Preliminary Land Use Service (PLUS) Application Pre-Update Review Request Municipal Comprehensive Plans Comprehensive Plan Amendments Municipal Ordinances Delaware Office of State Planning Coordination 122 Martin Luther King Jr. Blvd., South • Dover, DE 19901 • Phone: 302-739-3090 • Fax: 302-739-5661
All sections related to your project must be completed. Incomplete applications could lead to delays in scheduling your review. If you need assistance or clarification, please call the State Planning Office at (302) 739-3090.
REQUESTED REVIEW: Check one
Comprehensive Plan Pre-Update Review
Complete Sections 1 and 3 only
Comprehensive Plan or Update
Complete Sections 1 and 3 only
Comprehensive Plan Amendment
Complete Sections 1 and 2 only
Municipal Ordinance Review
Complete Sections 1 and 2 only
Date of most recently certified comprehensive plan:
Link to most recently certified comprehensive plan, if available: If a link to the plan is not available, you must submit a copy of your plan with this application for a Pre-Update Review or a Comprehensive Plan Amendment.
State of Delaware, Office of State Planning Coordination Effective: March 1, 2018 Page 1 Preliminary Land Use Service (PLUS) Application Pre-Update Review Request Municipal Comprehensive Plans Comprehensive Plan Amendments Municipal Ordinances Delaware Office of State Planning Coordination 122 Martin Luther King Jr. Blvd., South • Dover, DE 19901 • Phone: 302-739-3090 • Fax: 302-739-5661
SECTION 1: MUNICIPAL INFORMATION
Name of Municipality: Address: Contact Person: Phone Number: Fax Number: E-mail Address:
Application prepared by: Address: Contact Person: Phone Number: Fax Number: E-mail Address:
State of Delaware, Office of State Planning Coordination Effective: March 1, 2018 Page 2 Preliminary Land Use Service (PLUS) Application Pre-Update Review Request Municipal Comprehensive Plans Comprehensive Plan Amendments Municipal Ordinances Delaware Office of State Planning Coordination 122 Martin Luther King Jr. Blvd., South • Dover, DE 19901 • Phone: 302-739-3090 • Fax: 302-739-5661
SECTION 2. COMPREHENSIVE PLAN AMENDMENT OR MUNICIPAL ORDINANCE DESCRIPTION
Please describe the submission.
State of Delaware, Office of State Planning Coordination Effective: March 1, 2018 Page 3 Preliminary Land Use Service (PLUS) Application Pre-Update Review Request Municipal Comprehensive Plans Comprehensive Plan Amendments Municipal Ordinances Delaware Office of State Planning Coordination 122 Martin Luther King Jr. Blvd., South • Dover, DE 19901 • Phone: 302-739-3090 • Fax: 302-739-5661
SECTION 3. CHECKLIST FOR PRE-PLAN-UPDATE REVIEWS, COMPREHENSIVE PLANS AND COMPREHENSIVE PLAN UPDATES
Please indicate the section and page number where the following information can be found in the comprehensive plan. For additional details on this checklist, go to the following website: http://stateplanning.delaware.gov/docs/comprehensive-plan- checklist-guide.pdf
Comprehensive Plan Requirements for ALL Communities Elements of Delaware Code Page #s / Section Position on Population Growth Position on Housing Growth Position on Expansion of Boundaries Position on Development of Adjacent Areas Position on Redevelopment Potential Position on Community Character Position on the General Use of Land Position on Critical Community Development Issues Position on Key Infrastructure Issues Demonstrate coordination with State, County and other Municipalities Additional Elements of the Comprehensive Plan Required for Communities with more than 2,000 persons Elements of Delaware Code Page #s / Section Description of Physical, Demographic and Economic Conditions Policies, Statements, Goals and Planning Components for Public and Private Uses of Land Policies, Statements, Goals and Planning Components for Transportation Policies, Statements, Goals and Planning Components for Economic Development Policies, Statements, Goals and Planning Components for Affordable Housing Policies, Statements, Goals and Planning Components for Community Facilities Policies, Statements, Goals and Planning Components for Open Space and Recreation
State of Delaware, Office of State Planning Coordination Effective: March 1, 2018 Page 4 Preliminary Land Use Service (PLUS) Application Pre-Update Review Request Municipal Comprehensive Plans Comprehensive Plan Amendments Municipal Ordinances Delaware Office of State Planning Coordination 122 Martin Luther King Jr. Blvd., South • Dover, DE 19901 • Phone: 302-739-3090 • Fax: 302-739-5661
Policies, Statements, Goals and Planning Components for Protection of Sensitive Areas Policies, Statements, Goals and Planning Components for Community Design Policies, Statements, Goals and Planning Components for Adequate Water and Waste Water Systems Policies, Statements, Goals and Planning Components for Protection of Historical and Cultural Resources Policies, Statements, Goals and Planning Components for Annexation Policies, Statements, Goals and Planning Components for other Elements which in the opinion of the community best promotes health, safety prosperity and general public welfare. Sourcewater Protection (7 Del. C. § 6083) Other Code Requirements Linked to the Comprehensive Plan Elements of Delaware Code Page #s / Section Municipal Boundaries accurately depicted on maps, and recorded in county if applicable (City / Town Charters). Required for all municipalities.
