed for development, partly as a result of the new density restrictions in the agricultural district and also due to environmental restrictions in the more rural areas of the county. Developments in the Metro Core will be served by public water and sewer and will be developed at higher densities than historically has occurred in the county. Development has occurred at an average density of approximately 2.5

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persons per developed acre countywide. The majority of future development will occur in the municipalities, with public utilities and services that allow for more concentrated development. For example, the most restrictive residential zoning district in the City of Salisbury permits four units per acre, and the least restrictive district permits 12 units per acre for multifamily development. Since the year 2000, the City of Salisbury has annexed almost 900 acres of land in the Metro Core that was previously under Wicomico County’s jurisdiction. Development in the Metro Core is consistent with the county’s plans and policies that encourage and direct development to the identified growth areas and has been especially noticeable since 1998, with the implementation of the density restrictions in the county’s agricultural district.

The Metro Core completely divides Wicomico County, extending from the northern to the southern boundary of the county. One of the parks and recreation initiatives is to bridge the Metro Core, providing access through the Metro Core and linking the east and west portions of the county through bikeways and greenways. Linear corridors are further discussed in subsequent chapters the 2005 Wicomico County Land Preservation, Parks, and Recreation Plan.

The difference in growth potential in different areas of the county has led to the identification and analysis of “planning areas” (which cover the entire county) and more specific “growth areas” in all of the county’s land preservation and recreation plans since the original plan in 1988. In addition to reporting conditions in each planning area, including demographics in the following section, the 2005 Wicomico County Land Preservation, Parks, and Recreation Plan includes some modifications to growth areas based on past and projected development (Map 2.4). The growth areas will be a significant factor in identifying parkland needs in chapter 3.

The extent of development in Wicomico County does not constitute an imminent threat to land preservation efforts (Map 2.5). The 1998 zoning amendments have increased the amount of land preserved through the development process. Much of the county’s land mass is unsuitable for development, due to 1) wetlands, 2) soils which cannot support development, or 3) designation as natural areas or Chesapeake Bay Critical Areas. The state owns extensive additional lands, and the state and county both recognize the Quantico Creek Rural Legacy Area as a high priority area for preservation. The vast majority of the remaining land outside of the Metro Core is either in agricultural use or forests, both of which have some degree of protection through county regulations. Chapter 5 contains further information on the county’s land preservation efforts.

The research for the 2005 Wicomico County Land Preservation, Parks, and Recreation Plan included an attempt to broadly quantify the extent of development in the county. The land identified as “developed” on Map 2.5 is all land that is not categorized as either “open urban”, “agricultural”, “forest”, or “barren”. According to the Wicomico County Geographic Information Sys- tem (GIS), 33,613.8 acres of land are in uses other than the four noted above. According to the U. S. Census, the county contains a total of 377.17 square miles, or 241,388.8 acres of land. Therefore, only about 13.9% of Wicomico County’s land mass is developed. The remaining 86.1% of the county is undeveloped. Clearly, development pressure in Wicomico County is not as great as in many other Maryland counties, such as Baltimore, Harford,1 Howard, Montgom- ery, and Prince Georges. Much of the undeveloped land in Wicomico County is not readily visi- ble from the well-traveled roads in the county, which heightens public perception of develop-

1 According to the Harford County GIS, 44.3% of the county is classified as “residential” or “nonresidential” (i.e., “developed”) and 55.7% of the county is classified as “agriculture/open space”.

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ment and leads many residents to conclude that the county is far more developed than the data indicate.

The extent of current and potential future development in Wicomico County is clearly seen by simplifying the designations in Map 2.5. Much of the undeveloped land in the county—poor soils, Natural Areas, Critical Areas, parks, schools, state-owned lands, and wetlands—is unsuitable for development (Map 2.6). The land identified as undeveloped with development potential includes lands identified in the county GIS program as agriculture, forest, open urban, or barren.2 Wicomico County currently has approximately:

• 14% of land area developed. • 40% of land area undeveloped, not suitable for development. • 46% of land area undeveloped, with potential for development.

Additional considerations restrict the location of development, most notably the infrastructure of central water, central sewer, and roads. Areas with development potential that are adjacent to existing infrastructure are more likely to experience future growth than areas with development potential that are not near desired services. Therefore, the areas to the west and northwest of Salisbury, as well as undeveloped areas within the Metro Core, are likely targets for future development and demand for parks and recreation services.

Areas considered unsuitable for development on the basis of ownership and policy, such as state lands, public parks and schools, and areas under conservation easement, are likely to remain undeveloped. Extending public, central water and sewer services to “unsuitable” areas is prohibi- tively expensive for public financing. However, developers are capable of providing “package” or ”community” water and sewer systems designed to serve an individual development without connecting to public systems. Wicomico County should consider regulations that prohibit central water and sewer service in areas where county policy discourages growth.

DEMOGRAPHIC CHARACTERISTICS

Demographics describe the people of an area using statistics. The 2005 Wicomico County Land Preservation, Parks, and Recreation Plan includes information on Wicomico County’s current and forecasted population, age, gender, and income. The previous land preservation and recreation plan was written in 1999. Therefore, data from the 2000 census provides data to compare with the date in the last plan.

Planning Areas

2 Agricultural and forest uses are targets for preservation, which further limits development potential.

3 Planning areas are presented in greater detail in chapter 4 and on Map 4.1.

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to reflect common physiographic, population, and land use characteristics, and most have remained essentially the same since the original plan was prepared in 1988.

The 2005 Wicomico County Land Preservation, Parks, and Recreation Plan divides the county into six planning areas: Tri-Town, West Side, North, Central, South, and East. The North Planning Area coincides with the area formerly identified as the north sector of the Central Planning Area. Separate delineation of the North Planning Area accentuates the area as a possible future focus of population growth and, subsequently, recreation needs and demand.

The Central Planning Area continues to grow significantly around the City of Salisbury. The county’s Metro Core continues to expand westward toward the villages of Quantico and Green Hill, and people in the developing areas continue to view Salisbury as the activity hub for school, commerce, church, and entertainment. The 1999 land preservation and recreation plan recognized the growth in the Central Planning Area by further dividing the area into three “sectors”: North, East, and South. The 2005 plan recognizes development potential around Delmar by delineating a separate, sixth planning area: the North Planning Area (Map 2.7). The Central Plan- ning Area will continue to have an east and west sector for analysis purposes.

Population

Wicomico County had a population of 84,644 in the 2000 census (Table 2.2) The county grew at a faster rate than the State of Maryland. The county is expected to continue growing to 103,300 by 2020, an increase of 22.0 percent. At the current population density of 2.52 persons per developed acre,4 the projected additional 18,656 persons would occupy an additional 7,403.2 acres of land, or an additional 3.1 percent of the county’s landmass, by 2020.

Table 2.2 Population, 1990–2020

1990 2000 2020 Change 1990–2000 2000–2020 Number Percent Number Percent Wicomico County 74,339 84,644 103,300 10,305 13.9 18,656 22.0 State of Maryland 4,780,753 5,296,486 6,060,800 515,733 10.8 764,314 14.4

Source: Maryland Department of Planning (http:\\www.op.state.md.us/MSDC)

County policy encourages future residential development to occur in areas that will support greater development density, thereby using less land. Commercial and industrial uses to support the increased residential growth will also occur in the Metro Core where necessary services are available.

The Central Planning Area contains, by far, the greatest population of any of the five planning areas (Table 2.3). In the 2000 census, the Central Planning Area accounted for almost 60% of the

4 84,644 persons / 33,613.8 developed acres

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county’s residents. The east and west sectors of the Central Planning Area, which are closest to the City of Salisbury, had the largest population within the planning area. Recreation needs will be greatest in the Central Planning Area, particularly in the east and west sectors, due to the large concentration of population.

Table 2.3 Population By Planning Area; 1990–2020

Area Population1 2000 1990 Persons Percent1 2005 2010 2015 2020 Central 37,861 45,801 54.11% 48,104 51,134 53,758 55,896 East Sector 8,296 12,222 14.44% 12,836 13,645 14,345 14,915 West Sector 8,973 9,837 11.62% 10,331 10,982 11,545 12,005 Salisbury 20,592 23,743 28.05% 24,938 26,508 27,868 28,976 North 6,438 8,606 10.17% 9,039 9,608 10,101 10,503 South 17,165 15,542 18.36% 16,323 17,352 18,242 18,968 East 5,635 5,309 6.27% 5,576 5,927 6,231 6,479 Tri-Town 3,754 5,420 6.40% 5,693 6,051 6,362 6,615 West 3,486 3,966 4.69% 4,165 4,428 4,655 4,840 Total 74,339 84,644 100.00% 88,900 94,500 99,350 103,300

1 Estimated (2005) and projected (2010, 2015, and 2020) planning area population is based on the percent distribution of the 2000 census population.

Sources: Maryland Department of Planning, URDC, 2000 U.S. Census, Salisbury-Wicomico Department of Planning, Zoning, and Community Development

Age

The age profile of Wicomico County (the percent of population within different age groups) is similar to that of Maryland as a whole (Table 2.4). Wicomico County has slightly larger shares of both teens and seniors—two age groups for which recreation is very important. Recreation provides teens with important, productive, and educational alternatives for leisure time. Seniors often have a larger amount of available leisure time and find recreational activities to be both healthful and rewarding.

Gender

Wicomico County has a slightly larger percentage of females compared to Maryland as a whole (Table 2.5). Within the last several decades, women have become increasingly active in leisure pursuits throughout the nation. The larger percentage of women in Wicomico may indicate a greater demand for recreation within a growing segment of the population.

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Table 2.4 Population by Age, 2000

Central Planning Area North East South West Tri-Town WICOMICO East Sector West Sector Total Planning Area Planning Area Planning Area Planning Area Planning Area COUNTY Age Range No. Pct. No. Pct. No. Pct. No. Pct. No. Pct. No. Pct. No. Pct. No. Pct. No. Pct. Children (0-9) 3,036 13% 3,005 14% 7,238 13% 1,197 14% 805 15% 1,956 13% 480 12% 768 14% 11,247 13% Teens (10-19) 3,308 14% 3,987 18% 8,696 16% 1,401 16% 679 13% 2,193 14% 509 13% 832 15% 12,909 15% Young Adults (20-39) 7,460 31% 6,078 28% 15,773 29% 2,235 26% 1,538 29% 3,994 26% 965 24% 1,437 27% 23,707 28% Adults (40-64) 6,975 29% 5,916 27% 15,726 29% 2,835 33% 1,708 32% 5,378 35% 1,406 35% 1,740 32% 25,958 31% Seniors (65+) 3,314 14% 2,722 13% 6,974 13% 938 11% 579 11% 2,021 13% 606 15% 643 12% 10,823 13% Total 24,093 100% 21,708 100% 54,407 100% 8,606 100% 5,309 100% 15,542 100% 3,966 100% 5,420 100% 84,644 100% Median Age (Years) 35.3 32.7 34.3 35.2 35.2 38.1 40.6 35.4 35.3

Sources: U.S. Census, URDC

Table 2.5 Gender, 2000

Wicomico County Maryland Gender Number Percent Number Percent Male 40,335 47.7% 2,557,794 48.3% Female 44,309 52.3% 2,738,692 51.7% Total 84,644 100.0% 5,296,486 100.0%

Sources: U.S. Census, URDC

Income

Income levels have increased faster in Wicomico County than elsewhere in Maryland. The median household income in the county increased 36.9 percent from 1989 to 1999 compared to the corresponding figure of 34.2 percent for the state (Table 2.6). As income grows, discretionary spending also grows, which increases participation in leisure activities. The 36.9 percent increase in Wicomico County median household income during the 1990s indicates a growing need for leisure activities.

Table 2.6 Median Household Income, 1989–1999

Change, 1989-1999 Income 1989 1999 Amount Percent Wicomico County $28,512 $39,035 $10,523 36.9% Maryland $39,386 $52,868 $13,482 34.2%

Sources: U.S. Census, URDC

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CURRENT PLANNING POLICIES

The Wicomico County Comprehensive Plan (3 February 1998) contains both objectives and policies that are relevant to the issues of land conservation, recreation, agricultural preservation, and natural resource conservation. The following section identifies appropriate county objectives and policies.

Resource Conservation Objectives5

• Recognize productive agricultural land as a valuable natural resource. • Protect Wicomico County’s agricultural heritage and vitality. • Work with the local agricultural community in order to find viable means of keeping land in farming and to provide proper protection of productive agricultural land and agricultural business.

Natural Resource and Sensitive Areas Protection Objectives6

• Identify the wetland and floodplains in order to provide the special protection they may need. • Provide open space, scenic areas, and natural breaks in the landscape. • Protect water quality and wildlife, and conserve natural features that make a significant contribution to the character of the county. • Limit development in floodplains, on steep slopes, and in other sensitive natural areas. • Protect water quality by reducing pollution and its effects. • Conserve fish, wildlife, and plant habitats. • Establish protection measures for sensitive areas including streams and their buffers, 100- year floodplains, steep slopes adjacent to streams, and habitats of threatened and endangered species to reinforce existing regulatory protection programs. • Conserve forest and woodland resources. Utilize and require tree conservation measures and replanting programs in compliance with the Maryland Forest Conservation Act. • Exclude development from the 100-year floodplain. • Develop local regulations which encourage the landscape to be preserved in its natural state by minimizing tree and soil removal. • Ensure that all new development and redevelopment minimizes pollutant loadings and runoff from sites through implementation of sediment, stormwater and erosion control plans and practices. • Encourage property owners to place environmentally sensitive lands under public and private conservation easements.

5 Salisbury-Wicomico County P&Z, Plan, p. 43

6 Salisbury-Wicomico County P&Z, Plan, p. 54

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Open Space and Recreation Objectives7

• Encourage the preservation of land and cultural resources. Increase the availability of recreational areas to improve the quality of live within the county. • Provide an array of recreational facilities and programs throughout the county to make recreation available to all county citizens.

Open Space and Recreation Policies8

• Provide sufficient, diversified recreational and open space facilities in proximity to existing and future residential developments. • Ensure the accessibility of recreation and open space facilities for all local residents, including the elderly and handicapped. • Preserve open land within natural area corridors adjacent to rivers and stream branches that are not suitable for intense development. • Protect existing outdoor recreation areas and open space from encroachment by incompatible land uses. • Maximize the use of existing facilities as stabilizing influences on the residential areas of the county. • Recognize the value of agricultural land and other natural resource areas as important components of an open space system. • Preserve the unique natural characteristics of the county’s land and waterways and their ability to reduce potential dangers from flooding, erosion, siltation, and pollution. • Give high priority to providing open space in growth centers established in the Goal and Objectives element of the comprehensive plan. • Provide strategically located river access points for both active and passive recreational pursuits.

7 Salisbury-Wicomico County P&Z, Plan, p. 107

8 Salisbury-Wicomico County P&Z, Plan, p. 126

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RECREATION, PARKS, AND OPEN SPACE

For several decades, Wicomico County has had a vibrant, growing park system and recreation programs that have provided residents with constructive, life-enriching leisure and educational activities. The recently enacted revenue cap, which is explained in chapter 1, has severely hampered the way in which the Department of Recreation, Parks and Tourism develops, renovates, and maintains the park system and offers recreation programs. The following chapter presents information about the current recreation and park system in Wicomico County.

Wicomico County residents enjoy a wide variety of leisure opportunities. Some of the opportunities are available through the Wicomico County Department of Recreation, Parks, and Tourism in cooperation with 45 recreation councils, special interest groups, and other organizations. The wide variety of parks in the county, ranging from large natural areas to small neighborhood play areas, offers many additional activities.

While most recreation programs and facilities are available to the general public, some are restricted to members of a club or organization. Seven major types of agencies and groups provide leisure services in the county:

Seven major types of agencies and groups provide leisure services in the county:

• Wicomico County • Municipalities • Wicomico County Board of Education • State of Maryland • Private clubs • Quasi-public groups, such as churches, YMCA, Boys and Girls Club) • Private businesses

The Wicomico County Department of Recreation, Parks, and Tourism complements its longstanding commitment to high-quality parks and recreation programs with providing exemplary park maintenance services. The department has a parks division that has four major objectives:

• Logistical support to the public recreation program and special events. • Conservation of natural resources. • Ongoing maintenance to provide county parks that are as attractive, safe, sanitary, and convenient as possible. • Land acquisition, park development, and rehabilitation of existing recreation facilities.

The Wicomico County parks system includes three major types of parks (Table 3.1). Parks are designed to serve geographic areas based on the size of the park and the recreation facilities included in the park. The three park types work together to provide residents with a variety of recreation opportunities within a reasonable distance from home. The recreation sites in Wicomico County, presented in the appendix, are identified by park type.

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Table 3.1 Wicomico County Park Types

Service Park Type Purpose Size Area Serve surrounding neighborhood – Frequently located at or near 1-5 Neighborhood Park elementary school – Typical facilities include playground, basketball Within 1 mile acres courts, and tennis courts Larger than neighborhood park, with a wider variety and greater number of recreation facilities – Often serve a municipality, or a group (approxi- 10-60 Community Park mately 4-10) of subdivisions – Sometimes located at a middle school or Within 5 miles acres high school – Typical facilities include playground, hard surface courts, picnic facilities, and several athletic fields Serve Metro Core area or entire county – Often include unique natural setting and/or specialized facilities, such as a harbor, zoo, stadium, 20-100+ County Park Entire county heritage area, equestrian center, or athletic complex – Large areas may acres be preserved in a natural state

Source: URDC, adapted from National Recreation and Parks Association

GOALS AND SUPPORT

Goals are important to focus an organization on accomplishing a mission. The State of Maryland, through the Departments of Planning and Natural Resources, has established the following goals for recreation and parks:

• Make a variety of quality recreational environments and opportunities readily accessible to all of its citizens, and thereby contribute to their physical and mental well-being.

• Recognize and strategically use parks and recreation facilities as amenities to make communities, counties, and the state more desirable places to live, work and visit.

• Use state investment in parks, recreation and open space to complement and mutually support the broader goals and objectives of local comprehensive / master plans.

• To the greatest degree feasible, ensure that recreational land and facilities for local populations are conveniently located relative to population centers, are accessible without reliance on the automobile, and help to protect natural open spaces and resources.

• Complement infrastructure and other public investments and priorities in existing communities and areas planned for growth through investment in neighborhood and community parks and facilities.

• Continue to protect recreational open space and resource lands at a rate that equals or exceeds the rate that land is developed at a statewide level.

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The 1999 land preservation and recreation plan for Wicomico County was based on the following goals:

• Emphasize improvements to existing parks and make maximum use of currently-owned land and developed facilities in urban areas. • Continue to develop a network of greenways throughout the county. • Provide small neighborhood greens through homeowner associations and developers. • Continue to use parks, recreation, and land preservation opportunities to support county economic development efforts. • Increase waterfront and water-based recreation opportunities. • Maintain a high level of park and recreation facility maintenance. • Maintain the high quality of existing recreation programs. • Encourage others to provide recreation programs and services when the county cannot effectively meet a need. • Revitalize and strengthen the recreation councils and school-recreation centers. • Determine the feasibility of constructing a public swimming pool(s). • Continue use of various methods of fundraising, financing, economizing, and publicizing for parks and recreation. • Encourage creative techniques to finance proposed capital improvement projects. • Enhance the Youth and Civic Center as a regional showcase for concerts, exhibitions, shows, and other major indoor events. • Leverage the county’s park system to promote tourism initiatives in the county.

The department did an outstanding job in advancing most of the goals, incorporating the county’s tourism function and maintaining the top quality of both recreation programs and the park system. Partnerships have always been a strong part of the Wicomico County program, reflected in the fact that less than 10 percent of the value of the current system was funded by county tax dollars. The goals of the 2005 Wicomico County Land Preservation, Parks, and Recreation Plan, presented below, reflect the department’s emphasis on partnerships and the need for fiscal austerity mandated by the county revenue cap.

• Partnerships

o Continue to develop strong partnerships with both public and private entities to improve the county park system and provide recreation programs where most needed. o Revitalize and strengthen the recreation councils and school-recreation centers.

• Funding

o Continue to use various methods of fundraising, financing, economizing, and publicizing for parks and recreation. o Encourage creative techniques to finance proposed capital improvements and restore recently eliminated programs based in “at risk” neighborhoods.

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• Facilities

o Emphasize maintenance and improvement of existing parks and make maximum use of currently owned land and developed facilities. o Continue to develop a network of greenways throughout the county, particularly to connect the eastern and western portions of the county through the Metro Core. o Continue to renovate the Youth and Civic Center to improve regional market share as the place to attend concerts and family shows and hold conferences, sports tournaments, and trade shows.

• Programs

o Encourage others to provide recreation programs and services when the county cannot effectively meet a need. o Restore high-quality recreation programs for at-risk residents.

• Promotion

o Continue to leverage parks, recreation, and land preservation opportunities to support county tourism and economic development initiatives. o Build on the county’s location and natural assets and the department’s strong repu- tation and past successes to maintain Wicomico County’s status as the activity hub of the Lower Eastern Shore.

The department goals and operations are very compatible with state goals in many respects. The county’s outstanding park system and the program offerings from the department and many other sources fulfills the first state goal of quality environments and opportunities for all citizens. The county has thoroughly integrated recreation and parks into the county’s quality of life (2nd state goal), nominally evidenced by melding the recreation and parks functions with tourism in the same department. County recreation facilities are placed to conveniently serve population concentrations and growth areas (4th and 5th state goals) and often integrate and preserve significant natural resources (4th state goal).

Recreation and parks is critical to the quality of life in Wicomico County. Many aspects of county government, private organizations, and everyday life support recreation facilities and programs, including:

• Planning/acquisition/development – The Wicomico County Department of Recreation, Parks, and Tourism is a strong, vibrant arm of county government. The department oversees the park system, provides recreation programs, and manages the Wicomico County Youth and Civic Center, a major venue for high-quality entertainment. The department also manages the county’s tourism initiatives. In addition to a capable staff, perhaps the primary reason that Wicomico County has one of the premier park and recreation sytems in the country for its size is the foresight and continual planning to identify and meet future recreation needs. Program Open Space has been an important component of land acquisition and park development.

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• Zoning/subdivision exactions –As part of the subdivision review process, the Wicomico County Department of Recreation, Parks, and Tourism provides comments to the Wicomico County Department of Planning and Zoning regarding the need for recreation land in each major subdivision. The recreation recommendations are incorporated into negotiations with the developer.

• Fees – Wicomico County charges fees and administers a million-dollar enterprise budget to offer recreation programs and operate special and countywide facilities. Fees for some programs are subsidized for low-income residents.

• Partnership programs/policies – Wicomico County works aggressively to find partners for parks and recreation. For example:

o The Lower Eastern Shore Heritage Committee has awarded grants to the department for historical and heritage resource enhancement. The grants have included an addition to the contact building at Pemberton Historical Park and a new web page and brochure describing bike routes in the county and local area. o The Local Management Board has provided funding and personnel to improve childcare programs and family activities offered in the county. o The department annually seeks and receives funding from the US Army Corps of Engineers and Maryland’s Inland Waterway Funds to undertake needed maintenance and repair of county marinas and boat ramps. o The department works with nine community recreation councils and numerous special interest boards to operate and maintain municipal and special facilities and activities. o The department works closely with other government agencies, such as the Mary- land Department of Natural Resources (DNR) and private, nonprofit organizations, such as the Chesapeake Bay Trust, to preserve and protect the county’s natural resources.

• Specialized programs – The department works with many organizations to co-sponsor special events at county facilities, including: o Salvation Army (fishing derby) o Board of Education (environmental education programs) o Civic clubs (special event volunteers and program sponsorships) o Protect Our Nation’s Youth (PONY – girls’ softball tournaments) o National Softball Association (NSA – men’s and women’s softball tournaments) o United States Slow-Pitch Softball Association (USSSA – men’s and women’s softball tournaments) o Wicomico Youth Wrestling Club (1–2 wrestling tournaments annually, drawing in excess of 1,000 participants at each tournament)

• Joint-use agreements – The department has a long-standing joint-use agreement with the Wicomico County Board of Education for public use of school facilities. Also, the county has a joint-use agreement with the Salvation Army Youth Club regarding Billy Gene Jack- son Park. The park is adjacent to the Salvation Army building, and the agreement provides a benefit to the community for sports and leisure programs using both outdoor and indoor resources.

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• Waterways and open space access – The U. S. Army Corps of Engineers and the State of Maryland, through the Inland Waterway Program offers funds to restore marinas and dredge channels within Wicomico. Maryland’s Program Open Space has also been a significant partner in Wicomico capital assets for recreation.

NEEDS ANALYSIS

The 2005 Wicomico County Land Preservation, Parks, and Recreation Plan uses a supply/demand model to identify parkland and recreation facility needs. The current parks and recreation facilities represent the “supply” of service, while the desired use, or “demand” for parks and facilities is identified through surveys, meetings, interviews, and staff assessment.

Data on parkland and recreation facilities were obtained from the inventories in previous plans updated through field observations (Tables A-1 through A-6, Map 3.1/Table 3.2). The data conform to the information in the Maryland Electronic Inventory of Recreation Sites (MEIRS) as of 7 January 2005.1

Land

The default Program Open Space land goal for each county is 30.0 acres of local recreation acreage for every 1,000 county residents (shown as “ac/000”). In determining the land eligible to be considered against the county goal, Program Open Space guidelines recognize the following types of recreation land based on ownership and the presence and importance of natural features:

1 Wicomico County is committed to maintaining an accurate MEIRS system. Staff will coordinate with the MDP and DNR staffs, as necessary, and will continue to update the inventory as additional parkland and recreation facilities are developed.

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Table 3.2 Wicomico County Recreation Sites, 2005 (Key for Map 3.1)

No. Name of Area / Ownership No. Name of Area / Ownership No. Name of Area / Ownership No. Name of Area / Ownership State of MD / Nature Conservancy Local Public Rec. (cont'd.) Local Public Rec. (cont'd.) Quasi-Public and Private A Upper Nanticoke Management Area 31 Emerson Holloway Park 86 Schumaker Park 11 Hebron Fairground and Park B Pocomoke River Heritage Cons. Fund 32 Salisbury Middle School 87 Winterplace Park 12 Hebron Part-time Playground C Plum Creek Cedar Swamp Preserve 33 Billy Gene Jackson Park 88 Beaver Run Elementary 14 Spring Hill Episcopal Church D Chesapeake State Forest 34 North Johnson Pond 89 Perdue Stadium 19 Woodlawn Playground E Wicomico State Forest 35 North Salisbury Elementary 91 Kilburnie Playground 20 Mid Delmarva Y.M.C.A. F Plum Ck. Heritage Cons. Fund 36 Johnson Pond Park 92 Pittsville Ball Park 21 Wood Creek Golf Course G Powellville Forest 37 Lake Street Playground 93 Pittsville School 33 Sal. Army / W. Salis. Youth Club H Nassawango Creek Preserve 38 Rose Street Boat Ramp 94 Pittsville Playground 42 Riverside Marina I Johnson WIldlife Mangement Area 39 Chipman Elementary 95 Willards Primary 44 Pemberton Apartments J Ellis Bay Wildlife Management Area 40 Poplar City Mansion 96 Willards School 48 Tom Brown Sports Complex K Nanticoke River Wildlife Mgt. Area 41 Salisbury Marina 98 Willards Recreation Area/Park 49 Waterside Apartments L Wetipquin Pond Management Area 43 Waterside Playground 99 E. Side Youth Sports Complex 51 Canal Woods Swimming Club Local Public Recreation Areas 45 JCC Park 100 Adkins Mill Park 52 Salisbury State Rec. Area-East 1 Cherry Beach 46 Pemberton Elementary 103 Coulbourne Recreation Area 53 Salisbury State Rec. Area-West 2 Cope Bennett Park 47 West Salisbury Little League 104 Fruitland Recreation Facility 57 St. Frances DeSales School 3 Gene Lowe Park 50 Pemberton Historical Park 105 Fruitland Primary 59 Sal. Army Boys and Girls Club 4 San Domingo Playground 54 Pinehurst Elementary 106 Fruitland Intermediate 60 Glen Gardens Apartments 5 Northwestern Elementary 55 Woodcock Playground 107 Fruitland Tennis Courts 64 Moss Hill Apartments 6 Mardela Park 56 Riverside Boat Ramp 111 Pirate's Wharf 67 Moss Hill Playground 7 Mardela High School 58 Riverwalk Park 114 Clara Road Boat Ramp 75 Elks Club 8 Mardela Tennis Courts 61 Wicomico Middle School 115 Roaring Point Park 77 College Lane Apartments 9 Mardela Boat Ramp 62 Newton Playground 117 Nanticoke Park Rec. Area 79 Parkside Apartments 10 Westside Intermediate 63 Newton-Camden 118 Cove Road Recreation Area 83 Woodlawn Campgrounds 13 Hebron Park 65 East Salisbury Elementary 119 Bivalve Wharf 85 Parkwood Apartments 15 Edgewood Park 66 Doverdale Playground 120 Cedar Hill Park 90 Horsebridge Golf Course 16 Gordy Park 69 Nick Meyer Park 121 Tyaskin Recreation Area 97 Gunsmoke Sporting Clay Range 17 Mason Dixon Sports Complex 70 Wicomico High School 122 Wetipquin Park 101 Powellville Park 18 Delmar Elementary 71 Wicomico Co. Youth/Civic Ctr. 126 Westside Primary 102 Nutters Crossing Golf Course 23 Leonards Mill Park 72 Glen Ave Elementary 127 Allen Park 108 Wikander Boat Yard 24 Naylor Mill Park Recreation Area 73 Memorial Field 128 West Side Community Center 109 Wicomico Yacht Club 25 Henry S. Parker Athletic Complex 74 Salisbury City Park and Zoo 110 Green Hill Yacht Club 26 West Salisbury Elementary 76 Prince Street School 112 Whitehaven Marina 27 Cedarhurst Park 78 Bennett Middle School 113 Whitehaven Playground 28 Crooked Oak Playground 80 Bennett High School 116 Roaring Point Campgrounds 29 Centennial Village 81 Harmon Field 123 Wetipquin Playground 30 Indian Village Playground 82 Salisbury Pony League Park 124 Sandy Hill Family Camp 84 Parkside High School 125 Old Green Hill Church

Source: URDC

• 100% of local recreation acreage, which includes school sites counted as either 100% of community recreation acreage on the site or 60% of the total site. • 1/3 of local natural resource acreage. • 100% of state and federal recreation land above 60 ac/000 up to a maximum of 15 ac/000.

Wicomico County meets the established goal of 30.0 ac/000, using 60% of school sites (Table 3.3) because the Wicomico State Forest and Chesapeake State Forest lands in Wicomico provide an additional 192.3 ac/000, which is 132.3 ac/000 more than the goal for state and federal recreation land (60.0 ac/000 for state recreation land). Therefore, up to 15.0 ac/000 could also be counted toward meeting Wicomico County’s goal for local recreation land. Even if no additional recreation land is acquired, the existing state and local recreation land is sufficient to meet the acreage goal needed to serve the projected county population through 2020 (Table 3.4). Therefore, Wicomico County formally submits that the county has met its Program Open Space recreation land goal.

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Table 3.3 Recreation Land Classification and Need, 2005

Size (Acres) Eligible Acres per 000 Area (2005 population: 88,900) Total Eligible State Recreation Land (Table A-1) Wicomico State Forest 1,245.0 1,245.0 14.0 Chesapeake State Forest 15,855.0 15,855.0 178.3 Subtotal, State Recreation Land 17,100.0 17,100.0 192.3 (use maximum 15.0) Local Recreation Land County-Serving Areas (Table A-2) 1,631.2 1,631.2 18.3 Community-Serving Areas (Table A-3) County and Municipalities 132.9 132.9 1.5 Board of Education 154.1 92.5 1.0 Neighborhood-Serving Areas (Table A-4) County and Municipalities 100.5 100.5 1.1 Board of Education 148.5 89.1 1.0 Subtotal, Local Recreation Land 2,167.2 2,046.2 23.0 Local Resource Land 0.0 0.0 0.0 TOTAL, Public Recreational Land 19,267.2 19,146.2 38.0

Source: URDC Table 3.4 Recreation Land, 2005–2020

Acres per Thousand 2005 2005 2010 2015 2020 Land Eligible (Population: 88,900) (Population: 94,500) (Population: 99,350)(Population: 103,300) Classification Acres Total Eligible Total Eligible Total Eligible Total Eligible Local 2,044.2 24.4 23.0 22.9 21.6 21.8 20.6 21.0 19.8 State 17,100.0 192.3 15.0 181.0 15.0 172.1 15.0 165.5 15.0 Total 19,144.2 106.4 38.0 100.0 36.6 9.0 35.6 186.5 34.8

Source: URDC

As a result of meeting the 30.0 ac/000 goal, Wicomico County is eligible to use less than 50 percent of future POS allocations for land acquisition and more than 50 percent for park and facility development. The county will determine priorities for acquisition and/or development projects on a case- by-case basis as different lands become available and recreation facility needs evolve. The county intends to address immediate maintenance and parkland development needs, but reserves the right to be flexible in using POS funding by applying all, part, or none of its annual appropriation for land acquisition.

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The Continuing Need for Recreation Land

Despite having currently met the goal for recreation land, Wicomico County recognizes the continuing need for additional parkland to meet the needs of a growing population. Therefore, the 2005 Wicomico County Land Preservation, Parks, and Recreation Plan proposes the acquisition of 127 acres of additional land to meet the recreation needs of current and future residents. Eighty acres of the additional land will be used to develop two new community parks to serve the South and West Metro Cores (Map 2.4). Additional information about the proposed acquisitions and new parks appears in the discussion of capital improvements and planning areas in chapter 7.

Facilities

The analysis of recreation facilities in Wicomico County is a comparison of the supply and demand for different types of facilities to determine the surplus or deficit of each type of facility. Each type of facility is converted into the general unit of “user-occurrences” for several reasons:

• A person who participates in a recreation activity usually does so more than one time during the course of a season. • A single recreation facility can accommodate users several times each day. • Different recreation facilities accommodate different numbers of users simultaneously, depending on the size of the teams involved in the activity.

If the supply of user-occurrences exceeds the demand, the county has a surplus of the appropriate facility. If the demand exceeds the supply, the county has a deficit of the facility. The 2005 Wicom- ico County Land Preservation, Parks, and Recreation Plan compares the current supply of 15 types of public recreation facilities (Table 3.5) to the current demand in each corresponding recreation facility (Table 3.6) which identifies the surplus or deficit of each type of recreation facility.

The facility analysis used the 2003 statewide survey, Participation in Local Park and Recreation Activities in Maryland as the primary source for the following variables necessary to estimate facility supply and demand: season length, daily supply per facility, participation rate, and frequency rate.2 In some cases, local records or observations made by department personnel regarding program participation or site visitation resulted in a different value for a specific variable than was used in the state survey.

The analysis produces “soft” estimates of the need for some facilities for several different reasons:

• Hiking and biking trails – The length and speed of each individual trip vary enough to produce a wide range of potential capacity estimates.

• Boat ramps – Boat ramps, per se, are used very quickly, creating a relatively high capacity. Sometimes, parking space for trailers is a more limiting factor.

2 Technical definitions of the variables are provided in the survey document, a complete citation for which appears in the source notes for Table 3.5.

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Table 3.5 Public Recreation Facility Supply, 2005

Public Facilities Season Daily Supply Annual Supply Total Annual Length Per Facility Per Facility Supply Activity Type Total Lighted (Days) (User-Occurrences) (User-Occurrences) (User-Occurrences) Softball Fields 48 15 180 50 9,000 432,000 Baseball Fields 24 3 120 45 5,400 129,600 Football/Soccer/Lacrosse Fields 58 6 120 55 6,600 382,800 Basketball Courts 41 7 180 35 6,300 258,300 Tennis Courts 52 12 180 20 3,600 187,200 Golf Holes 81 (1) 0 270 10 2,700 218,700 Swimming Pools 10 (1) 0 90 900 81,000 810,000 Miles (Beach) 2.2 0 90 12,000 1,080,000 2,376,000 Hiking Miles (Trail) 33.5 0 240 70 16,800 562,800 Biking Miles (Trail) Unlimited 0 180 180 32,400 Unlimited Boating Ramps 12 0 210 75 15,750 189,000 Slips 263 0 210 1 210 55,230 Fishing Acres 427 (2) 0 210 10 2,100 896,700 Hunting Acres 20,154 (3) 0 100 0.1 10 201,540 Horseshoes Courts 28 24 120 24 2,880 80,640

(1) All golf facilities and swimming pools are semipublic or private. (2) Estimated (3) Estimated - Includes an estimated 15,000 acres of private land open for hunting by permission of the owner.

Sources: Norris, Donald F. and Hanson, Royce, Participation in Local Park and Recreation Activities in Maryland, University of Maryland, Baltimore County, May 2003 Wicomico County Department of Recreation, Parks, and Tourism URDC

Table 3.6 Public Recreation Facility Demand, 2005–2020

Activity Participation Frequency Rate Demand (User-Occurrences Per Year) Rate (Percent (Occurrences Current 2010 2015 2020 of Total per User per Year) Population: Population: Population: Population: Population) 88,900 94,500 99,350 103,300 Softball 22.0% 23.15 452,768 481,289 505,990 526,107 Baseball 8.7% 17.00 131,483 139,766 146,939 152,781 Football/Soccer/Lacrosse 16.9% 28.41 426,835 453,722 477,008 495,973 Basketball 11.9% 22.09 233,692 248,413 261,162 271,546 Tennis 10.0% 20.00 177,800 189,000 198,700 206,600 Golf 10.6% 23.00 216,738 230,391 242,215 251,845 Swimming (Pools) 50.9% 19.02 860,657 914,872 961,825 1,000,066 Swimming (Beach) 42.8% 13.10 498,445 529,843 557,036 579,182 Hiking 19.2% 27.26 465,295 494,605 519,990 540,664 Biking 23.8% 36.30 768,043 816,423 858,324 892,450 Boating — Ramps 25.0% 9.14 203,137 215,933 227,015 236,041 Slips 0.25% 210.00 46,673 49,613 52,159 54,233 Fishing 39.0% 24.40 845,972 899,262 945,415 983,003 Hunting 15.0% 13.90 185,357 197,033 207,145 215,381 Horseshoes 9.6% 8.26 70,494 74,935 78,781 81,913

Sources: see Table 3.5 sources

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• Boat slips – Wicomico County residents may moor vessels outside the county, and nonresi- dents may own many of the boats used in the county. Therefore, slip usage may not be an accurate barometer of boat usage.

• Fishing and hunting – Many areas under private ownership are open to specific hunters and fishers by special permission of the owner. No record is kept of the informal arrangements permitting hunting and/or fishing on private property.

According to the facility analysis, Wicomico County currently has a need for two additional softball fields, seven football/soccer/lacrosse fields, one swimming pool, and one boat ramp (Table 3.7). The following additional facility needs may materialize as the county population increases:

• by 2010 (Table 3.8): • by 2015 (Table 3.9):4 • by 2020 (Table 3.10): 3

5 softball fields 8 softball fields 10 softball fields 2 baseball fields 3 baseball fields 4 baseball fields 11 football/soccer/lax fields 14 football/soccer/lax fields 17 football/soccer/lax fields 1 tennis court 3 tennis courts 2 basketball courts 4 golf holes 9 golf holes 5 tennis courts 1 swimming pool3 2 swimming pools2 12 golf holes 2 boating ramps 2 boating ramps 2 swimming pools2 3 boating ramps

Table 3.7 Public Recreation Facility Needs, 2005

Annual Supply Surplus/(Deficit) Activity Facility Types (User-Occurrences) Demand Total Per Facility (User-Occurrences) User-Occurrences Facilities Softball Fields 432,000 9,000 452,768 (20,768) (2) Baseball Fields 129,600 5,400 131,483 (1,883) (0) Football, Soccer, & Lacrosse Fields 382,800 6,600 426,835 (44,035) (7) Basketball Courts 258,300 6,300 233,692 24,608 4 Tennis Courts 187,200 3,600 177,800 9,400 3 Golf Holes 218,700 2,700 216,738 1,962 1 Swimming Pools 810,000 81,000 860,657 (50,657) (1) Swimming Miles of Beach 2,376,000 1,080,000 498,445 1,877,555 2 Hiking Miles of Trail 562,800 16,800 465,295 97,505 6 Biking Miles of Trail Unlimited 32,400 768,043 ------Boating (Ramps) Ramps 189,000 15,750 203,137 (14,137) (1) Boating (Slips) Slips 55,230 210 46,673 8,558 41 Fishing Acres 896,700 2,100 845,972 50,728 24 Hunting Acres 201,540 10 185,357 16,184 1,618 Horseshoes Courts 80,640 2,880 70,494 10,146 4

Sources: see Table 3.5 sources

3 Swimming pools are provided through the quasi-public and private sectors.

4 Identified facility needs are cumulative. For example, the four softball fields needed by 2015 includes the two needed by 2010 and two additional needed between 2010 and 2015.