Other elements Public Participation
Additional comments:
State of Delaware, Office of State Planning Coordination Effective: March 1, 2018 Page 5
Comprehensive Plan Update September 2019 DRAFT
Town of Dagsboro Comprehensive Plan Update 2019
Table of Contents
Town, County and State Officials…………………………………………………………………………….3
Vision Statement & Introduction……………...……………………………………………………………....4
Chapter 1 Background……………………………………………………...... 5 1-1 Authority to Plan……………………………………………………………….…………………………….5 1-2 Overview of the Community…………………………………….………………………………………5 1-3 Existing Land Uses……………………………………………………….…………………………………6 1-4 Community Vision and Goals…………….…………………………………….……………………….8 1-5 Public Participation………………………………………………………………………………………….9
Chapter 2 Development Strategy……………………………………………………………...……….12 2-1 Current Land Use Planning and Regulation Process………………………………………...12 2-2 Demographics, Future Population and Housing Growth…………………………………...12 2-3 Future Land Use and Annexation.………………………………………………..………………….15 2-4 Utilities, Community Facilities & Services………………………………….……………………..20 2-5 Transportation………………………………………………………………………………………………29
2-6 Community Character and Design…………………………………………………...... 33 2-7 Redevelopment…….………………………………………………………………………………………35 2-8 Environmental Protection………………………………………………………………………………37
Chapter 3 Implementation Plan...…………………...………………………...…………………...………42 3-1 Summary of Recommendations.…………………………………………………………..………...42 3-2 Intergovernmental Coordination…………………………………………….………………………44
List of Tables Table 1: Land Uses in the Town of Dagsboro..…………………………………………………………...7 Table 2: Vacant Land……………………………………..………………………………………………………..8 Table 3: Population Projection based on Building Activity.....……………………………………..13 Table 4: Profile of Demographic Characteristics for Delaware, Sussex County and
Dagsboro………………………………………………………...………………………………………14 Table 5: Town of Dagsboro’s Largest Employers…………………………………………………….28 Table 6: Potential Future Business Locations…………………………………………...……………..29 Table 7: Average Annual Daily Traffic (AADT) on Key Roads (2018)………….……………….31 Table 8: TMDL Nutrient (Nitrogen and Phosphorus) and Bacteria Reduction Requirements for the Inland Bays……………...………………………………………………38
September 2019 1 Town of Dagsboro Comprehensive Plan Update 2019
Appendix A Public Opinion Survey
Appendix B Downtown Development District
Appendix C Maps Map 1 Aerial View Map 2 Zoning Map 3 Existing Land Use Map 4 Future Land Use & Annexations Map 5 State Investment Strategies Map 6 Transportation Map 7 Environmental Features
Appendix D Official Correspondence Resolution to Adopt
State Certification Letter
2 September 2019 Town of Dagsboro Comprehensive Plan Update 2019
Town, County, and State Officials
Dagsboro Town Council Brian Baull, Mayor Pat Miller, Vice-Mayor Norwood Truitt, Secretary/Treasurer William Chandler, Assistant Secretary Theresa Ulrich, Councilwoman
Planning and Zoning Commission Brad Connor, Chairperson Cathy Flowers, Vice-Chairperson Cindy Gallimore Audrey Miller Earl Savage
Board of Adjustment Diane Carey, Chair Marjorie Eckerd Janice Kolbeck
Sussex County Council Michael H. Vincent, President Irwin G. Burton III, Vice-President Samuel R. Wilson Jr. Douglas B. Hudson John L. Rieley Robin Griffith, Clerk
Sussex County Administrator Todd F. Lawson
Town Attorney Greg Morris
Delaware State Officials John Carney, Governor Richard G. Collins, 41st Representative District Gerald W. Hocker, 20th Senatorial District Constance C. Holland, Director, Office of State Planning and Coordination
Consultant
September 2019 3 Town of Dagsboro Comprehensive Plan Update 2019
Vision Statement & Introduction
Vision Statement
Over the years, the Town of Dagsboro has strived to protect its most prized possession - its small-town charm. Dagsboro has developed its own identity through its historic character and by being proactive in the preservation of the natural greenery found throughout the community. With the anticipation of the Town expanding in the future, positive growth and development is encouraged. Smart growth will only help to improve and enhance community livability. A balance between vibrant businesses and a variety of housing, services and amenities, will help create places for current and future residents to enjoy.
Introduction
In January of 2015 the Office of State Planning Coordination certified the Town of Dagsboro’s current Comprehensive Plan under a Delaware law requiring municipalities to update their comprehensive plans every five years. The Town of Dagsboro’s updated plan addresses opportunities and challenges the Town will be facing in the following years. The plan also serves as an official statement as to the direction the Town is progressing toward, as well as an informational document for the public.
First and foremost, the plan is the basis for Town Council and Planning and Zoning Commission decisions on land use and growth issues. It should be used to guide future development decisions, rezoning activities, annexations, capital improvements throughout the Town and the surrounding areas within the desired growth area.
The plan also functions as an informational document for the public. Citizens, developers, business entrepreneurs, potential new residents and government officials can turn to the plan to learn more about the Town of Dagsboro, its policies for future land use decisions, schools, design characteristics, public facilities, population growth, housing, and employment.
By utilizing this document, Town, County and State officials will be able to continue to work towards the common goals of the Town for the betterment of the citizens of Dagsboro. Continuing a good working relationship with County officials and the proper use of this document will be paramount to the development and maintenance of the Town. This will also ensure Dagsboro continues to be a special place to work and live within the surrounding communities.
The Delaware Code specifies that, “the comprehensive plan shall be the basis for the development of zoning regulations…” and the code further specifies that, “at least every five years a municipality shall review its adopted comprehensive plan to determine if its provisions are still relevant given changing conditions in the municipality or in the surrounding areas.” This document builds upon the adopted January 2015 Comprehensive Plan with updates based on new development trends and current economic conditions.
4 September 2019 Town of Dagsboro Comprehensive Plan Update 2019
Chapter 1: Background
1-1 Authority to Plan
Delaware law requires that municipalities engage in comprehensive planning activities for the purposes of encouraging “the most appropriate uses of the physical and fiscal resources of the municipality and the coordination of municipal growth, development, and infrastructure investment actions with those of other municipalities, counties and state…” This update was written to comply with the requirements of a municipal development strategy as described in the Delaware Code for towns with a population of 2000 or less.
This update created for the Town of Dagsboro is a document in text and maps, containing at minimum, a municipal development strategy setting forth the jurisdiction's position on population and housing growth within the jurisdiction, expansion of its boundaries, development of adjacent areas, redevelopment potential, community character and the general uses of land, critical community development and infrastructure issues. In addition, the Town’s updated comprehensive planning process shall demonstrate coordination with other municipalities, the County, and the State during plan preparation.
1-2 Overview of the Community
1-2a Location Dagsboro is located in the southeastern portion of Sussex County along the Route 113 corridor with Route 20 and Route 26 intersecting the Town. Route 26 is an east-west corridor running from Sussex County’s inland towns to the State’s coastal resorts. Delaware Route 20 travels from the Maryland state line through the Town of Dagsboro to Fenwick Island which is the last municipality in Delaware before entering Ocean City, MD. Dagsboro is approximately 49 miles south-southeast of Dover, the Capitol of Delaware; approximately 13 miles south- southeast from Georgetown, the County seat; approximately 10 miles west from the Atlantic Ocean; and approximately 27 miles from Salisbury, MD. The Town lies at the head of Pepper Creek, a tributary of the Indian River. Dagsboro is located within a division of land historically known as the “Dagsboro (or Dagsborough) Hundred.” The Town is in a large agricultural region and is connected by railroads and highways to larger markets in northern Delaware, Pennsylvania, and Maryland.
1-2b History Prior to 1785, the area that is now Dagsboro was called Blackfoot Town, named after the Native American village of earlier days. After the death of General John Dagworthy in 1784, the Town was named Dagsborough in honor of him. Dagworthy served in the French and Indian War and the American Revolution and was a prominent landowner in the area. The modern spelling of Dagsboro began to be used upon the Town’s incorporation in the 1900s.
The land that General Dagworthy owned was called “Dagworthy’s Conquest” and included 20,390 acres of land given to Dagworthy by Governor William Sharpe of Maryland for his services rendered. Dagworthy’s Conquest also bordered Pepper Creek, which during this
September 2019 5 Town of Dagsboro Comprehensive Plan Update 2019
period was navigable to ships that took part in trade between this region of the Atlantic Coast and northern cities like New York and Philadelphia. The most common freight for those ships was shingles made from the giant cypress trees that were once abundant in the area. The sawmill that produced these shingles was operated by General Dagworthy for many years. It is said that the stream was not used very much after the death of General Dagworthy in 1784.
Prince George’s Chapel, built in 1755 as an Anglican chapel-of-ease, is a historical focal point for Dagsboro. It was named in honor of the infant Prince George who later became King George III of England. General Dagworthy financed an addition to the church, and he and his wife are buried under the original building. The Chapel has since been restored and was listed on the National Register of Historic Places in 1971. It serves as a museum under the administration of Delaware’s Division of Historical and Cultural Affairs in cooperation with the Town and the Friends of Prince George’s Chapel. It is open to the public with services being held several times per year.
Dagsboro is also noted for being the birthplace of John M. Clayton, who served as the Chief Justice of Delaware, a U.S. Senator and the U.S. Secretary of State under President Zachary Taylor. Dagsboro produced several other noteworthy statesmen. Dr. Edward Dingle, William Dunning and Colonel William D. Waples all resided in the Town and were all chosen as delegates to form the Delaware Constitution of 1832. The Honorable William Hill Wells, who married General Dagworthy’s daughter Rachel, served as a U.S. Senator from 1799-1804 and again from 1813-1829. In the early 1930s, an unsuccessful presidential candidate from Dagsboro, Charles W. Perry, ran on the Socialist ticket.
In 1998, the Delaware State Historic Preservation Office created the boundaries of a potential historic district in Dagsboro, referring to buildings that have retained their historic appearance, settlement history and architecture. The potential district encompasses the main settlement areas of the Town.
1-3 Existing Land Uses
The original land use survey was conducted by students from the University of Delaware in July of 2002 and updated in 2019. At that time the Town consisted primarily of single-family residential homes with a small core of commercial uses along Main Street.
The Town of Dagsboro has seen additional residential and commercial growth over the years. The Town still consists of primarily single-family residential homes, however, with the additional annexation of land, new construction includes townhouse communities as well as commercial structures. There are two
6 September 2019 Town of Dagsboro Comprehensive Plan Update 2019 main commercial districts located within the Town boundaries. The Highway Commercial District is along the Route 113 corridor which has experienced new construction and the redevelopment of existing buildings in the past 10 years. The second location is the Town Center District which is located on Clayton Street (Route 26) from the railroad tracks to Main Street (Route 26/Route 20) and along Main Street east to Armory Road. Town Hall, the Post Office and a bank are located at the intersection of Clayton and Main Streets. Several retail stores, a restaurant, and coffee shop have opened on Main Street in recent years (See Map 1 Aerial View and Map 3 Existing Land Use).
The railroad tracks that run north and south through the Town near the commercial and industrial districts are a great advantage in the transportation and efficiency in the delivery of goods and could be used to support additional commerce in Town. These tracks are still used to transport goods and supplies to businesses and industries on the Delmarva Peninsula.
There are approximately 1,606 acres within the Town of Dagsboro. Residential land use encompasses 980.37 acres or 61 percent of total land uses, while 116.35 acres (seven percent) are identified as vacant. Commercial uses make up about 65 acres (four percent) of land. After Residential, the next prominent land use is Agriculture at 329 acres or 20 percent. Other land uses include Industrial, Institutional, Utilities or Infrastructure, and Parks or Recreation. Table 1 lists the number of acres and percent composition of the various land uses in the Town of Dagsboro. Existing land use information for parcels within the Town appears on Map 3.
Table 1: Land Uses in the Town of Dagsboro Land Use Acres Percent of Total Residential 980.37 61.03% Agriculture 328.96 20.48% Utilities / Infrastructure 14.52 0.90% Vacant 116.35 7.24% Commercial 64.77 4.03% Institutional 72.08 4.49% Industrial 5.45 0.34% Parks/ Recreation 24.00 1.49% Total 1606.50 100.00% Source: FirstMap, Delaware 2007 Land Use, Land Cover Revised, Last Updated July 2019
Land developed as residential is most prevalent in Dagsboro. Residential uses can be found mixed with the commercial uses along Main and Clayton Streets as well as throughout the periphery of the Town. With the development of townhouse and duplex communities, the Town of Dagsboro has become a well-diversified mixed housing community offering housing of various architectural types and styles. As areas closer to the beach become more heavily developed, the Town of Dagsboro will continue to be an attractive location for the development of vacant parcels and tracts of land, and the redevelopment of existing houses will become even more common for seasonal living as well as the retirement community.