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Table 3.8 Public Recreation Facility Needs, 2010

Annual Supply Surplus/(Deficit) Activity Facility Types (User-Occurrences) Demand Total Per Facility (User-Occurrences) User-Occurrences Facilities Softball Fields 432,000 9,000 481,289 (49,288) (5) Baseball Fields 129,600 5,400 139,766 (10,166) (2) Football, Soccer, & Lacrosse Fields 382,800 6,600 453,722 (70,922) (11) Basketball Courts 258,300 6,300 248,413 9,887 2 Tennis Courts 187,200 3,600 189,000 (1,800) (1) Golf Holes 218,700 2,700 230,391 (11,691) (4) Swimming Pools 810,000 81,000 914,872 (104,872) (1) Swimming Miles of Beach 2,376,000 1,080,000 529,843 1,846,157 2 Hiking Miles of Trail 562,800 16,800 494,605 68,195 4 Biking Miles of Trail Unlimited 32,400 816,423 ------Boating (Ramps) Ramps 189,000 15,750 215,933 (26,933) (2) Boating (Slips) Slips 55,230 210 49,613 5,618 27 Fishing Acres 896,700 2,100 899,262 (2,562) (1) Hunting Acres 201,540 10 197,033 4,508 451 Horseshoes Courts 80,640 2,880 74,935 5,705 2

Sources: see Table 3.5 sources

Table 3.9 Public Recreation Facility Needs, 2015

Annual Supply (User-Occurrences) Demand Surplus/(Deficit) Total Per Facility (User-Occurrences) User-Occurrences Facilities Softball Fields 432,000 9,000 505,990 (73,990) (8) Baseball Fields 129,600 5,400 146,939 (17,339) (3) Football, Soccer, & Lacrosse Fields 382,800 6,600 477,008 (94,208) (14) Basketball Courts 258,300 6,300 261,162 (2,862) (0) Tennis Courts 187,200 3,600 198,700 (11,500) (3) Golf Holes 218,700 2,700 242,215 (23,515) (9) Swimming Pools 810,000 81,000 961,825 (151,825) (2) Swimming Miles of Beach 2,376,000 1,080,000 557,036 1,818,964 2 Hiking Miles of Trail 562,800 16,800 519,990 42,810 3 Biking Miles of Trail Unlimited 32,400 858,324 ------Boating (Ramps) Ramps 189,000 15,750 227,015 (38,015) (2) Boating (Slips) Slips 55,230 210 52,159 3,071 15 Fishing Acres 896,700 2,100 945,415 (48,715) (23) Hunting Acres 201,540 10 207,145 (5,605) (560) Horseshoes Courts 80,640 2,880 78,781 1,859 1

Sources: see Table 3.5 sources

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Table 3.10 Public Recreation Facility Needs, 2020

Annual Supply (User-Occurrences) Demand Surplus/(Deficit) Total Per Facility (User-Occurrences) User-Occurrences Facilities Softball Fields 432,000 9,000 526,107 (94,107) (10) Baseball Fields 129,600 5,400 152,781 (23,181) (4) Football, Soccer, & Lacrosse Fields 382,800 6,600 495,973 (113,173) (17) Basketball Courts 258,300 6,300 271,546 (13,246) (2) Tennis Courts 187,200 3,600 206,600 (19,400) (5) Golf Holes 218,700 2,700 251,845 (33,145) (12) Swimming Pools 810,000 81,000 1,000,066 (190,066) (2) Swimming Miles of Beach 2,376,000 1,080,000 579,182 1,796,818 2 Hiking Miles of Trail 562,800 16,800 540,664 22,136 1 Biking Miles of Trail Unlimited 32,400 892,450 ------Boating (Ramps) Ramps 189,000 15,750 236,041 (47,041) (3) Boating (Slips) Slips 55,230 210 54,233 998 5 Fishing Acres 896,700 2,100 983,003 (86,303) (41) Hunting Acres 201,540 10 215,381 (13,841) (1,384) Horseshoes Courts 80,640 2,880 81,913 (1,273) (0)

Sources: see Table 3.5 sources

The identified needs will serve as a guide for the county in providing facilities as new parks are designed and constructed and existing parks are expanded and rehabilitated.

GREENWAYS, BIKEWAYS, AND OTHER LINEAR CORRIDORS

By combining the functions of recreation, parks, tourism, and major community events into a single department, Wicomico has a unique opportunity among Maryland counties to be both creative and functional in promoting and preserving the county’s land and culture. The Wicomico County Department of Recreation, Parks, and Tourism continues to develop greenways, bike trails, other linear corridors (Map 3.2) to blend the current popularity of trails with recreation, heritage tourism, and resource preservation. The department is currently developing a website and brochure/ handbook to guide cyclists to bike trails. The information, as well as links to other county and Lower Eastern Shore websites is found at www.wicomicotourism.org.

The linear corridor system is based on hubs and spurs. Hub locations are unique destinations that are staffed during normal working hours with persons able to provide printed information about public lands and areas of cultural, environmental, and recreational interest in the county. Hubs include:

• Wicomico Visitor’s Information Center • Wicomico Youth & Civic Center • Pemberton Historical Park • Ward Museum of Wildfowl Art • Salisbury University

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Spurs are points of orientation and local resources that can serve as a starting point for driving, biking, hiking, paddling, or other leisure activity. Current spurs include:

West Wicomico Central Wicomico Eastern Wicomico

• Whitehaven Ferry • Nabb Research Center • Winterplace Park • Cedar Hill Park • Cedarhurst Park • Adkins Mill Park • Barren Creek boat ramp • Centennial Village Playground • Eastside Sports Complex (Mardela Springs) • Crooked Oak Playground • Kilbirnie Park • Town of Hebron • Emerson Holloway Park • Town of Pittsville • Village of Quantico • Nick Meyer Park • Willards Park • Town of Sharptown • Harmon Field • Village of Wetipquin • Indian Village Playground • Village of Nanticoke • Leonard's Mill Park • Billy Gene Jackson, Sr. Park • Riverside Boat Ramp • Schumaker Park

The linear corridor system in Wicomico County uses roads, river and stream corridors, and other existing assets to connect hubs and spurs. The system offers the benefits of beautiful scenery and alternative transportation throughout the eastern and western parts of the county. One of the major challenges for the department in developing the linear corridor system is connecting the east and west sides of the county through Salisbury and the Metro Core. Potential bike lanes need to be protected as development continues in the Metro Core. The Salisbury Wicomico Department of Planning, Zoning, and Community Development works with developers to reserve land for bikeways and should continue to pursue land for future linear corridor connections.

HERITAGE TOURISM

Wicomico County has a rich heritage involving not only European settlers, but Native Americans and African Americans as well. The bikeways, greenways, water access, and trails throughout the county provide opportunities to witness the natural and man-made characteristics that make Wicomico the activity center of the Lower Eastern Shore. Significant destinations for heritage tourism in Wicomico County include:

• Adkins Historical and Museum • Mason-Dixon Marker • Poplar Hill Mansion Complex (Mardela Springs) • Newtown Historic District • Salisbury Zoological Park • Charles H. Chipman Cultural (Salisbury) • Town of Mardela Springs Center (Salisbury) • Old Spring Hill Church • Town of Whitehaven • Edward H. Nabb Research Center (Hebron) • Upper Ferry • Fruitland Election House • Pemberton Historical Park • Ward Museum of Wildfowl Art • Green Hill Church • Pemberton One-Room • Whitehaven Ferry • Historic Town of Quantico Schoolhouse

Pemberton Historical Park (http://www.pembertonpark.org/) is the department’s premier heritage tourism site. The park includes 234 acres with 4.5 miles of nature trails and is the site of Pemberton

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Hall and the Wicomico Heritage Center. The building is one of the first 18th-century homes built in Wicomico County and has been restored by the Pemberton Hall Foundation. The department supports an ongoing capital program for Pemberton Park. Future improvements include a contact building, stable building, “ghost framed” buildings illustrating the previous on-site smokehouse, corn crib, and slave quarters, cider press, addition to the heritage museum, and an environmental education center.

Wicomico County is part of the Lower Eastern Shore heritage area, which also includes the counties of Worcester and Somerset. The Lower Eastern Shore Heritage Committee, Inc. (LESHC) located in Salisbury, is a private, nonprofit organization that helps to preserve, protect and promote the cultural, natural and historical heritage of Somerset, Wicomico and Worcester counties (http://www.skipjack.net/le_shore/heritage/). LEHSC is recognized by the state as the lead agency promoting heritage tourism in the region.

Wicomico County also has three Maryland Scenic Byways passing through portions of the county (Map 3.2):

• Chesapeake Country, which tells the story of water-laced land along the Chesapeake Bay with Victorian towns and waterfront villages. The Chesapeake Country Scenic Byway stretches the entire length of the bay on the eastern shore, from Chesapeake City in Cecil County to Crisfield and Ewell in Somerset County.

• Old Ocean City Road, which encompasses flat farm country, an occasional patch of woods, and the remnants of by-gone life in historic Salisbury or a small town. The Old Ocean City Road Scenic Byway connects Salisbury to Ocean City in Worcester County via MD 346 and U.S. 50.

• The proposed Blue Crab Scenic Byway highlights the seafood delicacy for which the Chesapeake Bay area is famous. The Blue Crab Scenic Byway is still in the application process, with the support of all local officials, including Wicomico County. The byway is more than 200 miles of scenic rural highway connecting over 800 sites along the route recognized for ecotourism and heritage tourism value. In Wicomico County, the Blue Crab Scenic Byway will include several state and county routes in the western part of the county plus MD 346 east of Salisbury.

WATER ACCESS

Water resources abound in Wicomico County. The Nanticoke and Cedar Hill Harbors and Salisbury Marina provide access for boaters and 263 slips available for rent, most with water and electric hookups. Cedar Hill Marina (www.cedarhillmarina.com) is a modern, well-equipped docking facility with slips ranging in width from eight to fourteen feet. Nanticoke Marina is primarily a waterman's harbor, used almost exclusively by commercial boats and others who make a living on the water.

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Water access is also available at 12 boat ramps situated throughout the county, including Cedar Hill Park, Coulbourne Mill Park, Leonard's Mill Park, Mardela, Nanticoke Park, Riverside Drive, Sharptown, Tyaskin, and Wetipquin. Other water access is provided by the beachfronts at Schumaker, Cherry Beach, Roaring Point, and Cove Road.

In the mid 1990s, the county acquired 340 acres of land, including 3,000 linear feet of shoreline along the Wicomico River, to set aside for future use. The site, known as Pirates Wharf Park, features deepwater access to support boat launching facilities and a marina. Site design of Pirates Wharf, which will include a community park, is a mid-range goal of the 2005 Wicomico County Land Preservation, Parks, and Recreation Plan.

The county is embarking on several major improvements to water access, including jetty reconstruction at Nanticoke Harbor and dredging at Cedar Hill Park. The typical life span for marine structures, such as bulkhead, boat ramps, and piling, is 20–25 years. Many of the county’s facilities are approaching the time when major renovation must be considered. The plan encourages a marine facility restoration plan to ensure measures are taken to upgrade facilities as required.

PROGRAMS

Wicomico County has traditionally had a strong complement of recreation program offerings. The 1999 plan identified about 240 different activities offered, including sports leagues, after school child care, summer playgrounds, senior adult services, instructional programs, special events and programs for targeted groups, such as at-risk youth.

The county’s ability to offer a strong recreation system is enhanced unique parks and recreation facilities, including equestrian facilities, an award-winning athletic complex, and a minor league baseball stadium. Furthermore, the department has developed partnerships with 45 other recreation service providers, such as sports leagues, recreation councils, and special interest groups, to extend county programs and services. Cooperative efforts form the foundation for countywide services and make the best use of recreation resources.

Local trends, identified through interviews with key recreation personnel in Wicomico County, include the following:

• Swimming continues to be a popular activity, but the county has no public aquatics facility.

• The at-risk youth population continues to need more activities. Recently reduced and eliminated programs offered in “at risk” neighborhoods should be reinstated.

• Partnerships between recreation and social service agencies are a critical element in creating an efficient, coordinated service delivery system that makes the best use of scarce resources.

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• The senior citizen population is growing and becoming more active, which requires more and varied program opportunities and the development of a multipurpose community center to focus on senior services.

• Lack of transportation and the location of program opportunities sometimes prohibit some residents from participating in a desired program.

• The current inventory of outdoor recreation facilities accommodates the current public recreation program.

From 2000 to 2004, participation in recurring program offerings declined by 8.3 percent (Table 3.11). The decline in program participation can be attributed to several factors, one of which is the revenue cap. The revenue cap has hampered department programming in three ways:

• Reductions to the operating budget have prompted the department to reduce the number of programs offered.

• The department has had to reduce the number of sites for summer playgrounds, after-school programs, and sports camps, all of which significantly benefit at-risk youth.

• Recent county budget reductions have lowered subsidies for sports leagues, child care, instructional programs, and senior citizens activities, compelling the department to increase program fees by as much as 200%, to the point where some participation is significantly reduced, and some former participants can no longer afford to be involved.

FINANCES

Wicomico County current financial posture requires that all recreation programs except those for seniors and at-risk youth must be financially self-sustaining. Therefore, the department’s strong partnerships with 45 other organizations are a strong, effective means of providing many traditional recreation services to county residents.

However, the revenue cap instituted by Wicomico County is having a negative effect on the department’s ability to maintain and expand the county’s outstanding recreation and parks system in response to growing demand from an increasing population. County tax support for recreation and parks, which had been steadily increasing prior to the revenue cap, has decreased (Table 3.12). County support is critical to providing leisure services, particularly for at-risk populations, such as low-income youth and seniors.

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Table 3.11 Public Recreation Registration, 1990–2004

Change, 2000-2004 Program 1990 1995 2000 2004 Number Percent Girl's Softball 623 765 634 474 -160 -25.2% Men's Slow Pitch Softball 555 560 550 420 -130 -23.6% Youth Soccer 1,129 1,838 1,939 1,161 -778 -40.1% Youth Wrestling 55 80 47 67 20 42.6% Youth Lacrosse 0 0 104 200 96 92.3% Girls Field Hockey 0 0 0 73 73 - Girls Volleyball 0 0 0 72 72 - Fall Softball 0 0 270 145 -125 -46.3% Summer playgrounds 1,864 806 693 611 -82 -11.8% Number of Sites: 30 14 15 8 -7 -46.7% Summer Day Camps 151 285 247 222 -25 -10.1% Number of Sites: 4655 0 0.0% After-School Program 0 137 188 125 -63 -33.5% Number of Sites: 0685 -3 -37.5% Adult Volleyball 534 496 463 397 -66 -14.3% Pavilion Rentals 68 117 185 237 52 28.1% Boat Slip Rentals 210 192 112 166 54 48.2% Env. Ed. Programs 100 65 3,834 4,161 327 8.5% Pet Fair 32 27 33 41 8 24.2% Fishing Derby 262 205 200 250 50 25.0% Pork in the Park 0 0 0 7,500 7,500 - Wine Festival 0 0 0 3,000 3,000 - Chess Tournament 41 37 64 50 -14 -21.9% Sports Tournaments 4,988 6,820 4,530 3,975 -555 -12.3% Number of Sessions: 40 67 35 40 5 14.3% Westside Community Center 2,109 1,806 652 624 -28 -4.3% Happy Timers (avg. weekly) 154 146 110 125 15 13.6% Sports Camps 89 163 212 179 -33 -15.6% Number of Camps: 4 5 6 4 -2 -33.3% Instructional Programs 874 631 514 515 1 0.2% Totals 13,916 15,274 15,650 24,852 9,202 58.8% without Pork in the Park, Wine Festival 15,650 14,352 -1,298 -8.3%

Source: Wicomico County Department of Recreation, Parks, and Tourism

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Table 3.12 Recreation and Parks Budget, 1990–2004

Item 1990 1995 2000 2004 County Taxes Operating Budget $ 803,300 $ 917,200 $ 1,281,400 $ 1,274,800 Capital Improvement Budget $ 174,000 $ 136,000 $ 56,000 $ - Subtotal - County Taxes $ 977,300 $ 1,053,200 $ 1,337,400 $ 1,274,800 Fees and Charges Operating Budget $ 155,900 $ 185,000 $ 260,700 $ 233,000 Enterprise Budget $ 386,600 $ 627,100 $ 806,200 $ 941,000 Subtotal - Fees and Charges $ 542,500 $ 812,100 $ 1,066,900 $ 1,174,000 Grants Federal Urban Playgrounds State Program Open Space $ 226,000 $ 286,000 $ 504,815 $ 213,100 State Waterway Improvements $ 50,000 $ 1,200,000 $ 100,000 $ 63,000 Army Corps of Engineers $ - $ 111,000 $ - $ - Salisbury Maintenance $ 5,000 $ 5,000 $ 3,000 $ 3,000 Subtotal – Grants $ 281,000 $ 1,602,000 $ 607,815 $ 279,100 Recreation Councils Community Councils $ 72,000 $ 140,000 $ 132,000 $ 120,000 Sports Leagues $ 111,700 $ 97,000 $ 110,000 $ 110,000 Subtotal - Recreation Councils $ 183,700 $ 237,000 $ 242,000 $ 230,000 Private Donations Business & Service Clubs $ 200,000 $ 290,000 $ 250,000 $ 300,000 Subtotal - Private Donations $ 200,000 $ 290,000 $ 250,000 $ 300,000 Total $2,184,500 $ 3,994,300 $ 3,504,115 $ 3,257,900

Source: Wicomico County Department of Recreation, Parks, and Tourism

Five types/sources of funding support recreation and parks in Wicomico County:

• County taxes • Recreation councils • Fees and charges • Private donations • Grants

Fees and charges will not completely cover the cost of recreation services because of the high capital cost necessary for parks and recreation facilities and the need to provide services to populations least able to financially support the services. Grants, recreation council funding, and private donations fluctuate and are often tied to specific programs or services. Therefore, county support is, by definition, the most stable funding source for recreation and parks.

As population increases, the need for parks and recreation services also increases. Current population centers, like the West Metro Core, and future population center, like the South Planning Area, will continue to grow, requiring additional future funding to meet recreation needs. County taxes, the most stable source of funding, had increased steadily in response to the needs of a growing population until the county instituted the revenue cap. Furthermore, county support for the department’s capital improvement budget has been virtually eliminated. In addition, all dollar amounts in Table 3.12 are in constant dollars, unadjusted for inflation.

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Therefore, the demands of meeting the needs of a growing population, maintaining a high-quality, safe recreation and park system, replacing equipment in a timely, cost-effective manner, and funding needed additional projects all combine to pose a significant challenge for Wicomico County in the immediate and foreseeable future. The Wicomico County Recreation Commission has established the following funding priorities as a framework for decisions regarding recreation and parks expenditures:

1. Maintenance — Make the best use of existing parks and recreation facilities. a. Safety – Ensure the safety of users at all county recreation sites. b. Function – Use existing facilities for new programs whenever possible. c. Savings – Provide programs and facilities that offer the greatest return on public investment.

2. Acquisition — Purchase land for additional parks where needed as opportunities arise.

3. Development — Develop new parks to meet recreation needs in identified growth areas.

4. Expansion/Improvement — Expand/improve recreation offerings in existing parks as demand suggests and resources allow.

COUNTY PRIORITIES

The 2005 Wicomico County Land Preservation, Parks, and Recreation Plan integrates the three subject areas––recreation and parks, agricultural preservation, and natural resource conservation–– by presenting all policy and capital recommendations in a single, final chapter (chapter 7) of the plan. Wicomico County’s priorities in recreation and parks are shown in a summary of the proposed capital improvements (The entire capital improvements program is shown in Tables 7.2 through 7.8):

• Total projects: 54 • Total estimated cost: $19,770,000 • Acres to be acquired: 127.0

• Immediate (2005–2010): $ 3,763,000 (19%) • Mid-Range (2011–2015): $10,815,000 (55%) • Long-Range (2016+): $ 5,192,000 (26%)

• Acquisition: $ 2,170,000 (11%) • Development: $11,340,000 (57%) • Rehabilitation: $ 6,260,000 (32%)

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PLANNING AREAS

Recognizing that park and recreation needs differ in various areas of the county, the 2005 Wicomico County Land Preservation, Parks, and Recreation Plan divides the county into sections for analysis, called “planning areas”. Boundaries for the areas were carefully selected to reflect common physiographic, population, and land use characteristics and have remained essentially the same since the original plan was prepared in 1988.

Planning areas are important because recreation needs are different in various sections of the county. People close to swimming pools may be quite far from athletic fields. People in and around the city are farther from passive, nature-oriented recreation opportunities than people in outlying areas near nature centers. Planning areas allows analysts to look more closely at the park and recreation facility needs of residents in specific parts of the county.

Past land preservation and recreation plans (1988, 1994, 1999) have maintained five planning areas: Tri-Town, West Side, Central, South, and East. The Central Planning Area, which includes the City of Salisbury and most of the Metro Core, has been the focus of development activity since the original plan. Recognizing the continued development pressure in “high growth areas” (specific areas in which county policy and available infrastructure focused new development), the 1999 plan delineated three separate “sectors” of the Central Planning Area: North (generally north of U.S. 50/Dagsboro Road), East (east of U.S. 13), and West (west of U. S. 13).

The 2005 Wicomico County Land Preservation, Parks, and Recreation Plan divides the county into six planning areas (Map 4.1):

• Tri-Town • Central • West Side • South • North • East

The new North Planning Area coincides with the area formerly identified as the north sector of the Central Planning Area. Separate delineation of the North Planning Area accentuates the area as a possible future focus of population growth and, subsequently, recreation needs and demand.

In addition, while the east and west sectors of the Central Planning Area are still identified, the 2005 plan shifts the focus of the each sector to the area outside the City of Salisbury. The city provides local resources to help meet the leisure service needs of city residents, and the city and county have had a strong, effective partnership for decades. Therefore, the focus of the Central Planning Area information will be the areas outside of the city, for which the department takes primary responsibility.

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Tri-Town Planning Area

The Tri-Town Planning Area contains the Towns of Hebron, Mardela Springs, and Sharptown, as well as the surrounding area. Smaller villages include Santo Domingo, Spring Grove, Athol, and Catchpenny. The Tri-Town Planning Area is still largely rural and forested. In 2005, about 5,700 persons live in the Tri-Town area, about 300 more persons than in 2000 (Table 2.3). By 2020, almost 6,600 residents are projected to live in the Tri-Town area, an increase of 900 persons (16 percent).

Natural Features and Farmland

Waterways are a significant part of the natural environment in the Tri-Town Planning Area. Eighteen miles of the meandering Nanticoke River form the western boundary of the Tri-Town area. Three significant waterways flow from far inside Tri-Town to the Nanticoke, forming 34 miles of natural, scenic corridors in the vicinity of Hebron and Mardela Springs. The Quantico Creek is 14 miles long, the Rewastico Creek is 11 miles long, and the Barren Creek flows for 9 miles. Two significant water bodies near Mar- dela Springs are part of Barren Creek—Barren Pond and Mockingbird Pond.

The western boundary of Tri-Town includes large areas of wetlands extending south along the Nanticoke River from Ferry Point to the Chapter Point area. The Maryland Department of Natural Resources preserves 1,588 acres along the Nanticoke River known as the Eastern Shore Wildlife Management Area (WMA). Wetlands, including the WMA and various sites along Barren, Rewastico, and Quantico Creeks, make up 20 percent of the land in Tri-Town.

Historic Places

Quantico, which was founded well before the Revolution, includes numerous historic houses and churches, some of which date back to the 18th century. The area includes more than 30 recognized historic buildings concentrated near Mardela Springs, Hebron, Quantico, and the Wicomico River.

Preserved Land

Tri-Town also has more farmland preserved than any other planning area in the county. The Quantico Creek Rural Legacy Area extends into the southern portion of Tri-Town. Portions of the Chesapeake State Forest lie throughout the area. Other lands preserved through state ownership or the The Nature Conservancy include the Sharptown Dunes, Plum Creek Cedar Swamp Preserve, the Upper Nanticoke Management Area, and the Wetipquin Pond Management Area.

Existing and Future Recreation

Parks and recreation areas are located where most of Tri-Town's people live: Sharptown (three parks/recreation areas), Mardela Springs (three parks/recreation areas) and Hebron (four parks/recreation areas). Four other recreation areas are located outside of the towns.

The three largest public parks—Cope Bennett Park, Hebron Park, and Mardela Park—are located in the three largest population centers. Five recreation areas are located at public schools. Public recreation sites in the Tri-Town Planning Area include (Map 3.1, Tables A-2 through A-4 in the appendix):

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• Cherry Beach (#1) • Mardela Park (#6) • Cope Bennett Park (#2) • Mardela High School (#7) • Gene Lowe Park (#3) • Mardela Tennis Courts (#8) • San Domingo Playground (#4) • Mardela Boat Ramp (#9) • Northwestern Elementary School (#5) • Hebron Park (#13)

The local recreation areas in Tri-Town total 81.5 acres.

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West Side Planning Area

The West Side Planning Area is bordered by the Nanticoke River on the west, the Wicomico River on the south, Upper Ferry Road on the east, and Cherry Walk/Quantico Roads on the north. The area is primarily rural with approximately 4,165 residents in 2005, an increase of about 200 persons since 2000. West Side population is expected to increase by almost 700 persons (17 percent) to 4,840 by 2020. The village of Nanticoke has largest concentration of residents in the West Side. Most other residents live in or near the villages of Wetipquin, Tyaskin, Bivalve, Jesterville, Whitehaven, Capitola, Cox Corner, and Green Hill.

Natural Features and Farmland

The West Side has the most shoreline of any planning area in the county—bordered by both the Nanticoke River on the west and the Wicomico River on the south. Wetlands and Chesapeake Bay Critical Areas cover large amounts of the West Side.

Historic Places

Whitehaven—listed in the National Register of Historic Places—is the home of a ferry that has operated across the Wicomico River for almost three centuries. The West Side also includes 24 other significant historic buildings.

Preserved Land

The state and The Nature Conservancy own and/or control large portions of the West Side, in essence permanently preserving the land. Portions of the Chesapeake State Forest occupy large tracts in the center of the West Side. Two state wildlife management areas (WMAs)—Ellis Bay WMA on the Wicomico River to the south and the Nanticoke River WMA to the north—comprise almost 4,500 preserved acres. Extensive Chesapeake Bay Critical Areas and the Quantico Creek Rural Legacy Area significantly restrict development and add to the rural character of the West Side.

Existing and Future Recreation

The West Side has 12 public recreation sites (Map 3.1, Tables A-2 through A-4):

• Westside Intermediate School (#10) • Bivalve Wharf (#119) • Pirates Wharf (#111) • Cedar Hill Park (#120) • Clara Road Boat Ramp (#114) • Tyaskin Recreation Area (#121) • Roaring Point Park (#115) • Wetipquin Park (#122) • Nanticoke Park Recreation Area (#117) • Westside Primary School (#126) • Cove Road Recreation Area (#118) • West Side Community Center (#128)

The public recreation sites total 493 acres. Pirates Wharf, as yet undeveloped, accounts for 341 acres, or 69 percent of the public recreation acreage in the West Side. Combined with the extensive state forests, recreation land in the West Side will be more than adequate for the foreseeable future.

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North Planning Area

The North Planning Area is the area north Naylor Mill and Dagsboro Roads between U. S. 50/ Spring Hill Lane and Parsonsburg Road. The area was identified in previous county land presser- vation plans as the North Sector of the Central Planning Area. The North Planning Area is home to approximately 9,000 people, with an expected increase of 17 percent to 10,500 by 2020.

The North Planning Area is characterized by growth pressure between the City of Salisbury and Delmar. The U. S. 13 corridor bisects the planning area, creating a development corridor through the middle of the area. The area includes the North Growth Area (Map 2.4), which is poised to experience potentially significant future growth from Salisbury.

Natural Features and Farmland

The forested lands of the North (and Central) Planning Area are in smaller tracts and more scattered than in other areas of the county. Generally, the area is well-suited for development, with better natural drainage and fewer wetlands than other planning areas.

Leonards Mill Pond is the dominant water feature. The Jackson, Myer, and Andrews Branches and Wood Creek flow into Leonard Mill Pond, which empties into the Leonard Pond Run, which flows toward the North Prong of the Wicomico River.

Preserved Land

The North Planning Area has several parcels of the Chesapeake State Forest, all located east of U. S. 13. State forests total 477 acres in the North Planning Area.

Existing and Future Recreation

Public recreation sites in the North Planning Area provide 178 acres of recreation land and include (Map 3.1, Tables A-2 through A-4):

• Edgewood Park (#15) • Leonards Mill Park (#23) • Gordy Park (#16) • Naylor Mill Park Recreation Area (#24) • Mason Dixon Sports Complex (#17) • Henry S. Parker Athletic Complex (#25) • Delmar Elementary (#18)

Both the Parker complex and Naylor Mill Park draw from the entire county. The Parker complex also provides opportunities to use recreation as a visitor draw by attracting regional athletic tournaments.

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Central Planning Area

The Central Planning Area includes the land adjoining the City of Salisbury to the east and west. Population of the Central Planning Area in 2005 is approximately 48,100—54 percent of all county residents, and an increase of 2,300 persons since 2000. By the year 2020, almost 56,000 people will live in the area—an increase of 7,900 persons (16 percent).

The size of the Central Planning Area has suggested further geographic refinements for planning analyses. The 1999 plan divided the area into three sectors: north, east, and west. The 2005 plan has classified the North Sector as a separate, distinct planning area. The East Sector and West Sector are geographically the same as in earlier plans, although the emphasis of the 2005 plan is on areas outside of the City of Salisbury:

• The East Sector includes all land bordered generally by U.S. 13 on the west, Dagsboro Road on the north, Forest Grove/Parsonsburg Roads on the east, and Mount Hermon/Airport Roads on the south. The East Sector includes the Northeast Growth Area emanating from the City of Salisbury (Map 2.4).

Approximately 12,800 people live in the East Sector (outside of Salisbury), an increase of about 600 persons since the 2000 census. By 2020, an additional 2,100 people (16 percent) will live in the East Sector, bringing total population to 14,900.

• The West Sector includes land outside of Salisbury bounded by:

o The Wicomico River on the south. o Upper Ferry and Fire Tower Roads on the west. o Quantico Creek Road, Levin Dashiell Road, Rockawalkin Road, U. S. 50, and Naylor Mill Road on the north. o U. S. 13 on the east.

The West Sector includes the West Metro Core area (Map 2.4), which has experienced tremendous growth in recent decades. Population in the West Sector is approximately 10,300 in 2005 and is projected to increase by 1,700 persons (16 percent) by 2020.

Natural Features and Farmland

As in the North Planning Area, forests in the Central Planning Area are smaller and more scattered than in other areas of the county. Obviously, the area is well-suited for development, since the vast majority of the area has developed in urban uses.

The primary waterway in the Central Planning Area is the Wicomico River and its tributaries. The banks of the river are, however, largely developed, which limits public access to the water. Farmland is common as one moves outward toward the east or west from the city.

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Historic Places

The layout for the City of Salisbury was prepared in 1732. Today, the city has the richest collection of historic buildings in the county.

The 234-acre Pemberton Historical Park along the Wicomico River in the West Sector is the crown jewel of historic recreation in the county. Except for Pemberton Hall, the site remained undeveloped until 1984, when the county began to gradually develop the site within its historic context. The department maintains a full-time park naturalist to oversee recreational and educational programs. In addition, the county developed a master plan for the site and has been steadily improving the site in accordance with the master plan.

Preserved Land

Several small parcels of Chesapeake State Forest totaling 284 acres lie in the eastern and western edges of the Central Planning Area. In addition, several farms are currently under easement restricting future development.

Existing and Future Recreation

As the center of population in Wicomico County, the Central Planning Area is also the center of recreation activities and sites. The City of Salisbury has 36 local recreation sites totaling 530 acres (Map 3.1, Tables A-2 through A-4):

• JCC Park (#23) • Riverside Boat Ramp (#56) • West Salisbury Elementary (#26) • Riverwalk Park (#58) • Indian Village Playground (#30) • Wicomico Middle School (#61) • Emerson Holloway Park (#31) • Newton Playground (#62) • Salisbury Middle School (#32) • Newton-Camden (#63) • Billy Gene Jackson Park (#33) • East Salisbury Elementary (#65) • North Johnson Pond (#34) • Doverdale Playground (#66) • North Salisbury Elementary (#35) • Wicomico High School (#70) • Johnson Pond Park (#36) • Glen Avenue Elementary (#72) • Lake Street Playground (#37) • Memorial Field (#73) • Rose Street Boat Ramp (#38) • Salisbury City Park and Zoo (#74) • Chipman Elementary (#39) • Prince Street School (#76) • Poplar City Mansion (#40) • Bennett Middle School (#78) • Salisbury Marina (#41) • Bennett High School (#80) • Waterside Playground (#43) • Harmon Field (#81) • Pemberton Elementary (#46) • Salisbury Pony League (#82) • Pinehurst Elementary (#54) • Parkside High School (#84)) • Woodcock Playground (#55) • Schumaker Park (#86)

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The East Sector includes six local recreation sites: (Map 3.1, Tables A-2 through A-4):

• Nick Meyer Park (#69) • Beaver Run Elementary (#88) • Wicomico Youth/Civic Center (#71) • Perdue Stadium (#89) • Winterplace Park (#87) • Kilburnie Playground (#91)

The six sites in the East Sector total 441.1 acres to serve 12,800 residents, or approximately 34.5 acres per thousand population (ac/000). If no additional parkland is acquired by 2020, the East Sector will have 29.6 ac/000 to serve an estimated 14,900 residents.

The West Sector contains five local recreation sites (Map 3.1, Tables A-2 through A-4):

• Cedarhurst Park (#27) • West Salisbury Little League (#47) • Crooked Oak Playground (#28) • Pemberton Historical Park (#50) • Centennial Village (#29)

Local recreation land in the West Sector amounts to 252.3 acres for the five sites. With a population of approximately 10,300, the West Sector is served by 24.5 ac/000. By 2020, the 252.3 acres would be approximately 21.0 ac/000 for the expected 12,000 residents. With growth pressure particularly strong to the west of the city, the county has proposed developing a park to serve the growing West Metro Core area. The plan recognizes the need for the West Metro Core park in the capital recommendations, discussed in chapter 7.

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South Planning Area

The South Planning Area includes the City of Fruitland and all land west to the Wicomico River and east to the Salisbury-Wicomico County Airport. The second largest of the planning areas, the south area is home to more than 16,000 people in 2005—an increase of approximately 800 persons (5.2 percent) in five years. By 2020, the area’s population is expected to reach almost 19,000, an increase of 18.8 percent.

The South Planning Area includes the South Growth Area, one of three high growth areas in the county. If completely developed at maximum density, the growth area—south of U. S. 13 and east of St. Luke’s Road near the City of Fruitland—could accommodate an additional 13,000 persons.

Natural Features and Farmland

The South Planning Area includes 14 parcels of the Chesapeake State Forest. Wetland areas extend over much of the Wicomico River and the Wicomico Creek, and, to a lesser extent, along Hawkins Branch, Walston Branch, and Tony Tank Creek.

The Johnson Wildlife Refuge, 153 acres in size, is located off of Johnson Road in the southeast corner of the planning area. The land is owned by the State of Maryland and is used primarily for hunting.

The Wicomico River and Wicomico Creek are the largest waterways in the South Planning Area. Other waterways include Passerdyke Creek south of Fruitland, Sharps Creek passing through Fruitland, and the many branches of the Nassawango Creek east of the Johnson Wildlife Refuge.

Several parcels in the South Planning Area are preserved by agricultural conservation easement. Large areas are preserved in the Ferry Road/Allen area and Twiggs Corner area.

Preserved Land

Chesapeake State Forest land covers approximately 1,537 acres of the South Planning Area. In addition, the Johnson Wildlife Management Area comprises 115 acres, and the Nassawango Creek Preserve, which lies in both the South and East Planning Areas, is 824 acres in size. As noted above, several agricultural parcels are also preserved through easement.

Existing and Future Recreation

The South Planning Area includes the following six public recreation sites comprising 55.8 acres of recreation land (Map 3.1, Tables A-2 through A-4):

• Coulbourne Recreation Area (#103) • Fruitland Intermediate (#106) • Fruitland Recreation Facility (#104) • Fruitland Tennis Courts (#107) • Fruitland Primary (#105) • Allen Park (#127)

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With a population of 16,000, local recreation sites provide 19.6 acres of parkland for every thousand residents in the South Planning Area. State and Nature Conservancy acreage provides an additional 53 acres/000—short of the 60 ac/000 goal and, therefore, not sufficient to contribute to the local benchmark.

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East Planning Area

The East Planning Area, a largely wooded and rural area that borders the Pocomoke River, is the least populated of the five planning areas. Maryland Routes 353 and 354 allow for north-south travel through the area, with major east-west routes including U.S. 50, MD 346, and MD 350. Most residents are concentrated in and near the Towns of Willards, Powellville, and Pittsville.

Approximately 5,600 people live in the East Planning Area in 2005, an increase of approximately 300 persons (5.4 percent) since 2000. By 2020, almost 6,500 people are expected to reside in the area, an increase of 16.1 percent. Much of the future growth will probably occur near Willards because of its proximity to the growing Ocean City region in neighboring Wor- cester County.

Natural Features and Farmland

The Pocomoke River forms the eastern boundary of the East Planning Area—and of Wicomico County—and has been officially designated as a Maryland Scenic River. Both sides of the river and its tributaries include large tracts of wetlands.

Three significant creeks, each with many branches, flow into the Pocomoke River: the Burnt Mill Branch, Green Run, and Adkins Race. Other branches near Johnson Road flow into the Nas- sawango Creek. Large areas of the East Planning Area are preserved and available for hunting in state forests, including over 1,200 acres in the Wicomico State Forest and approximately 3,000 acres in several portions of the Chesapeake State Forest.

Drainage is a critical agricultural issue in the East Planning Area. A system of public drainage associations operates to improve drainage during both the spring planting and fall harvesting. Water is retained during the dryer summer months for agricultural use. Some agricultural parcels in the area of Smith Road are preserved through easement.

Preserved Land

The East Planning Area includes five distinct areas of preserved land (Tables A-2 through A-4):

• Chesapeake State Forest parcels, covering almost 3,000 acres • Wicomico State Forest (1,245 acres) • Pocomoke River Heritage Conservation Fund (156 acres) • Powellville Forest (4.2 acres) • Nassawango Creek Preserve (824 acres in both the East and South Planning Areas)

In addition, several agricultural parcels in the area of Smith Road and a swampy parcel along the Pocomoke River at Masseys Crossing are also preserved.

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Existing and Future Recreation

The East Planning Area has the following public recreation sites providing 102.8 acres of recreation land (Map 3.1, Tables A-2 through A-4):

• Pittsville Ball Park (#91) • Willards School (#96) • Pittsville School (#93) • Willards Recreation Area/Park (#98) • Pittsville Playground (#94) • East Side Youth Sports Complex (#99) • Willards Primary (#95) • Adkins Mill Park (#100)

For a 2005 population of 5,600, public recreation accounts for 18.4 acres of recreation land per thousand residents. The state and The Nature Conservancy own more than 10,500 acres in the East Planning Area, amounting to 187.5 ac/000, or 127.5 ac/000 in excess of the state goal of 60 ac/000. Therefore, 15.0 ac/000 of the excess can be credited toward the local goal of 30.0 ac/000, resulting in 33.4 ac/000 of local recreation land for the East Planning Area.

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AGRICULTURAL LAND PRESERVATION

Many land preservation efforts revolve around farmland. Development has expanded the urban areas in Maryland and throughout the nation, often at the expense of what once was productive farmland. Both the State of Maryland and Wicomico County have developed programs to promote farmland preservation. The following chapter presents both the state and county programs and discusses the effectiveness of the county program.

INTRODUCTION

Land preservation is a priority for public and private organizations and all levels of government. Programs at the federal, state, and county levels offer vehicles such as conservation easements and tax advantages to entice property owners to consider preservation as a viable alternative to development. Land trusts and conservancies also offer advantages of land preservation.

Chapter 5 of the 2005 Wicomico County Land Preservation, Parks, and Recreation Plan will identify and compare the goals of the state and county programs and evaluate the effectiveness of the agricultural preservation efforts in Wicomico County. The information in chapter 5 will provide the background for recommendations regarding agricultural preservation to be presented in chapter 7.

BACKGROUND AND GOALS

One of the key points in the Wicomico County Comprehensive Plan (3 Feb 1998) is that agriculture has a major influence on the economic, social, and physical character of the county. According to the 2002 Census of Agriculture, farms cover 88,470 acres of land in the county––more than 36 percent of the county’s total land area. From 1978 to 1992, the market value of agricultural products produced in Wicomico County grew by almost $56 million (Table 5.1). In 2002, the market value of the county’s agricultural products was almost $175 million (Table 5.2).1 Agriculture is clearly a major industry in Wicomico County. Among Maryland counties in 2002, only Somerset had a higher market value of agricultural products than Wicomico.

Urbanization has caused a decline in the supply of agricultural land in Wicomico County in recent years (Table 5.3). Over the past 24 years, there has been an overall decline of more than 17 percent in the amount of acres devoted to farming, representing a decrease of almost 19,000 acres. In the period 1978 to 2002, the number of farms decreased (although average farm size increased), and farmland acres decreased as a percentage of total county land. The largest decrease occurred in the 1982-87 period, when 15,567 acres of agricultural land were developed––an average of more than 3,000 acres per year. More recently, farmland development has been slowed: about 7,000 acres

1 Tables 5.1 and 5.2 present data for different time periods because the Census Bureau changed the data reporting method in 1997. Therefore, a direct comparison between the figures contained in the two tables cannot be made. The comparison of trends remains valid.

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were developed from 1987 through 2002––less than 500 acres per year, or seven of the total amount of farmland that existed in 1987.

Table 5.1 Selected Agricultural Characteristics Wicomico County, 1978-1992

Change 1978 - 1992 1978 1982 1987 1992 Number Percent Value of Land and Buildings - Average per farm $186,734 $212,515 $244,509 $339,581 $152,847 81.9% - Average per acre $1,508 $1,705 $1,885 $2,280 $772 51.2% Market Value of Products $108,125,000 $121,512,000 $134,061,000 $164,101,000 $55,976,000 51.8% - Average per farm $117,527 $144,318 $173,205 $240,763 $123,236 104.9% Source: U.S. Department of Commerce; Bureau of the Census; 1978, 1982, 1987, and 1992; Census of Agriculture.