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There are approximately 116.35 acres of vacant land in the Town, of which the majority is unconstrained and suitable for development (See Map 3 Existing Land Use and Map 7 Environmental Features). This type of land could have significant impacts to the current and future character of Dagsboro. Most of the vacant land is outside of the central area of the Town and is currently used for agriculture or open space. There are also some highly visible smaller parcels of vacant land within the central part of Town, specifically around Main Street and Clayton Street. Dagsboro’s Downtown Development District Plan (2016) identifies the vacant parcels found in the Town Center District and addresses their redevelopment potential (See Appendix B).
Table 2: Vacant Land
Number of
Current Zoning Vacant Total Acreage
Parcels
High Density Residential 3 36.19 Residential 105 56.39 Town Center 20 23.77 Total 128 116.35
1-4 Community Vision and Goals
Prior to the adoption of the Town of Dagsboro’s 2009 Comprehensive Plan, a mass mailing questionnaire was sent out to receive the public’s view on the growth of the Town. A similar survey was marketed to the residents of Dagsboro for this updated plan through the Town website. After reviewing the residents’ responses, this Plan concludes the following vision and goals:
1-4a Land Use and Annexation
A widespread suggestion among many of the residents in Town is the use of vacant land and retrofitting dilapidated buildings for new businesses in the town center. With the possibility of development of vacant lots or redevelopment, the Town would prefer to see small businesses and better pedestrian connectivity within the downtown area. There is also a possibility of additional land being annexed. Residents prefer that any annexed land have a well-kept appearance and be well-planned to encourage walkability and connectivity between different areas in Town. It is important to make sure all new development links the Town’s current street and sidewalk network as an extension of the Town.
1-4b Commercial and Industrial Areas In keeping with the small-town spirit, the development of industrial sites is seen as unfavorable. A more encouraged idea is to create business parks for both commercial and industrial purposes. The residents would also like to see retail and professional business within the community taking advantage of the beach traffic and to better serve the overall community.
8 September 2019 Town of Dagsboro Comprehensive Plan Update 2019
1-4c Transportation Planning The two main concerns of residents when it comes to transportation are congestion and connectivity. Traffic traveling through Town to the various beaches is a problem because it causes delays making it hard for locals to use the services provided in Town. Traffic congestion affects the Town year-round but increases during the summer months. Pedestrian and bike connectivity are also an issue. Residents would like to see an increase in the number of sidewalks. Not only would residents like to see the community have better connectivity of sidewalks throughout their Town but also to neighboring towns.
1-4d Neighborhoods and Community Design Growth within and around Dagsboro is to be expected, however, the residents would like to maintain the small-town atmosphere while growth occurs. The potential growth of the Town’s infrastructure should include open spaces for parks, connectivity of sidewalks and streets to adjacent neighborhoods, along with additional community landscaping. As for housing in Dagsboro, the preferred type of housing is low density single-family homes. Higher density housing in the form of townhouses is also accepted, but to a lesser degree. With all the possible growth, the community members would also like to see the preservation of historic sites and structures. The Town adopted design standards in 2008 which help preserve community character.
1-4e Overall Goals • Manage the timing, location, design and type of future growth, both residential and non-residential developments. • Serve residents’ needs with minimal negative impact and enhance Dagsboro’s small- town residential character. • Support the preservation of the Town’s historic homes and structures. • Increase access to local public amenities and improve community design. • Maintain development codes and development process to ensure that all new developments and redevelopment enhance Dagsboro’s character.
The implementation of these goals is ongoing. The Town continues to strive to improve the quality of life for current and future residents.
1-5 Public Participation
Public participation is an important component to the planning process. The opinions of residents help to identify what they think the important issues are that need to be addressed and how they think their community can be improved for the future. In the process of updating the Town of Dagsboro’s comprehensive plan, the Town has utilized several
September 2019 9 Town of Dagsboro Comprehensive Plan Update 2019
methods for gathering public opinion to fully represent the thoughts, ideas, and opinions of residents regarding issues concerning the Town as well as a vision for the future.
The final hearing on the updated comprehensive plan draft was held on DATE.
1-5a Community Survey
In January 2018, a public opinion survey was made available online, and promoted via Facebook, to all the residents and property owners of the Town of Dagsboro. There was also a paper format available through Town Hall. During the 30-day survey window allotted to participate 68 surveys were collected. The survey was divided into four different categories: 1) demographic information, 2) economic development, 3) community livability, and 4) additional comments. The purpose of this survey was to get feedback from the residents to see what they would like the future of their Town to look like and what they believe is necessary to make the Town of Dagsboro an even better community.
A little more than half of the respondents, 52.5 percent, were between the ages of 46 and 65 years of age. About 85 percent of the people who completed the survey said they currently live in Dagsboro, and 98.2 percent said that they own the home that they are living in.
The top three reasons people gave for living in the Town of Dagsboro is the small-town atmosphere (80.9 percent), access to surrounding towns (67.6 percent), and friendly neighborhoods (75 percent). On the lower end of reasons for living in Town is the availability of needed services. There were several trends within the survey that indicated a consensus among residents in the direction of future development. The first theme agreed upon was for the overall beautification of the Town. There is a strong push for the development of the Town center with an emphasis on small businesses. That desire works hand in hand with the beautification efforts previously mentioned. Overall, citizens of Dagsboro would like to see this implemented in a manner that keeps both themselves and their children safe without losing the charm the Town currently holds.
Majority of the people surveyed are strongly opposed to big-box stores anywhere along the Towns’ main thoroughfares. This was indicated by the fact that even if they were constructed most residents would not utilize or patronize these businesses. What is exclusively agreed upon by residents is a need for additional restaurants on Main Street and possibly on Clayton Street, though professional offices were a close second regarding Clayton. In the event of a big-box store being built, it is almost unanimously agreed upon that it should be placed along Route 113 and far away from the central part of Town.