Table 5.2 Selected Agricultural Characteristics And Changes Wicomico County, 1997-2002

Change 1997 - 2002 1997 2002 Number Percent Value of Land and Buildings - Average per farm $401,130 $573,235 $172,105 42.9% - Average per acre $2,756 $3,413 $657 23.8% Market Value of Products $205,514,000 $174,594,000 ($30,920,000) (15.0%) - Average per farm $329,350 $341,003 $11,653 3.5% Source: U.S. Department of Commerce; Bureau of the Census; 1997 and 2002; Census of Agriculture.

Table 5.3 Agricultural Land Use 1978 - 2002 Wicomico County

Change, 1978–2002 1978 1982 1987 1992 1997 2002 Number Percent Number of Farms 920 842 774 684 624 512 -408 -44.3% Acres in Farms 107,102 111,109 95,542 91,254 92,057 88,470 -18,632 -17.4% Percent of County 44.4% 46.0% 39.6% 37.8% 38.1% 36.7% –– –– Average Farm Size (acres) 116 132 123 133 148 173 57 49.1% Source: Bureau of the Census, Census of Agriculture

The comprehensive plan recommended that the county’s agricultural zoning district be revised to eliminate incompatible uses and to reduce allowable residential development density. In June 1998, the agricultural district was revised to allow a base density of one unit per 15 acres, or, under a cluster option, a density of one unit per three acres if at least 50 percent of the entire parcel were preserved as open space. Prior to the amendment, residential development could occur at a density of two units per acre. In addition, incompatible commercial and industrial uses were eliminated from the agricultural district.

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The county recognized that another key to preserving farmland was to allow some flexibility in uses permitted in the agricultural areas in order to increase the farmer’s income potential. As a result, the county adopted a transfer of development rights (TDR) program, under which existing parcels of record meeting specified requirements were permitted to have three lots “by right”. In addition, the county initiated a local program to purchase development rights (PDR) from farmers that provided an alternative to the established statewide program. Both the TDR and PDR programs are discussed in more detail below.

The comprehensive plan also established priorities for areas where farmland preservation efforts should occur. The two target areas for farmland preservation are in the county’s east end and in an area west of the Metro Core between Sharptown and Quantico Creek (Map 5.1). The two areas were selected due to:

• Large tracts being farmed. • The lack of large-scale development. • Soils well-suited for agriculture. • Several properties participating in the county or state agricultural preservation program.

The county plan contains recommendations for local actions to preserve agricultural land and encourages local participation in state programs, as well.

Statewide, the Maryland General Assembly passed a resolution in 2002 that established a statewide goal of preserving 1,030,000 acres of productive farmland by 2022, roughly the amount of land necessary to “support a reasonable diversity of agricultural production” throughout the state, according to a Maryland Agricultural Land Preservation Foundation (MALPF) task force. As of 2002, approximately 343,000 acres of agricultural land (33 percent of the goal) had been permanently preserved in the state. Therefore, an additional 687,000 acres (67 percent of the goal) must be preserved in the next 20 years to meet the statewide goal. In other words, an additional 34,344 acres of productive farmland must be preserved annually through a variety of programs, including MALPF, GreenPrint, Rural Legacy, and local preservation programs. The state goals for agricultural land preservation are:

• Permanently preserve agricultural land capable of supporting a reasonable diversity of agricultural production. • Protect natural, forestry, and historic resources and the rural character of the landscape associated with Maryland’s farmland. • To the greatest degree possible, concentrate preserved land in large, relatively contiguous blocks to effectively support long-term protection of resources and resource-based industries. • Limit the intrusion of development and its impacts on rural resources and resource-based industries. • Preserve approximately 1,030,000 acres of productive agricultural land by 2022. • Ensure good return on public investment by concentrating state agricultural land preservation funds in areas where the investment is reasonable well supported by both local investment and land use management programs. • Work with local governments to:

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o Establish preservation areas, goals, and strategies through local comprehensive planning processes that address and complement state goals. o In each area designated for preservation, develop a shared understanding of goals and the strategy to achieve them among rural landowners, the public-at-large, and state and local government officials. o Protect the equity interests of rural landowners in preservation areas by ensuring sufficient public commitment and investment in preservation through easement acquisition and incentive programs. o Use local land use management authority effectively to protect public investment in preservation by managing development in rural preservation areas. o Establish effective measures to support profitable agriculture, including assistance in production, marketing, and the practice of stewardship, so that farming remains a desirable way of life for both the farmer and the public-at-large.

At the county level, agricultural land preservation activities in Wicomico are based on three critical elements:

• Public commitment to investment in land preservation, indicated by the local legislation and the availability of state and local funding to support the county’s agricultural district program. • Supportive local plans, zoning, regulations, and procedures, such as the Wicomico County Comprehensive Plan, the county zoning ordinance, and the agricultural preservation procedures. • Stakeholder support for the preservation strategy, indicated by the property owners willing to offer development rights for sale through the county’s easement program.

The Wicomico County Comprehensive Plan (3 Feb 1998) contains goals, objectives, and policies pertaining to many topics pertinent to county planning. The plan begins with two major goals that apply generally to the entire county:2

• “To promote high quality development in the County supporting it as a regional economic center, in a manner that best preserves and enhances the County’s existing character while protecting its natural resources and accommodating the diverse needs of existing and future residents.

• “To direct more dense growth into existing and pre-planned growth areas and less dense growth outside the Metro Core; so that, the public services and facilities necessary to meet existing and future growth can be provided and protect natural and agricultural areas are protected, consistent with the human and fiscal resources of the County.”

The plan also includes objectives for public actions necessary to accomplish the broad goals. One of the objectives is to “Promote the conservation of large portions of the County with existing natural resources, prime agricultural land and natural limitations on development”.3

2 Salisbury-Wicomico County Department of Planning, Zoning, and Community Development, Wicomico County Comprehensive Plan, 3 February 1998, p. 21 3 Ibid., p. 22

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Finally, the plan includes six policies that apply specifically to the areas targeted for agricultural preservation, termed “Agricultural/Resource Areas”:4

• “Support agriculture, forestry and related activities as a predominant use in these areas through land development regulations.

• “Afford agricultural and forestry uses maximum protection and freedom from nuisance complaints in zoning regulations and through ‘right to farm’ ordinances.

• “Give priority to public improvements directed toward agricultural, forestry and related uses.

• “Accommodate resource based and other industrial uses in accordance with strict performance standards.

• “Establish land development regulations which will accommodate residential developments in a manner which will least disrupt agricultural uses.

• “Cluster development is the preferred form of land subdivision to avoid land use conflicts and maintain or enhance rural character."

Goals, objectives, and policies of the Wicomico County agricultural preservation effort are compatible with state goals. Both sets of directives focus on preserving land, protecting resources, consolidating target areas, and minimizing the impacts of agricultural uses on residential uses and vice versa. The county guidance is necessarily more precise and deals with specific programs and tools. State goals are more general and frame the primary roles of the state as guidance and assistance.

Unlike the state goals, the county goals do not include a numerical target for preserved acreage. However, in subsequent applications to the state after the adoption of the county comprehensive plan, the county established the following two goals at the outset of the county agricultural district and easement purchase program:

• Preserve 1,000 acres of farmland within five (5) years (200 acres per year). • Preserve 3,000 acres of farmland within fifteen (15) years (200 acres per year).

The two goals above pertain only to the county’s local agricultural preservation program. Agricultural land in Wicomico County is preserved through other means, including the state program, the Rural Legacy Program and through the county’s land development regulations, all of which are discussed in more detail below. In addition, the following goal was identified in the county’s Rural Legacy application:

• Preserve 4,500 acres within 10 years (450 acres per year).

Based on the measurable and identified goals for the county’s local agricultural land preservation program and the Rural Legacy Program, Wicomico County is attempting to preserve 650 acres

4 Ibid., p. 30

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of farmland per year. Establishing a goal for the amount of land to be preserved through Wicomico County’s land development regulations (and more specifically, the cluster regulations for residential development in the agricultural zoning district) is more difficult, since the effectiveness of the regulations depends on the size and number of subdivision requests received and cannot be predicted.

The state does not divide the goal for the statewide farmland preservation program by county. However, using the state goal of preserving 34,344 acres annually (in order to preserve 1,030,000 acres statewide), and based on Wicomico County’s percentage of the state’s land area (3.9%), and assuming further that the county would preserve a similar proportion of land, then Wicomico County would meet a proportional share of the state goal if 1,350 acres were preserved annually within the county. Based on 1,350 acres per year, approximately 40,200 acres would be preserved in Wicomico County by 2022 (the state program horizon) through four programs/mechanisms:

• MALPF • Rural Legacy • Wicomico County’s PDR program • Wicomico County’s development regulations

Using a conservative estimate of $1,500 per acre, based on the cost of purchasing easements in the county through the local and state program over the last several years, preserving an average of 1,350 acres per year would cost an average of slightly more than $2.0 million per year. The land preservation goal for Wicomico County should be studied in more detail during the next update of the county’s comprehensive plan.

CURRENT IMPLEMENTATION PROGRAM

Wicomico County uses many tools to preserve agricultural land, as discussed above. Combined, the programs preserve land throughout the rural areas of the county (Map 5.1). The following section describes the various elements of the county’s agricultural land preservation effort.

Preservation Areas

The Wicomico County Zoning Code5 identifies most land outside of the county’s Metro Core (City of Salisbury and surrounding areas) as “Agriculture-Rural” (A-1), with the exception of areas immediately adjacent to towns, which are zoned for either “Village Conservation” or “Town Transitional”. The county comprehensive plan and supporting ordinances channel new development into the Metro Core and towns. Policies in the A-1 area/district support the creation of agricultural districts and the preservation of farmland through purchase of development rights. In evaluating applications for agricultural districts, the county gives preference to lands that are adjacent to a current district in an effort to create large areas of preserved farmland. The county

5 Wicomico County Code, chapter 225, 18 September 2004, available at http://www.wicomicocounty.org

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has identified the eastern and northern portions of the county as priority areas for farmland preservation (Map 5.1).

Easement Acquisition Mechanisms

Five preservation programs are currently used to acquire conservation easements in Wicomico County:

• Wicomico County agricultural preservation program – county program • Maryland Agricultural Land Preservation Foundation (MALPF) – state program • Maryland Environmental Trust (MET) – state • Maryland Historical Trust (MHT) – state • Rural Legacy – state

In addition, the Lower Shore Land Trust (LSLT) is a private, nonprofit organization dedicated to land preservation in the Lower Shore counties of Somerset, Wicomico, and Worcester. LSLT provides advice on land preservation techniques and helps interested landowners apply for conservation easements.

Wicomico County Agricultural Land Preservation Program

The Wicomico County agricultural land preservation program preserves farmland in two ways:

• Agricultural Districts – The county’s agricultural district program was established concurrent with the easement program in 1999. To participate in the district program, a farm must:

o Be at least fifty (50) acres in size. o Have at least 50% of the land in prime agricultural soils (Class I, II, and III) or woodlands (Group I and II). o Be located in the A-1 zoning district.

Property owners who place land in the district program receive a 50% credit toward the county portion of annual real estate taxes on the property for up to ten (10) years. Nine properties comprising almost 1,200 acres currently have “district” status under the county program. Three of the nine properties have proceeded to the second stage of the program (purchase of development rights, discussed below).

• Agricultural Easements – In 1999, Wicomico County adopted an easement purchase program to allow farmers to sell the development rights on farms established as agricultural districts, as described above. The program is an alternative for farmers who prefer to deal with local program administrators rather than state administration. County funds for the program come from the state agricultural transfer tax, which is collected when farmland is sold and converted to another land use. By having a state-certified local program, Wicomico County is able to retain 75% of the tax collected, instead of only 33% if the county did not have a local program.

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Interested farm owners submit an application to the county. Applications are ranked on seven factors:

o Soil capability o Size o Contiguity to other agricultural districts o Agricultural use o Consistency with the county comprehensive plan o Owner-operation o Rural Legacy designation

The first easements acquired under the county program were settled in 2004. The easements affected three properties and totaled 286.13 acres with a value of $434,200, or about $1,520 per acre. Although participation in the county program is entirely voluntary on the part of landowners, the county has adopted a goal of preserving an average of 200 acres per year. The cost of achieving the goal depends on many factors, including the criteria listed above, property location, and market forces, but a conservative estimate to achieve the goal is $300,000 annually, based on preserving 200 acres annually with an easement value of $1,500 per acre.

The county provided initial funding for the program through the sale of $400,000 in general obligation bonds in 1997. The initial funding has been exhausted and, with the adoption of the revenue cap in 2000, the sale of bonds will probably not be utilized for future funding.

Funding for the program is currently dependent on the amount of agricultural transfer tax received by the county. During the last four fiscal years (FY 2002-FY 2005)––the period that the county has had its own certified local program and is, therefore, entitled to a larger portion of the tax collected––the county has received an average of approximately $230,000 annually to be used for agricultural preservation efforts. Therefore, since the conservative estimate above cites $300,000 annually to meet the goal, the proceeds of the agricultural transfer tax are not likely to be sufficient to meet the goal of preserving 200 acres annually under the county program.

Maryland Agricultural Land Preservation Foundation

The Maryland Agricultural Land Preservation Foundation (MALPF) was established in 1978 to provide funds as an incentive to preserve private farmland. Individual farmers sell an easement to MALPF, restricting development of the property. The Governor and General Assembly allocate MALPF funds from the state transfer tax and agricultural transfer tax revenues. MALPF allocations are divided into two parts. The first part of the allocation consists of 50% of all available MALPF funds and is divided evenly among the 23 counties. The second part of the allocation consists of the remaining 50% of total available funds (i.e., funds not used in the first part) and is used to match county funds. State MALPF funds from the matching allocation can be used for up to 60% of total project cost, with a maximum of $1 million. Any funds unspent from the allocation procedures are used on a statewide basis according to the ratio of asking price to easement value.

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Applications are submitted to a county coordinator, who forwards the application and recommendations of the local advisory board to the state. Easement values are established by appraisal, and property owners are encouraged to voluntarily discount the easement value (i.e., accept a lower amount of compensation than the appraisal indicates) in return for potential tax benefits.

In Wicomico County, 66 properties totaling almost 9,300 acres are currently enrolled in the state program. Development rights have been purchased on 41 of the 66 properties encompassing almost 5,200 acres. The remaining 25 properties––approximately 4,100 acres––are still classified as “districts”, which qualifies the property owners to request that the state foundation purchase the development rights.

Maryland Rural Legacy Program

The State of Maryland established the Rural Legacy Program in 1997 to encourage local governments and private land trusts to identify specific Rural Legacy Areas and competitively apply for funds to complement existing land preservation efforts or to develop new ones. Easements or fee estate purchases are sought from willing landowners in order to protect areas vulnerable to sprawl development that can weaken an area’s natural resources, thereby reducing the economic value of farming, forestry, recreation, and tourism. Rural Legacy Areas help to preserve contiguous parcels, including forested and meadow areas, as well as farmlands. Funding for the Rural Legacy Program is allocated each year by the Maryland General Assembly.

One Rural Legacy Area (RLA) has been established in Wicomico County. The Quantico Creek Rural Legacy Area encompasses 13,637 (21.3 square miles) in the western part of the county, between the Nanticoke River and Salisbury (Map 5.1). The Quantico Creek area is known for its rural character, open lands, cultural significance, natural wildlife habitat, and water quality impact on the Nanticoke Watershed. Approximately 4,500 acres in the RLA are developed, and an additional 4,000 acres already have some form of protection. Wicomico County has identified the remaining 5,000 acres as “unprotected” and targeted for preservation efforts. Two easements (750 acres) were purchased in 2003 through the Rural Legacy Program at a cost of approximately $780,000. The county estimates the cost of reaching the 10-year goal (preserving 4,500 acres in the Quantico Creek RLA at $1,400 per acre) to be $6.3 million, or $630,000 annually.

Funding through the Rural Legacy Program is competitive, with applications accepted annually. To date, Wicomico County has received grants during three funding cycles for a total of $1,930,000. The Quantico Creek RLA was officially designated in 2000. At the current rate of funding, Wicomico County would not reach the goal of preserving 4,500 acres in the RLA for more than 20 years, assuming a conservative easement value of $1,400 per acre. As easement values increase, the time needed to meet the goal will also increase.

Maryland Environmental Trust

Land preservation efforts in Maryland began in the 1970s when the Maryland Environmental Trust (MET) was established. MET accepts conservation easement donations from property owners. Donations are strictly voluntary and are utilized by landowners to protect natural resources and preserve scenic open space. The landowner who gives an easement limits the right to develop and subdivide the land, now and in the future, but still remains the owner. Easements

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are binding on future owners. Therefore, an easement assures that the land will never be used in a way contrary to the current owner’s intent. Financial benefits in the form of tax deductions are also associated with easements. Easements often facilitate transferring land to family members without paying large estate taxes. MET may accept conservation easements on farmland as well as environmentally sensitive areas.

Funding for Easement Acquisition

Wicomico County dedicates the portion of the revenue received from the state agricultural transfer tax to the local agricultural preservation program. State certification of the county program entitles the county to receive 75% of the total amount of the tax collected in the county.. The amount of funding received depends on the number and size of agricultural properties in the county that are being sold and converted to a different land use. Based on the amount of tax collected over the last ten years, the county could expect to receive approximately $165,000 annually. However, the price and market for agricultural land has changed such that, in the last four years, the county has received an annual average of $230,000 in agricultural transfer taxes.

Additional revenue for easement acquisition comes from the state in the MALPF and Rural Legacy programs. MALPF funding for easement purchases is difficult to anticipate by county because the allocation and program is statewide. Funding for the Rural Legacy Program is also statewide and is obtained through a competitive process, with requests for funding submitted annually. To date, Wicomico County has received $1.93 million from the Rural Legacy Program to purchase easements.

Land Use Management Authority

Wicomico County uses a full complement of land use management tools for farmland preservation, including:

• The Wicomico County Comprehensive Plan establishes policies related to agricultural preservation.

• The Wicomico County Zoning Code includes regulations for the A-1 zoning district. Recent changes to the code (September 2004) added some home-based business uses that maintain the character of the district and expand opportunities to supplement farmers’ income. The code changes also deleted a number of uses in the A-1 district that were incompatible with agriculture, such as industrial and nonagricultural commercial uses.

• Clustering provisions, which are available in both the zoning code and the subdivision regulations, allow for higher density development if an established percentage of the tract remains in open space. Clustering is allowed in several zoning districts, but clustering in the A-1 zone requires the largest amount of open space: 50% of the tract. Within the A-1 zone, maximum density without clustering is 1 unit per 15 acres, while maximum density with clustering is 1 unit per 3 acres. Prior to 1998, when the code changes were enacted, residential development in the A-1 district could occur at a density of two units per acre. The open space portion of the site must be recorded on the plat/deed and, therefore, remain open in perpetuity.

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• The recent changes to the zoning code (September 2004) include provisions for transferring development rights (TDR)6. Rights can be sent from districts established under either the state or county preservation program to either a designated growth area (town, village, or Metro Core) at a rate of one dwelling unit per two (2) acres or to another parcel in the A-1 district at a rate of one dwelling unit per six (6) acres.

Farming Assistance Programs

For agriculture to remain a viable business in Wicomico County, land preservation efforts must be coupled with services, “state of the art” farming opportunities, and other mechanisms. The Maryland Cooperative Extension Service (MCES) provides services and programs in support of agricultural and horticultural activities in Wicomico. MCES offerings in support of crops, livestock, and nurseries include:7

• Small Farm Institute • Commodity Marketing • Maryland Forages Program • Nutrient Management for Maryland • Agricultural Nutrient Management Program

IMPLEMENTATION PROGRAM EVALUATION

According to Lewis R. Riley, Secretary for the Maryland Department of Agriculture and a Wicomico County native, having productive and profitable farms is the best method of agricultural land preservation. Therefore, a successful program should provide farmers with the opportunity to be both productive and profitable. The components of Wicomico County’s agricultural land preservation program provide landowners with options from which to choose the most appropriate means to retain land for agricultural uses while receiving a reasonable return. The following sections offer insights into the program strategy, funding, land use management tools, program performance, effects of potential development on land markets, and farming assistance.

Preservation Strategy

The preservation strategy in Wicomico County appropriately focuses on lands outside of the Metro Core, towns, and villages. The Metro Core was first delineated in the 1961 Plan for the Salisbury Region. The plan was updated in 1975 as The Comprehensive Plan for the Salisbury Metropolitan Core. The boundaries of the Metro Core have been revised several times, but the concept of the Metro Core as the focus of development in Wicomico County has not changed. As part of the land preservation strategy, Wicomico County has identified priority areas for farmland preservation (Map 5.1).

6 Wicomico County Zoning Code, Section 225-58, “Part III Transfer of Development Rights” 7 More information about MCES programs is available at: http://www.agnr.umd.edu/MCE.