One of the main drivers within the survey is the desire for streetscape beautification which included comments about expanding the existing sidewalk network and cleaning up
10 September 2019 Town of Dagsboro Comprehensive Plan Update 2019 properties with vacant structures. There was a strong push for businesses to remain smaller in nature with outdoor seating options and a strong emphasis on the ability to walk to these businesses. Many of the open-ended survey results noted the need for repair and adaptive reuse of old or dilapidated buildings, while also restoring Town charm by revitalizing or retrofitting the existing buildings for new businesses. It was mentioned, on several occasions that removal or revitalization of vacant businesses could have the potential to increase local property value and it would invite other businesses throughout Dagsboro to follow suit.
Improving the walkability in downtown Dagsboro would have significant community and health benefits. The Town can accomplish this through the construction of paths and trails that accommodate pedestrian and bike traffic is of the highest priority according to the survey results.
When it comes to future growth, residents have strong feelings about the type of housing development they would like to see in Town. Residents prefer single family homes on moderate to large sized lots over condominiums and apartments.
Three things residents would like to have within Town are a public library, a medical facility, and community center. The library was without question the most overall requested facility, however, the medical facility had higher priority value to a large group of citizens. The survey also suggested residents would prefer those services over senior centers and youth program centers.
Within the municipal bounds people were largely concerned with traffic and water quality as it relates to safety and health of the residents.
1-5b Public Open House
On September 5, 2019, the Town held a public open house for the residents of Dagsboro at the Bethel Center. The purpose of this open house was to get feedback from the residents of Dagsboro to see how they envisioned the Town in the future, especially focusing on future land use issues. The public open house also helps to prioritize what needs to be done to ensure the highest quality of life to current residents as well as future residents. A variety of information was available for community members to review and ask questions. At the open house, there was a series of presentation boards that included general information on comprehensive plans and a timeline of completion for Dagsboro’s plan, highlights from the town survey, and the updated maps – such as existing land use, future land use and annexation, and zoning maps. Also available was a draft of the updated comprehensive plan as well as the 2015 Plan for comparison.
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Chapter 2: Development Strategy
“To provide for the orderly growth and development of the Town; to promote the health, safety, prosperity and general open lands, water resources and recreational facilities; to ensure conservation of property values and natural resources; to afford adequate provisions for public utilities and infrastructure; to ensure proper educational needs and facilities for town staff.”
2-1 Current Land Use Planning and Regulation Process
Town business is conducted by the Town Council, the Planning and Zoning Commission and the Board of Adjustment. The Town Council representatives hold a term for two years and are selected by the community through holding an annual election each year. At the annual meeting, held on the first regular meeting following the Annual Municipal Election, the Town Council organizes and elects a Mayor, who holds office for the term of one year or until his or her successor is selected. The Town Council selects a Vice-Mayor who holds office for the term of one year or until his or her successor is selected. Council meetings are held regularly on the third Monday of the month and special meetings or workshops are scheduled as required. There are five Planning and Zoning Commission members who are appointed by the Mayor and approved by the Town Council. Planning and Zoning members hold their position for a period of three years and meet monthly. The Board of Adjustment may consist of five members who are appointed by the Mayor and approved by the Town Council. Currently, there are three members. Board of Adjustment members hold their position for a period of three years and hold their hearings on an as-needed basis.
The Comprehensive Zoning Plan that was originally adopted in October 1994. The first Comprehensive Plan was adopted in 2003, updated in 2009, and revised in 2015. The 2009 update consisted of comprehensive rezoning of the Town to reflect changes to the future land uses plan as approved in the 2003 Comprehensive Plan. The Subdivision Ordinance was adopted in November 1998 and is amended as necessary. Numerous improvements and amendments have been made to the Town’s Zoning Code. The Mayor and Council continue to review and update these ordinances to improve the development standards and encourage positive growth within the Town. In 2008, the Mayor and Town Council adopted Design Standards for all new and substantially improved structures.
2-2 Demographics, Future Population and Housing Growth
2-2a Population Projections When deciding how to calculate a town’s potential population projection several factors need to be considered. In the 2009 Comprehensive Plan the estimated population projection was based on 2007 U.S. Census estimates, the Sussex County Comprehensive Plan Update and Dagsboro’s 2003 Comprehensive Plan. In that comprehensive plan, the estimated population for 2010 was 590 people and the projection for 2020 was 662. The 2010 Census population total for Dagsboro was 805 residents, exceeding the projections from the previous comprehensive plan. The updated Census total was used as a base number in determining a
12 September 2019 Town of Dagsboro Comprehensive Plan Update 2019
new population projection. Dagsboro’s 2015 Comprehensive Plan estimated a population of 946 current (2015) residents and the projection for 2020 was 1,037. The 2013-2017 American Community Survey estimates a total population of 869 residents for Dagsboro in 2017. However, the Town believes that projections based on building activity more accurately estimate a population of 1,004 (2018).
In addition to current population totals, proposed and estimated development are the second factor in determining a population projection. Section 2-2b further explains how the Town of Dagsboro’s population projection was calculated based on population totals and development potential.
2-2b Future Housing and Population Build-Out
From 2014 - 2018 an average of seven new residential units were built in Dagsboro annually. This was calculated into the population projection figuring the rate of approximately seven units built every year will remain the same. Along with general residential development, subdivisions mentioned in the 2015 Comprehensive Plan, such as the Woodlands, are being completed. Based on development trends across eastern Sussex County, more of Dagsboro’s vacant land will be developed in the future. The population projection figures shown in Table 3 are approximations based on current development trends.
Table 3: Population Projections based on Building Activity 2010 2015 2016 2017 2018 2020 2025 2030 2035 2040 Dagsboro Population Projections 805 946 954 984 1,002 1,038 1,127 1,216 1,305 1,394 New Residential --- 7 3 12 7 14 35 35 35 35 Units Population Increase (based on 2.54 --- 18 8 30 18 36 89 89 89 89 individuals per household) Source: Based on U.S. Census 2010 Total Population & Annual Estimates of Residential Population 4/1/10 – 12/30/18.
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2-2c Other Demographic Characteristics Table 4 outlines selected demographic characteristics for the Town of Dagsboro and how they compare to Sussex County and the State of Delaware in the 2017 American Community Survey (ACS).
Table 4: Profile of Demographic Characteristics for Delaware, Sussex County and Dagsboro Sussex Delaware Dagsboro County 2017 ACS Demographics Total Population 943,732 215,551 869 Age Population under 18 years 21.6% 19.3% 26.0% Population 65 years and older 17.0% 25.2% 25.0% Median Age (years) 39.8 48.3 42.3 Households Total Households 352,357 86,322 342 Households with children under 18 years 25.4% 20.6% 29.8% Households with single parent families 9.0% 7.2% 18.7% Households with 65 and older living alone 10.7% 13.0% 19.0% Average household size (# of people) 2.61 2.46 2.54 Housing Units Total Housing Units 423,489 132,980 404 Renter Occupied Units 28.7% 10.8% 21.3% Vacant Housing Units 16.8% 35.1% 15.3% Income Median Household Income $ 63,036.00 $ 57,901.00 $ 57,738.00 Selected Characteristics Population 25 and over - High School 89.3% 86.8% 91.3% Graduate or Higher Population 25 and over - Associate or 38.7% 34.6% 36.3% Bachelor's Degree or Higher Source: Based on U.S. Census 2013-2017 American Community Survey 5-Year Estimates.
While the data presented in Table 4 is based on estimates from 2013 - 2017 provided through the ACS, preparations for the 2020 Census are underway. The estimates should be supplemented with more accurate Census counts when possible. The table should be revised in the 2024 Plan Update if not sooner.
Since 2015, Sussex County’s population become marginally closer to the numbers seen in Table 4 for Dagsboro in areas such as median income and educational attainment. Both remain at high levels in Dagsboro. Moreover, like Sussex County, the Town’s 65 and older population has increased significantly. Between 2015 and 2017 the Town’s median age increased by one year. Of the three entities, Dagsboro has the largest proportion of individuals younger than 18 years old. Dagsboro offers a mix of housing types and maintains a vacancy rate that is lower than both the County and State.
14 September 2019 Town of Dagsboro Comprehensive Plan Update 2019
Critical Issues and Future Needs
The Town website hosted an online community survey for the month of January in 2019. The survey asked what types of housing would be preferred for the Town, and 85 percent would like to see more single-family homes on modest sized lots while 84 percent agree with single-family homes but on a large lot. Over half of respondents, 62 percent, did not want condominiums or an apartment building, and 40 percent were not in favor of multi-family homes or townhouses.
According to the U.S Census’ 2017 American Community Survey, about a quarter of the Town’s existing housing stock is 50 years or older. It is important to note that older homes have different, and often greater, maintenance needs. Majority of these older homes are located on Main and Clayton Streets. The houses located on corridors through Town have the potential to positively influence the efforts to redevelop the town center by bringing a sense of history and character to the overall streetscape.
Another issue to consider is the growing population of residents 65 years and older. This has implications for medical and emergency services, senior support services and businesses, handicapped access, home and yard maintenance, and transportation. Additionally, it suggests that a high number of properties within the Town will likely change owners and/or uses over the next decade or two.
Recommendations
1. The Development Potential map within the Town’s Downtown Development District Plan identifies key infill areas near the town center for higher density housing to promote a vibrant downtown and controlled growth. The map should be kept up-to-date for review by developers and those looking to purchase property in Town.
2. Complete a housing stock inventory and identify potential housing gaps to provide a variety of housing options from both a structural price point and wage opportunity perspective.
3. Investigate zoning changes that may allow for senior friendly housing types and alternatives such as granny flats or senior apartments.
2-3 Future Land Use and Annexation
Goals
• Manage the timing, location and design of future growth to enhance Dagsboro’s small-town, residential character.
• Manage the location, design, and type of future non-residential development to serve resident’s needs with minimal negative impact and enhance Dagsboro’s small-town character.
September 2019 15 Town of Dagsboro Comprehensive Plan Update 2019
• Support the continued affordability of housing in Dagsboro by encouraging the maintenance of existing homes and working with developers to provide new housing affordable to people with a wide range of incomes.
• Ensure ongoing compatibility and coordination with other local and state jurisdictions and agencies.
2-3a Future Land Uses and Density Based on the recommendations of the adopted 2003 Comprehensive Plan, the Town approved and adopted the Town Center District. This district incorporates commercial uses with residential uses, thereby encouraging the continuation and establishment of small businesses, professions and skilled craft occupations in conjunction with residential uses on a small-town pedestrian oriented scale. These regulations will make a substantial difference in creating a downtown area that people will want to reside within, visit, shop and work.
The Residential Planned Community District (RPC) and Cluster Residential District (CRD) were adopted to encourage large-scale developments as a means of creating an enhanced living environment through unified developments and to preserve desirable open spaces, conservation areas, unique natural features, floodplains, recreation and park areas, and lands for other public purposes. These two zoning districts are to be superimposed over the current zoning district to enable the district to operate in harmony with the plan for land use and population density embodied in these regulations. The RPC and CRD regulations were created as overlay districts with specific regulations to apply to other districts and are to be so designated by a special symbol for their boundaries on the Zoning District Map.
The online public survey, as discussed previously, was marketed to property owners of the Town of Dagsboro to provide input on the types of businesses that they feel would be appropriate for the Town. The results of the survey were overwhelming. The vast majority of the residents would like to see restaurants, bakeries, hardware stores, and professional offices located along Main Street and Clayton Avenue, and any fast food restaurants, grocery stores or retail stores located along Route 113. The respondents were not as supportive towards bars or liquor stores and were vehemently opposed to big box stores and industrial buildings.
2-3b Vacant Lands The Town has several vacant parcels throughout Town that may be built upon or developed. The majority of these lots are designated for residential use, however, there are a number of parcels along Main Street, Clayton Street and the Route 113 coridor that will accommodate appropriate commercial development. A few large parcels and numerous individual lots remain vacant currently.
16 September 2019 Town of Dagsboro Comprehensive Plan Update 2019
2-3c Annexation (Short-term Growth Area) The annexation of additional parcels into the Town will be considered if the annexation is contiguous with the current Town boundaries, the lands comply with the Comprehensive Plan, public services are available to that parcel, the welfare of the Town is met, and the goals of the Comprehensive Plan are followed by the applicant. The priority annexations for the Town should be those parcels that are currently enclaves and where the parcel is split between Sussex County and the Town.