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Funding

The major land preservation programs in use in Wicomico County (MALPF, county program, Rural Legacy, and MET) have preserved more than 7,649 acres at a total cost of more than $5.5 million (Table 5.4). Approximately 5,400 acres of agricultural land have been preserved through the state and county programs, representing 6.2% of the county’s total amount of agricultural land identified in the 2002 Census of Agriculture. Revenues from the state agricultural transfer

Table 5.4 Preserved Land by Program, 1987–2004

Purchased Easements MET Total MALPF Wicomico County Rural Legacy TOTALS Acres Preserved Acres Cost Acres Cost Acres Cost Acres Cost Cost/Acre (Donated) Acres 1987 394.13 $283,952 0.00 $0 0.00 $0 394.13 $283,952 $720 0.00 394.13 1988 306.54 $233,906 0.00 $0 0.00 $0 306.54 $233,906 $763 0.00 306.54 1989 159.99 $224,000 0.00 $0 0.00 $0 159.99 $224,000 $1,400 0.00 159.99 1990 0.00 $0 0.00 $0 0.00 $0 0.00 $0 $0 25.50 25.50 1991 455.31 $669,881 0.00 $0 0.00 $0 455.31 $669,881 $1,471 0.00 455.31 1992 0.00 $0 0.00 $0 0.00 $0 0.00 $0 $0 0.00 0.00 1993 0.00 $0 0.00 $0 0.00 $0 0.00 $0 $0 0.00 0.00 1994 754.78 $489,778 0.00 $0 0.00 $0 754.78 $489,778 $649 525.52 1,280.30 1995 359.22 $257,603 0.00 $0 0.00 $0 359.22 $257,603 $717 0.00 359.22 1996 214.79 $162,263 0.00 $0 0.00 $0 214.79 $162,263 $755 0.00 214.79 1997 330.60 $180,545 0.00 $0 0.00 $0 330.60 $180,545 $546 0.00 330.60 1998 225.41 $173,539 0.00 $0 0.00 $0 225.41 $173,539 $770 18.00 243.41 1999 119.06 $76,287 0.00 $0 0.00 $0 119.06 $76,287 $641 93.03 212.09 2000 415.40 $617,586 0.00 $0 0.00 $0 415.40 $617,586 $1,487 0.00 415.40 2001 241.84 $178,166 0.00 $0 0.00 $0 241.84 $178,166 $737 67.50 309.34 2002 603.98 $597,520 0.00 $0 0.00 $0 603.98 $597,520 $989 687.22 1,291.20 2003 431.50 $348,793 0.00 $0 750.5 $778,689 1,182.00 $1,127,482 $953 120.19 1,302.19 2004 143.85 $205,937 286.10 $434,200 0.00 $0 429.95 $640,137 $1,489 0.00 429.95 Totals 5,156.40 $4,699,756 286.10 $434,200 750.5 $778,689 6,193.00 $5,912,645 $955 1,536.96 7,729.96

Source: Salisbury-Wicomico Department of Planning, Zoning, and Community Development

tax provide the funds for the county program, which provides balance between conversion of farmland to residential uses and the preservation of farms. The county program also provides an opportunity for landowners to work with local officials to preserve land. The state transfer tax revenues that fund MALPF and the Rural Legacy Program are also intended as a dedicated revenue source for land preservation. However, state law permits transfer tax revenue to be diverted into the General Fund during the annual budget process. From FY 2002 through FY 2005, 60– 75% of preservation funds were diverted. The lead time needed for state acquisitions delayed the effect of the funding diversion, but the drop of $900,000 in MALPF easement purchases between 2003 and 2004 demonstrates the restriction on the program in the immediate future.

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Land Use Management Tools

The current land use management tools in Wicomico County are helpful in preserving agricultural land. Farming remains a viable land use within the A-1 zoning district, which encompasses much of the land outside of the Metro Core. The 2005 Wicomico County Land Preservation, Parks, and Recreation Plan makes the following observations about the county’s use of land use management tools for land preservation:

• Wicomico County has been aggressive in identifying lands targeted for preservation for agricultural and other purposes. (Map 5.1). The degree of protection depends on the program through which the land is protected and the specific method of protection.

• The county has been reasonably successful in focusing development in and around the Metro Core and the incorporated towns (Map 2.4).

• Wicomico County has made several changes in the zoning code that are intended to further encourage farmland preservation. The changes were made in September 2004, and initial experience indicates that the changes have helped curtail large-scale subdivision activity in the agricultural zoning district. Nevertheless, large tracts of land could still be developed in the future either under the county’s cluster provisions or by using the planned development district regulations with private “package” water and sewer treatment systems. The 2005 Wicomico County Land Preservation, Parks, and Recreation Plan recommends that the cluster provisions and the planned development district regulations be reevaluated during the update of the county comprehensive plan. In particular, the current policy of permitting private “package” water and sewer treatment systems in areas outside the Metro Core should be reconsidered, since the policy appears to be in opposition to the county policy of low density development and agricultural land preservation in rural areas.

• The federal, state, county, or local governments own significant amounts of land for many purposes, such as recreation (e.g., state parks, county parks) or natural resource conservation (e.g., state forests). Other land remains in private ownership (e.g., The Nature Conservancy, Lower Shore Land Trust) but carries specific restrictions (through such tools as conservation easements) to preserve the land for agriculture, historic, or other reasons.

• Wicomico County has targeted large areas east and northwest of the Metro Core for agricultural preservation. The state, through DNR, and the Nature Conservancy both own large tracts of land outside of the Metro Core. Easements have been placed on many parcels, which restrict or prohibit development. Furthermore, much of the county falls into Sensitive Species Project Review Areas (SSPRA), which identify general areas where plant and/or animal species are listed as threatened or endangered by either the federal or state government. Development proposed in SSPRAs must undergo a through review and possible revision to maintain the identify species.

• The extent of land targeted for preservation indicates the limited nature of land available for development. Much land is identified under more than one preservation category. While development has and may continue to occur in rural areas of the county, proposals in most

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of the county will undergo some degree of scrutiny that will help maintain the rural nature of Wicomico County. When the areas targeted for preservation are combined with the development limitations caused by natural features, Wicomico County actually has relatively little land for development outside of the Metro Core and towns.

Program Performance

The four major land preservation programs in use in Wicomico County (MALPF, county program, Rural Legacy, and MET) have preserved a total of more than 7,700 acres since 1987 (Table 5.1). Two of the programs, MALPF and the Wicomico County program, focus on agricultural preservation and have financed easements on 5,442.5 acres, representing 6.2% of the county’s total amount of agricultural land identified in the 2002 Census of Agriculture. The county agricultural easement program and the Rural Legacy program are the newest of the four programs, having closed on initial easements in 2004 and 2003, respectively.

As farmland has been lost to development in recent decades, the amount of preserved farmland is also on the increase (Figure 5.1). If recent preservation trends continue and funding is adequate, Wicomico County should be able to reach its goal of 3,000 acres of preserved farmland in the first 15 years of the county program. Reaching the Rural Legacy Program goal of 4,500 acres preserved will depend on the amount of state funding available, and the county’s ability to successfully compete with other jurisdictions for limited funding. Achieving the county’s goal of preserving 4,500 acres in the Rural Legacy Program within 10 years would conservatively require $630,000 in annual funding. The county has received an annual average of approximately $320,000 during six years of participating in the program.

Although not a “program” per se, land in Wicomico County is also being preserved through the county’s zoning regulations that require cluster developments in the agricultural district to be designed so that 50 percent of the total land area is preserved as open space. Since the regulations took effect in 1998, more than 700 acres have been preserved under the cluster provisions.

The numerical goals established by Wicomico County for land preservation efforts should be revisited when the county undertakes its comprehensive plan update. One guideline for consideration is the statewide goal established by MALPF, adjusted for Wicomico County as a proportion of the state’s land area, which would correspond to an ultimate goal of 40,200 acres of productive agricultural land preserved. Through 2004, the county has preserved almost 5,500 acres of productive agricultural land. The cost to preserve the additional 34,700 acres needed to reach the goal is more than $50 million.

Effects Of Potential Development On Land Markets

As noted above, the current zoning and development procedures in Wicomico County help to focus development in and around the Metro Core. The pressure for development outside of the

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Figure 5.1 Farmland Preserved vs. Agricultural Land Lost in Wicomico County

120,000

100,000

80,000 Total Farmland 60,000 Preserved Land Preservation Goal 40,000

20,000

8 1 3 6 8 7 8 87 90 9 9 02 05 0 9 9 9 0 0 1 19 1984 1 1 19 19 1999 2 2 20 2011 2014

Sources: Wicomico County Comprehensive Plan (1998) Salisbury-Wicomico Department of Planning, Zoning, and Community Development U. S. Census of Agriculture URDC

Metro Core will increase as developable land within the Metro Core becomes more and more scarce.

One of the results of increased development pressure is the rising price of land, not only for development, but for preservation, as well. The cost per easement acre fluctuates, depending on a variety of circumstances, including agricultural yield, availability of vacant land, and individual landowner circumstances. Since 2000, the cost of conservation easements through the MALPF program has ranged from $546 to $3,121 per acre. The analysis used in the 2005 Wicomico County Land Preservation, Parks, and Recreation Plan assumes an average cost of $1,500 per acre to achieve the county’s preservation goal. A higher cost will greatly reduce the county’s “buying power” and will reduce the amount of agricultural land that the county can preserve.

Farming Assistance

Several local sources of assistance support the county’s agricultural community with a variety of services, including the following:

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• The zoning code has been modified to increase the allowable ancillary uses on agricultural property, thus allowing farmers more opportunities to supplement farm income and maintain the farm during less profitable years. Future county comprehensive plan and zoning code revisions should be sensitive to the effects that “downzoning” has on the ability of farmers to use land equity to maintain farming operations.

• The Natural Resources Conservation Service is the arm of the United States Department of Agriculture that assists property owners in conserving soil, water, and other natural resources. The service provides technical assistance as well as cost-sharing and financial incentives. Most work is done with local partners, such as local conservation districts.

• The University of Maryland Cooperative Extension, an agency of the University of Maryland, provides educational and information resources from the university to the Maryland citizens. Information and programs are available in a broad range of topics, including crops, livestock, and nursery; 4H and Youth volunteers; lawn, garden, and home; family life and community; natural resources and water quality; and food, nutri- tion, and health.

• The Maryland Department of Agriculture is the agency of state government charged with providing leadership and support to agriculture and the citizens of Maryland by conducting regulatory, service, and educational activities that assure consumer confidence, protect the environment, and promote agriculture.

Summary

Wicomico County’s strategy for agricultural land preservation includes several components. The county recently enacted an easement acquisition program to offer landowners a local alternative to the state easement acquisition program. The strengths of the local program are speed and flexibility. Preservation actions can take place relatively quickly.

Public services are subject to a constant pressure to provide more services with fewer resources. The Wicomico agricultural preservation program is relatively new and must learn to compete with the development industry for the landowner’s interest. Easement value alone may not provide an adequate level of compensation for certain landowners compared to development value of the property. As the program gains experience and acceptance in the community, county staff should help local landowners make the decision to preserve land by illustrating the total value of preservation, including:

• Direct payment • Land resale • Tax deductions for reduced value donation • Future owner/family lots • Property tax credit • Peace of mind • Continued ownership and use

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NATURAL RESOURCE CONSERVATION

Land often should be preserved from development because of characteristics of the land itself. In some cases, development might be hazardous for inhabitants, as in the case of floodplains and steep slopes. In other cases, the municipal, county, state, or federal government makes a decision that certain land should be preserved because of location or established priorities regarding natural habitat, history, or other factors. The following chapter discusses programs designed to protect various natural resources in Wicomico County.

INTRODUCTION

Programs and regulations at the federal, state, and local levels help to conserve the natural resources of Wicomico County. Government agencies and private organizations, such as land trusts, own and maintain some lands to preserve important natural features. County, state, and federal regulations also restrict or prohibit development in areas where natural characteristics pose hazards to development.

The extent of current development and the threat posed to natural features and other land characteristics posed by future development was discussed in chapter 2. The discussion indicated that large-scale development in areas of sensitive natural features is unlikely. In fact, Wicomico County development policy, together with state and federal policy and with the help of land conservation organizations, has, for the most part, succeeded in directing development to corridors where essential public services can be provided to serve the development (Map 2.4).

Chapter 6 of the 2005 Wicomico County Land Preservation, Parks, and Recreation Plan will identify and compare the goals of various programs and evaluate the effectiveness of the natural resource conservation efforts in Wicomico County. The information in chapter 6 will provide the background for recommendations regarding natural resource conservation to be presented in chapter 7.

BACKGROUND AND GOALS

The following section presents:

• The state goals for natural resource conservation. • Elements of conservation policy in Wicomico County.

The State of Maryland, through the Departments of Natural Resources (DNR) and Planning (MDP), work with local governments and the private sector to:

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• Identify, protect, and restore lands and waterways in Maryland that support important natural resources and ecological functions, through combined use of the following techniques:

○ Public land acquisition and stewardship ○ Preservation/stewardship on private lands through easements and assistance o Local land use management plans and procedures that conserve natural resources and environmentally sensitive areas and minimize impacts to resource lands when development occurs.

• Focus conservation and restoration activities on priority areas within the statewide Green Infrastructure.

• Develop a more comprehensive inventory of natural resource lands and environmentally sensitive areas by synthesizing local inventories with DNR’s inventory of Green Infrastructure to assist state and local implementation programs.

• Assess the combined ability of state and local programs to:

○ Expand and connect forests, farmlands, and other natural lands as a network of contiguous Green Infrastructure. ○ Protect critical terrestrial and aquatic habitats, biological communities, and populations. ○ Manage watersheds in ways that protect, conserve, and restore stream corridors, riparian forest buffers, wetlands, floodplains, and aquifer recharge areas and their associated hydrologic and water quality functions. ○ Support a productive forestland base and forest resource industry, emphasizing economic viability of privately owned forestland.

• Establish measurable objectives for natural resource conservation and an integrated state/ local strategy to achieve the objectives through state and local implementation programs.

• Preserve the cultural and economic value of natural resource lands.

• Encourage private and public economic activities, such as ecotourism and natural resource-based outdoor recreation, to support long-term conservation objectives.

Just as with the agricultural preservation policies presented in chapter 5, natural resource conservation policy is rooted in the Wicomico County Comprehensive Plan (3 Feb 1998). The plan’s two broad goals address natural resource conservation, as well:1

1 Salisbury-Wicomico County Department of Planning, Zoning, and Community Development (P&Z), Wicomico County Comprehensive Plan, 3 February 1998, p. 21

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Several of the plan’s objectives also address natural resource conservation:2

• “Encourage greater recognition by all citizens that land is a finite resource and its wise use and effective conservation is essential for the survival of existing and future generations.

• Encourage continued growth of the County in a manner which preserves its significant natural features by requiring proper planning and design techniques for development, sensitive to environmental concerns.

• Promote the conservation of large portions of the County with existing natural resources, prime agricultural land and natural limitations on development.

• Protect sensitive environmental areas.

• Encourage stewardship of the Chesapeake Bay and the land.”

In addition, the plan includes the following policies that apply specifically to identified “Conser- vation Areas”—areas that include environmentally sensitive and natural areas needing protection from development:3

• “Direct more dense growth away from conservation areas and into manageable growth areas.

• Preserve areas adjacent to existing streams in order to protect conservation areas and the natural drainage system of the County.

• Preserve environmentally sensitive areas along the County’s waterways.

• Establish specific development policies for reviewing all development activities within conservation areas.

2 Ibid., pp. 21-22

3 Ibid., p. 31

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• Preserve natural drainageways and provide public access points for maintenance purposes.

• Cluster development is the preferred form of land subdivision to avoid land use conflicts and maintain or enhance rural character.”

The Wicomico County Comprehensive Plan includes an entire chapter of additional information and recommendations devoted to natural resources and sensitive areas protection. The plan identifies “sensitive areas” as wetlands (both tidal and nontidal), wildlife habitat, the Paleochannel,4 forests, stream corridors, and Critical Areas. County objectives to insure the protection of natural resources and sensitive areas are: 5

• Identify the wetlands and floodplains in order to provide the special protection they may need.

• Provide open space, scenic areas, and natural breaks in the landscape.

• Protect water quality and wildlife, and conserve natural features that make a significant contribution to the character of the County.

• Limit development in floodplains, on steep slopes, and in other sensitive natural areas.

• Protect water quality by reducing pollution and its effects.

• Conserve fish, wildlife and plant habitats.

• Establish protection measures for sensitive areas including streams and their buffers, 100-year floodplains, steep slopes adjacent to streams, and habitats of threatened and endangered species to reinforce existing regulatory protection programs.

• Conserve forest and woodland resources. Utilize and require tree conservation measures and replanting programs in compliance with the Maryland Forest Conservation Act.

• Exclude development from the 100-year floodplain.

• Develop local regulations which encourage the landscape to be preserved in its natural state by minimizing tree and soil removal.

4 The Paleochannel is a unique geologic asset in Wicomico and Dorchester Counties—an underground, 10- mile riverbed extending from eastern Dorchester County to U.S. 13 about two miles northeast of Salisbury. The Paleochannel is one of the most prolific sources of groundwater in the Atlantic Coastal Plain, estimated to store approximately seven billion gallons of water.

5 P&Z, op. cit., p. 54

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• Ensure that all new development and redevelopment minimizes pollutant loadings and runoff from sites through implementation of sediment, stormwater, and erosion control plans and practices.

• Encourage property owners to place environmentally sensitive lands under public and private conservation easements.

CURRENT IMPLEMENTATION PROGRAM

The following section describes the tools Wicomico County uses to preserve natural resources. The section includes information on:

• Comprehensive planning context. • Targeted conservation areas. • Easement acquisition. • Land use management authority. • Ecotourism and resource-based recreation.

Comprehensive Planning Context

The “Metro Core” of Wicomico County serves as the foundation of the county’s Priority Fund- ing Area under the Maryland State Smart Growth program. Residential development patterns indicate that county plans and land preservation programs have been somewhat successful at consolidating residential development in and around the Metro Core. Nevertheless, some significant development concentrations have begun to push the Metro Core outward to the west and to the southeast (Map 2.4).

Preserved Land and Green Infrastructure

Wicomico County policies target the area outside the Metro Core for land preservation efforts (Map 4.1).6 Natural resources inside the development envelope are also preservation targets, particularly waterfront areas, streams, and nontidal wetlands.

Much land in Wicomico County is already “preserved” (Map 6.1) either by use or through easements or public ownership, including:

6 In addition to land inside the Metro Core, the county designates several other areas as Priority Funding Areas: the five incorporated towns outside the Metro Core (Hebron, Mardela Springs, Pittsville, Sharptown, and Willards), the Salisbury-Wicomico Airport, and several unincorporated village areas throughout the county, including Allen, Bivalve, Nanticoke, Quantico, Parsonsburg, Powellville, Tyaskin, and Whitehaven.

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• Land where development is prohibited or severely restricted by regulation, such as wetlands or Chesapeake Bay Critical Areas.

• Natural areas, which have been identified as the location of a plant or animal species or geologic formation worth of preservation.

Preserved lands in Wicomico County also play a role in the “Green Infrastructure” system. Green Infrastructure, identified by the Maryland Department of Natural Resources (DNR), includes the forests, wetlands, and other natural lands throughout the state that provide many services to the ecosystem, such as cleaning the air, filtering and cooling water, storing and cycling nutrients, conserving and generating soils, pollinating crops and other plants, regulating climate, sequestering carbon, protecting areas against storm and flood damage, and maintaining aquifers and streams. Green Infrastructure also:

• Provides marketable goods and services, like forest products, fish, wildlife, and recreation.

• Offers vital habitat for resident and migratory species.

• Maintains a vast genetic library.

• Provides scenery.

The Green Infrastructure system is composed of hubs (large expanses of natural land vital to the state’s unique ecology) and links (linear pieces of environmentally sensitive land that connect hubs). DNR and other state agencies encourage county and municipal governments to work with the state to help preserve the state’s Green Infrastructure.

The Green Infrastructure system in Wicomico County includes 26 hubs, as identified by DNR (Map 6.2, Table 6.1). Hubs with a “composite ecological percentile” below 10––which indicates greater ecological sensitivity––are 505, 485, 599, 575, 467, 579, 586, and 562. All eight of the most sensitive hubs stretch across county borders into neighboring counties. The most sensitive of the hubs that are entirely within Wicomico County are 564, 539, 514, and 577.

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Table 6.1 Green Infrastructure Hub Characteristics

Acres of… Number of… Wetlands Late- Miles of Composite Natural of Special Successional Highly Streams Different Ecological 1 Total Unprotected Heritage State Upland Vegetation Interior Erodible Rare Species in Interior Wetland Hub Percentile Land Land Areas Concern Forest Wetlands Alliances Forest Soils Occurrences Forest Types 2 467 3 4 14,581 13,225 667 894 7,849 3,205 4,625 5,056 0 18 4.5 19 485 3 2 18,490 14,110 4,547 4,374 5,915 6,505 5,513 5,120 0 40 15.8 39 505 3 0 194,650 126,982 9,682 11,549 31,758 112,795 91,072 36,687 0 123 14.2 136 509 45 607 473 2 50 221 121 126 32 0 17 0.3 5 514 20 1,903 1,532 0 25 1,351 293 513 414 0 13 0.8 6 527 4 12 8,596 7,917 0 497 2,031 5,361 3,067 4,929 0 10 3.3 9 531 98 250 250 0 0 143 14 29 30 0 0 0.2 2 532 86 215 215 0 0 167 1 47 66 0 0 0.4 1 533 32 1,107 1,093 0 66 601 202 405 274 0 3 2.5 6 539 15 6,000 5,392 0 13 2,011 495 759 3,075 0 7 4.9 11 542 100 164 164 0 0 114 0 26 19 0 0 0.1 1 543 35 1,418 1,219 0 52 1,012 125 349 510 0 2 3.3 3 553 30 4,407 3,716 0 0 2,873 963 1,197 2,188 0 0 6.6 15 560 38 532 265 0 0 406 87 226 285 0 2 0.9 6 562 4 9 9,166 8,530 0 180 4,158 4,035 3,881 5,348 0 7 9.5 10 564 13 7,354 4,013 0 8 4,775 1,275 2,193 1,889 0 28 5.9 19 575 5 3 31,098 23,057 0 348 11,518 12,021 12,178 7,636 0 20 1.5 44 577 22 6,928 4,309 0 0 3,940 1,934 2,257 2,701 0 3 0.5 11 579 4 5 27,710 21,732 0 1,573 18,175 5,869 10,741 12,954 0 150 18.2 31 586 4 7 15,310 13,882 0 274 7,675 4,674 5,113 8,161 0 14 10.9 18 587 93 242 242 0 0 153 29 35 48 0 0 0.7 2 590 91 207 207 0 0 159 15 45 37 0 0 0.5 2 596 49 603 528 0 0 567 13 101 340 0 3 0.1 2 597 75 176 163 0 0 22 110 105 0 0 0 0.0 4 599 6 2 75,528 53,128 3,205 4,031 39,172 23,365 18,444 34,442 0 116 63.0 49

1 0 = most sensitive, 100 = least sensitive 2 as identified in the National Wetlands Inventory (NWI) 3 lies in Wicomico and Dorchester Counties 4 lies in Wicomico and Worcester Counties 5 lies in Wicomico and Somerset Counties 6 lies in Wicomico, Worcester, and Somerset Counties

Source: Maryland Department of Natural Resources, Chesapeake and Coastal Watershed Service, Watershed Management and Analysis Division, Green Infrastructure Assessment Hub Statistics, April 2002

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Easement Acquisition

Wicomico County works closely with the Lower Shore Land Trust (LSLT), the Maryland Envi- ronmental Trust (MET), and other organizations that acquire easements on land for natural resource conservation. The county itself provides no funding to acquire easements for natural resource conservation. Conservation tax credits up to $500 per year are available to property owners who donate a conservation easement to a qualified conservation organization, such as MET or a land trust with a cooperative agreement with MET.

Land Use Management Authority

Policies and regulations protecting natural resources are found in several documents, all available through the Salisbury-Wicomico County Department of Planning, Zoning, and Community Development:

• Wicomico County Comprehensive Plan (1998) • Wicomico County Zoning Code (2004) – also available at: http://www.wicomicocounty.org • Wicomico County Critical Area Program and Ordinance (1989) • Wicomico County Critical Area Implementation Ordinance (1989) • Salisbury Critical Area Program and Ordinance (1990) • Salisbury Critical Area Implementation Ordinance (1991) • Chesapeake Bay Critical Area Resource Protection—chapter 125 of Wicomico County Code • Forest Conservation—chapter 126 of Wicomico County Code

The county’s primary regulatory tool for natural resource conservation is the Wicomico County Zoning Code. Specific sections helping to preserve natural resources include:

• Section 225-45, Paleochannel Overlay District, provides additional regulations to preserve the water quality and quantity in the Paleochannel.

• Section 225-52, A1 Cluster Development, regulates cluster development and the resulting open space within the A1 Agriculture-Rural district.

• Section 225-58, Transfer of Development Rights (TDR), regulates the TDR program, which helps to preserve land in the A1 district. The comprehensive changes to the Wicomico County Zoning Code adopted in September 2004 included changes to the TDR program to make the program more attractive to farmers. Under the new provisions, a “sending area” must be a parcel located in a Wicomico County Agricultural Land Preservation District or a Maryland Land Preservation District, and for which no easement has been sold. Rights can be sent from districts established under either the state or county preservation program to either a designated growth area (town, village, or Metro Core) at a rate of one dwelling unit per two (2) acres or to another parcel in the A- 1 district at a rate of one dwelling unit per six (6) acres.

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• Article IX, Part II provides standards for environmentally sensitive areas. The part includes three sections:

o Section 225-147, Stream Buffers and Floodplains o Section 225-148, Non-tidal wetland Buffers o Section 225-149, Steep Slopes

Other regulatory tools for natural resource conservation in Wicomico County are:

• Critical Area Implementation Ordinance – chapter 125 of the Wicomico County Code • Forest Conservation Act – chapter 126 of the Wicomico County Code

IMPLEMENTATION PROGRAM EVALUATION

Natural resource conservation efforts are more difficult to quantify than the agricultural land preservation program discussed in the previous chapter. Although easement acquisition is one mea- sure of resource conservation, many program elements involve regulations that control or prohibit development on land which remains in private ownership. Sometimes, success is determined not by what occurs, but what does not occur. Nevertheless, the following section presents information that can be used to generally assess the effectiveness of the county program.

Partnerships – The Critical Element of Resource Conservation

Wicomico County is fortunate to have several, strong partners, in addition to the state and federal governments, in its efforts to conserve natural resources. In addition to state and county professional staff, strong partners in the county’s natural resource conservation efforts include:

• Lower Shore Land Trust (http://www.co.worcester.md.us/LowerShoreLandTrust.htm) • Nanticoke Watershed Alliance (http://www.nanticokeriver.org) • Nanticoke Watershed Preservation Group, Inc. • Wicomico Environmental Trust • Nanticoke River Watershed Conservancy • Friends of the Nanticoke River • Salisbury University

Other Resource Conservation Program Elements

The following section provides additional information on other elements of Wicomico County’s natural resource conservation efforts.

• Geographic Information System (GIS) – Wicomico County maintains an up-to-date GIS system that provides information on steep slopes, Critical Areas, floodplains, streams,

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soils, forests, easements, Sensitive Species Project Review Areas (SSPRAs), and other relevant information.

• Goals/Actions – The goals for resource conservation, earlier in chapter 6, are necessarily broad. Both the land use element plan and natural resources element plan provide more specific, and, where possible, measurable actions to support each goal.

• Green Infrastructure Network – Wicomico County’s land preservation policies, illustrated by the pattern of preserved land in the county, do an excellent job of supporting the state’s Green Infrastructure concept (Map 6.3). The vast majority of preserved lands occur within the identified hubs of the Green Infrastructure network. Furthermore, many of the linear preserved lands, such as rail and transmission line corridors, serve as linkages between hubs.

• Resource Management Programs – Wicomico County uses resource management programs in several areas, such as stormwater management and sediment/erosion control. The programs effectively protect water quality and other important natural resources during the development process.

• Cultural/Historic Resources – Natural resources play an important role in the culture and history of Wicomico County. Historical resources are included in the county GIS and considered during development review. The Lower Eastern Shore Heritage Area has been formally designated as a Maryland Gateway, and the Lower Eastern Shore Heritage Committee, Inc. (LESHC), the organization administering the heritage area, is eligible for funding historical preservation and interpretive programs. Wicomico County resources such as the Ward Museum, Chipman Center, and Pemberton Historical Park, use funding from agencies such as LESCH to help to “tell the story” of the county’s history and heritage.

• Funding Partnerships – Wicomico County works with many partners to provide funding for natural resource conservation. Nonprofit organizations, such as the Chesapeake Bay Foundation and The Nature Conservancy, and state programs, such as Rural Legacy, offer funding through matching grants and other means to help the county preserve vital natural resources.

Potential Improvements

Wicomico County is currently writing regulations for the recently approved the Timber Resource Easement and Exchange (TREE) program, which is designed to replace trees lost to development in the county. In addition, the 2005 Wicomico County Land Preservation, Parks, and Recreation Plan recognizes the need for a continued planning focus on agricultural preservation and natural resource conservation by recommending that the Salisbury-Wicomico Department of Planning, Zoning, and Community Development update the land use element of the county comprehensive plan.

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LAND PRESERVATION, PARKS, AND RECREATION PLAN

The 2005 Wicomico County Land Preservation, Parks, and Recreation Plan illustrates the strong link between 1) the public need for parkland and other sites for leisure activity and 2) the importance of preserving significant areas of land from development, specifically farmland and natural resources. The final chapter of the plan provides the guidance, in the form of both policy recommendations and capital improvements, to pursue the goals of increased land preservation and an enhanced recreation system in Wicomico County.

PLAN ORGANIZATION

The 2005 Wicomico County Land Preservation and Recreation Plan contains recommendations that affect county policy as well as recommendations for specific capital improvements. The plan is organized as follows:

• The County Perspective includes the plan map and a discussion of how the land preservation, parks, and recreation elements combine to form a tool to further the goals of land preservation and recreation services in Wicomico County.

• Policy/Program Recommendations pertain to all three areas of the plan: parks/recreation, agricultural preservation, and natural resources conservation. Policy/program recommendations are actions that do not involve major capital expenses and do not pertain to a specific planning area.

• Capital Recommendations and Planning Areas involve capital expenses for parkland or open space acquisition and/or development at a specific site or within a specific planning area. The capital recommendations section is presented by planning area, including a more focused discussion and plan map for each planning area.

COUNTY PERSPECTIVE

The 2005 Wicomico County Land Preservation, Parks, and Recreation Plan (Map 7.1) illustrates the effects of recent land preservation and recreation efforts in Wicomico County and provides guidance for future initiatives.1 Recreation, agricultural heritage, and natural resource conservation all share the common characteristic of preserving land from development. Specific discussion of the plan in each planning area is found in the Capital Recommendations section.

1 Map 7.1 illustrates the plan elements for the entire county. Portions of the plan map, each at a larger and more readable scale than Map 7.1, are included in the discussion of each planning area later in the report.

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The Green Infrastructure system discussed in chapter 6 helps identify land for potential preservation in Wicomico County. In addition to Green Infrastructure, the system of bikeways in Wicomico also identifies areas where land should be preserved. The plan map (Map 7.1) illustrates bike routes that are promoted through the department’s tourism office. Previous land preservation plans chronicled department efforts to create a bikeway system throughout the county. Bikeways identified as “potential” linkages on the plan map were identified in previous plans but have not yet been formally recognized or promoted.

POLICY/PROGRAM RECOMMENDATIONS

Policy/program recommendations of the 2005 Wicomico County Land Preservation, Parks, and Recreation Plan relate to all three elements of the plan:

• Recreation and Parks • Agricultural Preservation • Natural Resource Conservation

Recreation and Parks

RP-1 Continue to strengthen recreation council relationships to support programs and park operations.

Recreation councils are a significant contributor to leisure services in Wicomico County. Since the advent of the revenue cap, which reduces local tax support for recreation operations, the support and resources of recreation councils has become much more important in meeting the needs of Wicomico residents, particularly at-risk populations. The county should continue to reach out to recreation councils, supporting and encouraging efforts to help meet leisure needs.

RP-2 Continue to review the county fee structure for possible modifications to increase participation.

The revenue cap imposed by Wicomico County voters has forced the county to significantly increase some program fees, resulting in lower participation because some residents can no longer afford the program fees. The recreation staff should continue to monitor the fee structure for all programs in an attempt to use lower fees to gain participation.

RP-3 Continue to establish and maintain park restoration funds to address capital rehabilitation issues.

One of the key themes of the 2005 Wicomico County Land Preservation, Parks, and Recreation Plan is the rehabilitation of older parks. The parks developed in response to significant population growth from the mid-1980s through the 1990s are nearing the end of the expected life cycle, and rehabilitation is a key factor in keeping older parks safe and useful. The revenue cap has severely curtailed county tax support of capital improvements for recreation and parks. The

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department should continue to look for opportunities to obtain additional park restoration funding, particularly for future restoration projects at Nanticoke and Cedar Hill Harbors.

RP-4 Consider establishing a small addition to the real estate tax to fund park and open space initiatives.

Since new development increases the demand for parks and recreation services, property transactions are a logical source for generating funds for new parks and open space. Wicomico County currently has no local source of revenue from real estate transactions dedicated to parks, recreation, and open space. The county should consider establishing a local source of funding for parks, recreation, and open space. Options include a real estate transfer tax, recordation tax, or impact fee, among others.

RP-5 Continue to use enterprise funding wherever possible for new recreation programs and recreation facility maintenance.

The concept of “enterprise” funding essentially means that users of a specific facility or program pay as much of the cost for the facility/program as possible. The 2004 department budget included an enterprise budget of almost one million dollars (Table 3.10). Enterprise funding assures that users pay directly for the benefit of a specific facility/service. The county should continue the use of enterprise funding wherever possible and appropriate.

Harbor facilities are major expense items for communities on the water. Annual rental fees should be set to cover operating expenses. However, public funding should not shoulder the entire capital cost of harbor facilities. In addition to slip rental fees, Wicomico County should establish a harbor restoration fee, to be assessed on all harbor users, designed to cover major capital expenses.

RP-7 Continue to bring visitors and dollars into the county by leveraging the county’s outstanding recreation and parks system.

Wicomico County has recognized the potential for linking tourism to recreation and parks by combining the functions in the same department. The county should continue to develop the linkage by promoting parks and recreation facilities as regional attractions whenever possible. Examples of specific potential actions include:

• Scenic bike routes should be expanded and promoted through department websites (www.wicomicorecandparks.org and www.wicomicotourism.org).

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• Market the county as a one-day or weekend destination. Highlight specific county attractions, in essence “sharing” local resources with tourists, including:

o Scenic bike routes o Outstanding fishing and boating opportunities o Natural and heritage areas o Abundant flat land, particularly for low-impact outdoor fitness programs which appeal to the senior population o Regional signature special events, such as Pork in the Park and the Wine Festival.

• Expand the scope of tourism marketing to promote Wicomico County as a base for visitors to the entire Lower Eastern Shore region. Wicomico County is the hub of activity for the Lower Eastern Shore. Centrally located, the county can serve as a base from which visitors can enjoy the attractions of Wicomico, Worcester, and Somerset Counties, including the beach at Ocean City, fishing in the Chesapeake, and the historic and cultural attractions of all three counties. Wicomico should continue to work with neighboring counties for mutual promotion and benefit.

• Establish training programs for visitor counselors to increase knowledge of tourist attractions and develop skills in public contact. As part of the growth and maturation of tourism in Wicomico County, visitor counselors must be well trained to provide a profess- sional level of service. Visitor counselors are often volunteers who only work several hours in a week. Nevertheless, the counselors are often a visitor’s first contact in the county and have the opportunity to create a strong first impression of the county, either positive or negative. Knowledgeable, courteous staff can have a strong influence on the quality of visitor experience, and the resources needed to provide and train staff is usually well worth the effort in tourism dollars.

• Help to establish and promote the proposed Blue Crab Scenic Byway. The crab industry is one of the biggest heritage stories in the entire Chesapeake Bay region. The proposed scenic byway will help to strengthen the industry by providing a large tourist market to whom the story can be told.

RP-8 Explore the establishment of a county festival site.

Wicomico County should explore the possibility of establishing a site with the infrastructure to support major festivals. Some festivals are already held at Pemberton Historical Park, and the county is planning to develop a multiservice senior/community center. However, no place in the county currently has the water, sewer, and access to support large festivals on a regular basis. With improvements, Pemberton or Winterplace might be a reasonable site. The county is also preparing a master plan for the site of the proposed Pirates Wharf site.

RP-9 Work with DNR and local equestrian groups to develop equestrian trails in the Chesapeake Forest.

The Maryland Department of Natural Resources (DNR) owns many, forested parcels scattered throughout Wicomico County that are part of the Chesapeake Forest. As part of the county

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emphasis on linear corridors and trails, the state forest lands provide opportunities for connections within the county trail network, particularly for equestrian trails. The county and DNR should work together to create equestrian and other linkages through the Chesapeake Forest as appropriate.

RP-10 Consider public/private partnerships, including corporate sponsorships and facility naming rights, to help fund county recreation activities.

The Wicomico County Department of Recreation, Parks, and Tourism already has a strong program of partnerships with recreation councils, nonprofits, and other organizations. Some public recreation programs generate significant funding by selling the naming rights for major facilities or sponsorships for major events to private, commercial enterprises. The department should consider the financial implications of partnerships with for-profit companies as a method of generating additional finances.

RP-11 Work with the Board of Education to reduce the fees paid by the county for public recreational use of school facilities.

The Board of Education and the Wicomico County Department of Recreation, Parks, and Tourism serve the same market: the citizens of Wicomico County. Both organizations provide programs to benefit the general public: public education and public recreation. The constituency of both organizations—the Wicomico County general public—will benefit from programs offered by either organization. The two agencies should work together to eliminate, or at least minimize, the cost of public recreation programs held at school sites.

The financial context of public recreation in Wicomico County changed with the passage of the revenue cap. The average resident often reacts negatively to rising tax bills but does not understand the concept of taxes paying for services. Less tax revenue inevitably must result in fewer services. In an effort to explain the effect of reduced finances on public recreation, the department should develop a program to illustrate the link between tax revenue and recreation services. The program, with department personnel as presenters, could be offered to civic organizations, parent-teacher organizations, and other groups interested in public recreation in Wicomico County.

RP-13 Require developers to provide and improve land to establish neighborhood greens in new developments.

New residences attract new residents, which increase the need for leisure services. The county cannot be expected to meet every basic leisure need, particularly with the revenue cap. Residential developers should be required to help meet the need for local neighborhood-based recreation in growing areas by providing and improving land to establish “neighborhood greens”: small areas for informal recreation, such as picnicking and pick-up soccer or baseball games. The

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following guidelines, taken from the 1994 land preservation and recreation plan, should apply to developing and maintaining neighborhood greens:

• Every new residential development should be required to dedicate a minimum of 500 square feet of usable land (excluding floodplain, wetlands, and other unusable land) for each new housing unit.

• In developments of small numbers of homes or in other circumstances where a neighborhood green would not be worthwhile, county council should be able to require a fee in lieu of land, recommended to be $200 per building lot. Any fees collected would be used for recreation purposes in the same general area of the county as the development.

• When two or more residential developments are proposed in proximity, the possibility of developing connected greens should be explored.

• Maintenance of the neighborhood green should be the responsibility of either the developer (before 50 percent of all lots are sold, developed, and occupied) or a homeowners association (after 50 percent of all lots are sold, developed, and occupied). The county should not be responsible for ongoing maintenance of neighborhood greens.

• The neighborhood green should meet minimum standards for grading, seeding, trees, and usable area (size). The county should inspect and approve the land as meeting the minimum standards before being transferred from the developer to the homeowners association.

RP-14 Continue to evaluate older playgrounds to ensure compliance with the U. S. Consumer Product Safety Commission (CPSC) guidelines.

Playground safety is paramount for any recreation and park system. Wicomico County has always assessed playground equipment against CPSC guidelines. With the aging of county facilities and the rehabilitation theme of the 2005 plan, playground safety issues become even more important as the county works to make the best, continued use of many current facilities.

RP-15 Continue to enhance the comprehensive parks maintenance management program to ensure safe and attractive parks and to replace older equipment and vehicles.

Maintenance is the single most important practice in prolonging the life of parks and recreation facilities. Wicomico County has adopted a comprehensive maintenance management program that is a major reason the county system has become a showcase for small counties nationwide. The department should continue to enhance maintenance management practices, incorporating past experience and adapting practices to the needs of individual parks and facilities.

Replacement of vehicles and equipment based on life-cycle is a crucial element of the program. The revenue cap has severely restricted county tax support of capital improvements, particularly vehicle and equipment replacement. Deferred replacement and maintenance practices inevitably leads to increased cost or decreased quality. The county should restore capital support of

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recreation and parks as soon as possible to avoid deterioration of its outstanding recreation and parks system.

RP-16 Establish an endowment to support scholarships and programs for the county’s at-risk populations.

One method of continuing to reach the county’s at-risk populations, such as low-income youth and seniors, in the face of fiscal austerity is to provide scholarships and targeted programs funded through endowments—money set aside to draw interest and dividends, which are then used for a specific purpose. The department should encourage private donations large enough to establish endowments which generate enough capital to provide scholarships that pay for existing programs or establish new programs for at-risk residents.

RP-17 Continue providing land to support bike lanes in new developments.

The Salisbury-Wicomico Department of Planning, Zoning, and Community Development has been requiring developers to provide land for bike lanes within new developments. The county should continue the practice in support of the comprehensive countywide bikeway system.

The opportunity for trail linkages offered by the Chesapeake State Forest was noted in recommendation RP-7. State lands can also provide access to waterways, links for public trails, and opportunities for other recreational activities, both active (e.g., hiking and biking)) and passive (e.g., birding, photography).

RP-19 Consider developing recreation programs which address the leisure needs of the county=s continually diversifying population.

Wicomico County has a relatively diverse population. Minorities and seniors represent growing segments of the population with unique leisure service needs. The department should consider creative ways to meet the leisure service needs of various population segments with minimal increases in department costs.