Map 4 Future Land Use and Annexation indicates the majority of land that could be annexed into the Town is located to the north and southeast of Town with small areas located to the east and west of Town. Dagsboro has, however, identified lands adjacent to the future annexation lands that are considered by Town Planners to be areas of concern. These areas, if developed within Sussex County, could have a major adverse impact on the Town’s public services.
The entire proposed annexation area consists of approximately 782 acres. The Town currently consists of about 1606.50 acres and would grow to approximately 2,388.50 acres should the Town annex all the parcels. The proposed annexation area includes plans to annex 560 acres for residential use, 155 acres for commercial use and 67 acres for institutional use.
2-3d Build-out Capacities A density of four dwelling units per acre (du/acre) is utilized as a base planning number to estimate build-out, evaluate the capacity of infrastructure and facilities, and to provide a framework for a plan of services. It is noted that a density of four du/acre is generally accepted as viable to provide for the efficient provision of sewer and water systems and is likely a worst-case scenario factoring in environmental and physical site constraints, as well as areas necessary for rights-of-way.
With approximately 116.35 vacant developable acres within the Town’s boundaries, 465 additional housing units could be constructed at four du/acre. It is estimated that the residential lands with development potential in the annexation area would result in 1,680 housing units.1 Together, this would be a potential for 2,145 additional housing units. It is projected that at full build-out, including vacant developable acres and residential acres in the proposed annexation area, there would be a population increase of 5,448 persons assuming 2.54 persons per household.2
2-3e Area of Concern (Long-term Growth Area) The Town of Dagsboro recognizes that land use and development activities outside the Town’s boundaries have the potential to impact the Town and its residents. Map 4 Future Land Use and Annexations identifies an Area of Concern wherein the Town would like to have some degree of input or control on land use and development activities. It consists of
1 This figure was determined by taking the total residential lands within the annexation area, 560 acres, and subtracting 25 percent from the 560 acres to account for infrastructure. 2 U.S Census’ 2017 American Community Survey data.
September 2019 17 Town of Dagsboro Comprehensive Plan Update 2019
approximately 4,178 acres of primarily agricultural land with some strip residential and a few subdivisions.
The Town of Dagsboro requests that it be notified of any land use proposals submitted to Sussex County relative to this area and that the County work with the Town to incorporate any issues and input. Additionally, Dagsboro agrees to notify and coordinate with Sussex County if it becomes aware of any development activity in this area. Dagsboro envisions that some of these parcels may be considered for annexation into the Town in the mid- to long- term future.
Although Dagsboro prefers that developable lands within the Town be developed first and has identified an annexation area consisting of lands most likely to be annexed within the 10- year planning period, Dagsboro has no legal tools to ensure that development occurs in this fashion. As a result, if landowners of parcels within the Area of Concern (as defined above) apply for annexation, Dagsboro would like the opportunity to consider them for annexation if the parcel meets the following criteria:
• It is adjacent to Dagsboro’s Town boundaries. • It is a logical extension of the Town and the utility system. • It does not create any enclaves. • It can be served with water and sewer without reducing water and sewer capacity of developable lands already within the Town or already slated for annexation. • Any annexation within the secondary areas will involve notification of the Office of State Planning Coordination and require a plan of services.
2-3f Utility Capacity Given that development cannot happen without the proper infrastructure in place, the Town of Dagsboro has taken the required steps to improve its water and sewer infrastructure for the current and future residents. This will be discussed in further detail in Section 2-4.
2-3g Relevance with Other Planning Documents In designating the Future Land Use and Annexation Areas, the Town considered the future land use and annexation plan with State Strategies, the Sussex County Plan, Town of Frankford Comprehensive Plan (2007) and the Town of Millsboro Comprehensive Plan (2009), the State Transportation Plan, and other relevant State programs and policies.
The State of Delaware, in its Investment Strategies Map, has indicated the entire Town as being in a Level 1 or Level 2 investment area. The Areas of Concern for the Town are indicated as mostly Level 3 (See Map 5 State Investment Strategies). Although Levels 1 and 2 are the strategic areas for development, Level 3 areas have the potential to be developed. Due to the limits of finite financial resources, state infrastructure spending on “hard” or “grey” infrastructure such as roads, sewer, water and public facilities will generally be directed to Investment Level 1 and 2 areas during this planning period. The State will consider investing in these types of infrastructure in Investment Level 3 areas once the Investment Level 1 and 2 areas are substantially built out, or when the infrastructure or facilities are logical extensions of existing systems and deemed appropriate to serve a particular area.
18 September 2019 Town of Dagsboro Comprehensive Plan Update 2019
Sussex County has updated their comprehensive plan and has indicated that the area for future development around the Town of Dagsboro is similar to what the Town considers as their future annexation area.
As shown on Map 4 Future Land Use and Annexations, there is an overlap between the Town of Dagsboro Area of Concern and the surrounding municipal annexation areas of the Town of Millsboro and the Town of Frankford.
Critical Issues and Future Needs
The Town has made great strides in the adoption of three zoning districts to assist the development of land currently in Town as well as future lands annexed into the Town. The Residential Planned Community District (RPC), Cluster Residential District (CRD) and Town Center District (TC) were created to give developers flexibility in design, while maintaining the character of the Town. Since the adoption of the first Comprehensive Plan in 2003 and updated plans in 2009 and 2015, the Town has worked diligently in implementing the Plan’s recommendations and to address the future needs as milestones toward the continued development of the Town. To date, the majority of the recommended implementation tools and strategies from the 2003, 2009, and 2015 plans have been completed or adopted by the Town.
Recommendations
1. Review the list of permitted uses in the Town Center (TC) District and the Highway Commercial (HC) District to ensure alignment with the desired uses revealed through the public opinion survey.
2. Develop a Memorandum of Understanding (MOU) with Sussex County to notify, coordinate and jointly address issues related to land use and development activities within the annexation area and Area of Concern as shown on Map 4, as well as the allocation of sewer EDUs. The MOU should ensure shared land use decisions, require the two jurisdictions to stay informed on development surrounding the Town, and ensure that development is compatible with the character and scale of Dagsboro.