RP-20 Develop trail guides and features that explore and enhance the natural and historic features of Wicomico County.

Wicomico County has many natural and historic features that can be a significant part of the visitor experience or the recreation activities of residents and workers. Trails over both land and water should connect interesting sites to each other and to major population and activity centers in the county.

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Agricultural Preservation

A-1 Consider modifying open space requirements to obtain parcels large enough to make farming a viable use of the undeveloped land.

Wicomico County considers farming to be a legitimate use of selected open space, but some open space obtained through the county development programs is too small to be farmed eco- nomically. The county should review current open space requirements and attempt to obtain or assemble larger open parcels on which farming would be a viable alternative use. The county should require a minimum size of land dedication, such as 30 acres, in areas targeted for agricultural preservation.

A-2 Expedite the review process for participating in the county agricultural preservation program to encourage participation in the program.

The review process for the Wicomico County agricultural preservation program can be long and tedious, to the point where some potential participants have questioned the process. Wicomico County should do everything possible—including the most expeditious review process possible—to encourage participation in the county agricultural preservation program. The county should consider performing more tasks in the review and designation process, to obtain more control of timing, instead of relying on third parties to perform all tasks.

A-3 Develop an educational process for elected officials, real estate professionals, and residents to explain the benefits of a transfer of development rights (TDR) program.

County planning staff reports that the benefit of participating in the TDR program is often questioned, particularly when land is located in a receiving area. The county should develop educational materials and presentations that clearly explain the benefits of the TDR program for all property owners—those in both the sending and receiving areas. Real estate professionals, who have the means and expertise to effectively promote the TDR concept to willing buyers and sellers, should be targeted for the educational program.

A-4 Reduce the minimum acreage requirement for participation in the county easement program from 50 acres to 30-40 contiguous acres.

The requirement of a minimum 50 acres has excluded several willing property owners from participation in the county agricultural easement program. The county has a goal of encouraging participation in the program, and smaller farms adjacent to current agricultural preservation districts would help the county’s goal of assembling larger areas of land that is at least temporarily preserved. If desired, the county could make larger parcels a higher priority for easement purchase.

A-5 Expand the role of the county agricultural review board.

The Wicomico County Agricultural Land Preservation District Advisory Board currently reviews applications for creating agricultural preservation districts. The board is composed of knowledgeable, well-respected members of the community, and the board should be put to better use.

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The county should expand the duties of the board to, for instance, review procedures and establish priorities for expenses under the new forest conservation (TREE) program. The board should also be an advocate for agricultural preservation, seeking input from and involving the entire agricultural preservation community.

A-6 Develop alternative methods of compensation for easements to meet a variety of financial needs of farm families.

The financial tools used and timing for disbursement of funds can have a significant effect on the attractiveness of preservation as an alternative to selling farmland for development. Each landowner has a unique set of financial circumstances and goals. A land preservation deal includes many other benefits than simply a single check at closing (Table 7.1). Wicomico County should offer advice and assistance to landowners to help promote land preservation as a financially viable alternative to development.

A-7 Update the land use element of the county comprehensive plan to reassess the most suitable areas for growth in the county by considering all elements of the landscape.

Table 7.1 Comparison of Land Preservation Value and Development Value

Preservation Value Development Value • Direct payment • Direct payment (minus taxes) • Tax-free interest payments • Tax donation deductions • Property tax credit VS. • Ownership use • Resale value • Family lots • Peace of mind

growth areas considering heritage/historical resources, natural resources, habitats, agricultural uses/soils, and other landscape elements.

A-8 Reassess the impact of the county’s land development regulations on agricultural land preservation and make changes where appropriate.

The most recent modifications of the county land development regulations regarding the agricultural district were adopted in 1998. The upcoming review and update of the county comprehensive plan (recommended above) should include an assessment of the impact that the current cluster residential development regulations have on agricultural land preservation, especially with respect to the allowable density bonus and the type of land being preserved as the required 50

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percent set-aside. Another issue for review is private “package” water and sewer plants in the agricultural district, which can greatly increase residential densities under the planned development district provision and can work against the county’s expressed goal of preserving rural areas for agriculture and related uses. Package systems should be prohibited in areas targeted by the county for preservation. In addition, the county should carefully and thoroughly review any proposed density decreases considered for the agricultural district. Any downzoning can have a significant impact on the agricultural community by limiting a farmer’s ability to borrow against land, since “land equity” is often used to purchase supplies and equipment and supply a financial cushion during an economic downturn.

A-9 Establish numerical goals for preserved open space and preserved agricultural land by specific program for an identifiable time period.

Wicomico County adopted goals for the local agricultural preservation program in 1999 and for the Rural Legacy program in 2000. The update of the comprehensive plan should include:

• Status of both the local agricultural preservation program and the Rural Legacy program against the established goals.

• An overall goal for productive agricultural land preservation that includes other means of land preservation, such as MALPF, MET, and land preserved through the county’s land development regulations.

• Proposed funding sources to achieve land preservation goals.

Natural Resource Conservation

N-1 Support the initiatives of various environmental groups to preserve open space and improve the quality of the Chesapeake Bay tributaries.

Many environmental groups work hard in Wicomico County to help preserve open space and improve the Chesapeake Bay and its tributaries. For instance, the Nature Conservancy has three focuses for preservation in the Lower Eastern Shore: large forest landscapes, the Nassawango Creek, and the Nanticoke River. The county’s recently approved changes to local forest conservation legislation (TREE program) will help preserve large forest landscapes. The focus along the Nassawango should be large tracts in headwaters of the creek to sustain the waterway against floods and hurricanes. The focus along the Nanticoke should be smaller tracts of adjacent marshes and uplands to preserve wildlife habitat.

The county should support and encourage all groups working to preserve land in Wicomico County, such as:

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• Chesapeake Bay Foundation • Nanticoke Watershed Alliance • Friends of the Nanticoke River (http://www.nanticokeriver.org) • Lower Shore Land Trust • Nanticoke Watershed Preservation Group, Inc. (http://www.co.worcester.md.us/LowerShoreLandTrust.htm) • Salisbury University • Maryland Environmental Trust • Wicomico Environmental Trust • Nanticoke River Watershed Conservancy • agricultural community

N-2 Establish a committee composed of various environmental groups to develop a comprehensive strategy to implement the plan.

As noted above, many environmental groups in Wicomico County work to preserve our natural resources. A working group of representatives from environmental organizations that meet on a regular basis with county representatives would be a valuable tool to establish communication and address important environmental issues. The committee should help to lead efforts to implement the 2005 Wicomico County Land Preservation, Parks, and Recreation Plan and should use the plan as a framework for committee activities.

N-3 Consider land banking along Wicomico County waterways.

The vast majority—some estimate as much as 95%—of the land along the Wicomico River is already developed. Wetlands line much of the Nanticoke River. In situations where much land is simply unavailable, for any number of reasons, land banking is an acceptable consideration. Wicomico County may wish to begin land banking—the practice of purchasing and holding land for future use (or preservation)—along county waterways. Many options are available to help structure acceptable arrangements between the county and a willing landowner, such as deferred compensation, life estate, bargain sale, and many others. The county should be aware of and consider all opportunities to conserve land along county waterways.

N-4 Strengthen the county focus on corridor development with an integrated approach involving state, county, and nonprofit groups to protect natural resources, habitat areas, and historic sites and to develop waterway trails.

Wicomico County should strengthen the focus on linear corridors, such as greenways, bikeways, and trails. Linear corridors, including waterway trails, help to preserve Wicomico’s current natural assets. Combining the resources of different agencies, levels of government, and other interested organizations will strengthen preservation efforts in the county.

N-5 Foster a strong working relationship between the county and the state in areas of mutual interest.

Wicomico County and the State of Maryland have many common land preservation goals and targets. The county—through the Wicomico County Department of Recreation, Parks, and Tour- ism and the Salisbury-Wicomico Department of Planning, Zoning, and Community Develop- ment—and the state—through the Maryland Departments of Planning and Natural Resources— should work closely to strengthen efforts in areas of mutual concern, such as:

7–11 2005 Wicomico County Land Preservation, Parks, and Recreation Plan

$ Forest protection $ Tourism $ Wetland protection $ Nanticoke and Sharptown harbors $ Sustainable forestry $ Pemberton land acquisition

N-6 Update the land use element of the county comprehensive plan to reassess the most suitable areas for growth in the county by considering all elements of the landscape.

Suitability of land for development or preservation is based on many elements of the landscape. The entire “working landscape” should be considered in assessing areas for growth in Wicomico County. The Salisbury-Wicomico Department of Planning, Zoning, and Community Develop- ment should update the land use element of the county comprehensive plan to reassess targeted growth areas considering heritage/historical resources, natural resources, habitats, agricultural uses/soils, and other landscape elements. (Note: Recommendation N-5 is the same as recommendation A-7, repeated both for emphasis and to recognize the relevance to both the agricultural preservation and natural resource conservation elements of the plan.)

CAPITAL RECOMMENDATIONS

The capital recommendations of the 2005 Wicomico County Land Preservation, Parks, and Recreation Plan are presented by planning area. Each section includes a larger-scale version of the plan map and a discussion of the effect of the plan on the planning area. Planning area dis- cussions are presented in the following order: Tri-Town, West Side, North, Central, South, East.

The 2005 Wicomico County Land Preservation, Parks, and Recreation Plan proposes a total of 54 capital projects at an estimated cost of $19.77 million (Table 7.2). Highlights of the plan include:

Table 7.2 Summary of Capital Recommendations

Planning Number Estimated Acres Estimated Costs ($000s) Area of Total to be Immediate Mid-Range Long-Range Projects Cost Acquired (2005-2010) (2011-2015) (2016+) ($000s) Acq. Dev. Reh. Acq. Dev. Reh. Acq. Dev. Reh. Central 17 9,050 78.0 820 270 0 450 6,960 320 0 100 130 East 4 145 3.05000000 0 6035 South 6 2,080 40.0 0 75 0 650 60 0 0 1,295 0 West 12 5,310 0.0 0 120 1,408 0 385 680 0 0 2,717 Tri-Town 9 725 6.0 0 160 30 200 200 80 0 25 30 North 6 2,460 0.0 0 800 30 0 30 800 0 800 0 Total 54 19,770 127.0 870 1,425 1,468 1,300 7,635 1,880 0 2,280 2,912

Source: Wicomico County Department of Recreation, Parks, and Tourism

7–12 2005 Wicomico County Land Preservation, Parks, and Recreation Plan

• Acquisition of 127.0 acres of land, 80.0 acres of which will be developed into two new parks.

• Development of three new parks to meet recreation needs of areas experiencing or expected to experience significant growth: o Pirates Wharf (West Side Planning Area) o A new community park in the West Metro Core (Central Planning Area) o A new community park in the South Planning Area

• A total of $6.26 million—32% of total estimated cost—devoted to rehabilitation of existing facilities, in response to the plan’s emphasis on park and facility rehabilitation.

7–13 2005 Wicomico County Land Preservation, Parks, and Recreation Plan

Tri-Town Planning Area

The 2005 Wicomico County Land Preservation, Parks and Recreation Plan proposes nine capital projects, expected to cost $725,000, in the Tri-Town Planning Area (Map 7.2, Table 7.3). Major items include improvements to Cherry Beach and an additional 6.0 acres to be added to Hebron Park to meet the needs of future residents.

Table 7.3 Proposed Capital Improvements, Tri-Town Planning Area

Site No. Project Description Est. Acres Estimated Costs ($000s) (See Total to be Immediate Mid-Range Long-Range Map Cost Acquired (2005-2010) (2011-2015) (2016+) 7.3) ($000s) Acq. Dev. Reh. Acq. Dev. Reh. Acq. Dev. Reh. Gene Lowe Park 3 Reconstruct basketball court 30 30 Gene Lowe Park 3 Install new pgd. module 10 10 Cherry Beach 1 Replace boat ramp 150 150 Cherry Beach 1 Resurface park. Lot 80 80 Cherry Beach 1 Restrooms 100 100 Cherry Beach 1 Walking trail 100 100 Cherry Beach 1 Play module 25 25 Mardela Park 6 Construct basketball court 30 30 Hebron Park 13 Acquire 6.0 ac. to extend park 200 6.0 200

Total (9 projects) 725 6.0 0 160 30 200 200 80 0 25 30

Source: Wicomico County Department of Recreation, Parks, and Tourism

7–14 2005 Wicomico County Land Preservation, Parks, and Recreation Plan

West Side Planning Area

The 2005 Wicomico County Land Preservation, Parks, and Recreation Plan proposes $1.96 million of improvements in the West Side (Map 7.3, Table 7.4). Major improvements are slated for Cedar Hill Park, including $800,000 for dredging the marina. Rehabilitation of the bulkhead, piles, and catwalks at Cedar Hill and Nanticoke Harbor will total approximately $3.65 million A new boat launching facility is planned for the new Pirate’s Wharf Park along with a site master plan. The master plan will identify future development of the park and provide cost estimates and potential phasing for park development. The plan does not envision any additional recreational land requirements in the West Side.

Table 7.4 Proposed Capital Improvements, West Side Planning Area

Site No. Project Description Est. Acres Estimated Costs ($000s) (Map Total to be Immediate Mid-Range Long-Range 7.4) Cost Acquired (2005-2010) (2011-2015) (2016+) ($000s) Acq. Dev. Reh. Acq. Dev. Reh. Acq. Dev. Reh. Nanticoke Harbor 117 Pave parking lot 50 50 Nanticoke Harbor 117 Replace bulkhead, piles, catwalks 2,254 298 364 1,592 Pirate's Wharf Park 111 Construct boat launching facility 300 50 250 Cedar Hill Park 120 Dredge marina 800 800 Cedar Hill Park 120 Replace boat ramp 180 180 Cedar Hill Park 120 Replace bulkhead, piles, catwalks 1,396 285 316 795 Pirate's Wharf Park 111 Develop master plan 60 60 Pirate's Wharf Park 111 Develop park per master plan. TBD TBD Bivalve Wharf 119 Extend wharf 75 75 Wetipquin Boat Ramp 122 Replace boat ramp 150 150 West Side Comm. Ctr. 128 Upgrade utilities 25 25 West Side Comm. Ctr. 128 Add storage building 20 20

Total (12 projects) 5,310 0 0 120 1,408 0 385 680 0 0 2,717

TBD: to be determined

Source: Wicomico County Department of Recreation, Parks, and Tourism

7–15 2005 Wicomico County Land Preservation, Parks, and Recreation Plan

North Planning Area

The 2005 Wicomico County Land Preservation, Parks, and Recreation Plan proposes major improvements to the Henry Parker Athletic Complex and Naylor Mill Park (Map 7.4, Table 7.5). Projects at the Parker complex will include lights and fencing by 2006, parking and playground improvements by 2008. The plan also calls for a community park to be developed at Naylor Mill Park to provide additional local recreation land for the northern part of the Metro Core. Proposed improvements in the North Planning Area are expected to cost a total of $2.46 million.

Table 7.5 Proposed Capital Improvements, North Planning Area

Site No. Project Description Est. Acres Estimated Costs ($000s) (Map Total to be Immediate Mid-Range Long-Range 7.5) Cost Acquired (2005-2010) (2011-2015) (2016+) ($000s) Acq. Dev. Reh. Acq. Dev. Reh. Acq. Dev. Reh. Henry Parker Athletic Complex 25 Pave & stripe parking lot 700 700 Henry Parker Athletic Complex 25 Replace playground module 30 30 Henry Parker Athletic Complex 25 Improve handicapped accessibility 30 30 Henry Parker Athletic Complex 25 Install lights and fences 800 800 Mason Dixon Sports Complex 17 Fences, rooves, dugouts, bleachers 100 100 Naylor Mill Park 24 Develop community park 800 800

Total (6 projects) 2,460 0 0 800 30 0 30 800 0 800 0

Source: Wicomico County Department of Recreation, Parks, and Tourism

7–16 2005 Wicomico County Land Preservation, Parks, and Recreation Plan

Central Planning Area

The 2005 Wicomico County Land Preservation, Parks, and Recreation Plan proposes 18 capital improvements in the Central Planning Area, at a cost of approximately $8,950,000 (Map 7.5, Table 7.6). The plan includes the acquisition of 78 acres of land: 40 acres for the proposed West Metro Core Park and 38 acres to expand Pemberton Historical Park. All four of the projects at Pemberton Historical Park are part of the established master plan for the site.

The county intends to design and construct a multi-service center at Winterplace Park. The proposed senior center/community center is slated for design by 2006 and construction by 2008.

The improvements in Table 7.6 include a countywide study of greenways and bike trails. Costs and phasing of greenway/trail improvements are to be determined in the study and will be reflected in future land preservation plans.

Table 7.6 Proposed Capital Improvements, Central Planning Area

Site No. Project Description Est. Acres Estimated Costs ($000s) (Map Total to be 7.6) Cost Acquired Immediate Mid-Range Long-Range ($000s) (2005-2010) (2011-2015) (2016+) Acq. Dev. Reh. Acq. Dev. Reh. Acq. Dev. Reh. Billy Gene Jackson Park 33 Replace basketball court 30 30 Billy Gene Jackson Park 33 Rehabilitate tennis courts (2) 50 50 Cedarhurst Park 27 Replace basketball court 30 30 Pemberton Historical Park 50 Construct outbuildings 200 100 100 Pemberton Historical Park 50 Construct addition to contact building 95 95 Pemberton Historical Park 50 Purchase Heritage Center for future 220 220 environmental education center Pemberton Historical Park 50 Acquire land 450 38 450 West Metro Core Park TBD New community park 1,500 40 600 900 Winterplace Park 87 Develop biking trails facility 180 180 Winterplace Park 87 Develop roller hockey rink. 80 80 Greenways/bike trails (countywide) TBD Develop plan 25 25 Greenways/bike trails (countywide) TBD Develop greenways/bikeways TBD TBD Newtown Playground 62 Restroom fac. for boundless play area 100 100 Multiservice Center TBD Design & construct multiservice center 5,550 50 5,500 Doverdale Playground 66 Renovate playground 250 250 City Park 74 Construct parking lot 200 200 Centennial Village Playground 29 Replace playground module 20 20 Crooked Oak Playground 28 Renovate basketball and tennis courts 70 70 Total (18 projects) 9,050 78 820 270 0 450 6,960 320 0 100 130

TBD: to be determined

Source: Wicomico County Department of Recreation, Parks, and Tourism

7–17 2005 Wicomico County Land Preservation, Parks, and Recreation Plan

South Planning Area

The 2005 Wicomico County Land Preservation, Parks, and Recreation Plan includes six projects in the South Planning Area with a total estimated cost of $2.08 million (Map 7.6, Table 7.7). The plan includes a new community park to address the local recreation land shortfall, with an estimated 40 acres to be acquired by 2008 and development to occur sometime after 2008. The new park accounts for almost 80 percent of the cost of proposed improvements. Additional projects will provide improvements to Fruitland Park and the Fruitland Park Annex.

Table 7.7 Proposed Capital Improvements, South Planning Area

Site No. Project Est. Acres Estimated Costs ($000s) (Map Description Total to be Immediate Mid-Range Long-Range 7.7) Cost Acquired (2005-2010) (2011-2015) (2016+) ($000s) Acq. Dev. Reh. Acq. Dev. Reh. Acq. Dev. Reh. Fruitland Park annex 104 Walking trail 75 75 Fruitland Park annex 104 Picnic pavilion 30 30 Fruitland Park annex 104 Construct pgd. 30 30 Fruitland Park annex 104 Light baseball field 170 170 Fruitland Park 104 Light softball field 125 125 South Growth Area Park TBD New community park 1,650 40 650 1,000

Total (6 projects) 2,080 40 0 75 0 650 60 0 0 1,295 0

TBD – to be determined

Source: Wicomico County Department of Recreation, Parks, and Tourism

7–18 2005 Wicomico County Land Preservation, Parks, and Recreation Plan

East Planning Area

The 2005 Wicomico County Land Preservation, Parks, and Recreation Plan includes four projects in the East Planning Area with an estimated total cost of $145,000 (Map 7.7, Table 7.8). By the end of 2006, the department plans to acquire approximately 3.0 acres of land for a parking lot at the Pittsville Ball Park. Future improvements are slated for Willards Park and Adkins Mill Park.

Table 7.8 Proposed Capital Improvements, East Planning Area

Site No. Project Description Est. Acres Estimated Costs ($000s) (Map Total to be Immediate Mid-Range Long-Range 7.8) Cost Acquired (2005-2010) (2011-2015) (2016+) ($000s) Acq. Dev. Reh. Acq. Dev. Reh. Acq. Dev. Reh. Willards Park 98 Replace basketball court 35 35 Adkins Mill Park 100 Extend boardwalk 30 30 Pittsville Ball Park 91 Acquire land for parking lot 50 3 50 Willards Park 98 Add playground module 30 30

Total (4 projects) 145 3 50 0 0 0 0 0 0 60 35

Source: Wicomico County Department of Recreation, Parks, and Tourism

7–19 Appendix

Wicomico County Recreation Areas and Facilities 2005