3. Develop a Memorandum of Understanding (MOU) with the Town of Frankford and Town of Millsboro. The MOU with each municipality would define coordination on development activity within the shared annexation areas and areas of concern. The MOU should ensure shared land use decisions that may impact each other, require each to stay informed on development surrounding the Towns, and ensure that adjacent development and land uses are compatible with each other.
4. Revise the Dagsboro Subdivision Ordinance to require that annexations follow parcel boundaries, and if annexation of an entire parcel is not desirable, Dagsboro should require it to be subdivided so that corporate boundaries and property lines are coterminous.
September 2019 19 Town of Dagsboro Comprehensive Plan Update 2019
2-4 Utilities, Community Facilities & Services
Adequate public facilities and services are essential for the betterment of the community as well as any future growth.
Goals
• Ensure utilities, community services, and facilities are adequate to serve the existing community as well as planned future growth.
• Phase-in all new development based on the availability of adequate infrastructure.
2-4a Utilities
Water
The Town of Dagsboro currently has an agreement with the Town of Millsboro to supply potable water to the Town. The current agreement with the Town of Millsboro is to purchase up to 90,000 gallons of water per day. The installation of the Town’s water system was completed in 2006. Water is supplied through a 12” water main connection to the Town of Millsboro’s water system, which reduces down to 10” and traverses the Town. Water pressure is maintained using a 500,000-gallon elevated storage tank located on Waples Street. By installing the 10” water main, the Town can now adequately supply potable water to all of the Town’s residents with a capacity for future connections. Currently, the Town has 413 residential customers and 23 commercial customers totaling out at 436 units of service. In 2018 the Town’s average water consumption was 1.6 million gallons per month. This gives an approximate average of 122 gallons per day per customer or 53,333 gallons per day which equates to 59.3 percent of their agreed upon water allocation from the Town of Millsboro.
It should be noted that the average daily water use of a Dagsboro residence is well under the 250 gallon per day value that the plan uses when considering service capacities. In the prior Comprehensive Plan, the usage was calculated at roughly 2.2 million gallons per month and there is a bevy of possible reasons for this discrepancy but the most likely is the installation of a new metering system near the northern Town limits. The implementation of that system allows for more accurate readings and could very likely be the explanation for why, with an increase of 116 residents, the Town is using marginally less water than previous years.
The agreement between Millsboro and Dagsboro, which began on December 2, 2002, is set to terminate at the end of the 2022 calendar year. The Town is evaluating several options for provision of its water supply needs, including purchase agreements from private water utilities. There is no possibility of an earlier separation from the agreement with Millsboro due to the language of the agreement stating there be a 10-year minimum for any changes. Moreover, there is a second stipulation of six months prior notification needed for annulment.
The Artesian Water Company is currently installing three potable water wells and is proposing a water treatment facility and 1 million-gallon storage tower to serve part of its existing
20 September 2019 Town of Dagsboro Comprehensive Plan Update 2019 service territory. The site is located on a 15-acre site on Armory Road. The Town is in discussions with Artesian as a possible alternative water provider.
Sewer
The Town’s sewer system is operated by Sussex County and is part of the Sussex County Unified Sanitary Sewer District. Wastewater is currently treated at the Piney Neck Regional Wastewater Facility, which is located on the north side of Piney Neck Road approximately 0.2 miles west of Adams Road. The facility was created through a referendum approved by the citizens of Dagsboro and Frankford, and in 1988 Sussex County passed a resolution establishing the Dagsboro-Frankford Sewer District. The County has recently elected to combine the individual sewer districts into the above mentioned Unified Sanitary Sewer District.
The existing infrastructure serves the Town of Dagsboro and Frankford, the old and new high schools, Frankford Elementary School, and some additional growth around the towns. The wastewater system is a gravity feed system with multiple lift stations placed in strategic locations to serve the existing and new areas. The sewer mains are connected to multiple force mains which lead to the Piney Neck treatment facility. Piney Neck is a spray irrigation facility utilizing 19 acres of Loblolly Pine forest adjacent to the plant, and 38 acres of spray crops. The current facility has the capability to process 200,000 gallons per day.
The Town is not allocated any specific amount of capacity and shares the total availability with the other users within the service area. The County uses an Equivalent Dwelling Unit (EDU) method to determine the property owner’s sewer assessment. Sussex County currently uses 250 gallons per day per EDU for planning purposes for all new connections.
Critical Issues and Future Needs
Sewer capacity or the availability of sewer could have a major impact on Dagsboro and the surrounding areas growth rate. The Piney Neck Wastewater facility does not allocate a certain amount of capacity to any specific area, therefore if a developer chooses to build a large subdivision within the Piney Neck area; it is possible that the availability of sewer discharge for Dagsboro subdivisions could be denied until Sussex County has the opportunity to expand the Piney Neck Facility.
Recommendations
1. Continue planning for alternative water supply options.
2. Coordinate with the Public Service Commission to expand the Certificate of Public Convenience and Necessity (CPCN) service territory to include annexation areas.
3. Collaborate with the Sussex County Engineers and the Town of Frankford to ensure they have the most current population and water consumption data on hand at the Piney Neck Wastewater Facility.
September 2019 21 Town of Dagsboro Comprehensive Plan Update 2019
4. Begin development of a systematic plan for integrating a new potable water system with considerations based around water availability in specific areas and/or the capabilities of the current infrastructures ability to handle either increased or decreased pressures both within the ground level system and within the pressurizing tanks above.
2-4b Public Safety and Community Services
Police
Sussex County operates the Emergency Operations Center (EOC), giving the Town access to a three-digit call number. The 911 system enables EOC to dispatch the local police and Delaware State Police to emergencies within the Town. The police force for the Town of Dagsboro consists of a full-time police chief and three officers. With the assistance of the Delaware State Police, the Town of Dagsboro has 24-hour emergency coverage. There is also a code enforcement role that is currently being carried out by the Town administer.
Fire Prevention
The EOC also dispatches the Town’s Volunteer Fire Department and Ambulances when needed. The Town currently has one Volunteer Fire Company with 69 active members and 29 auxiliary members. All personnel respond from 28331 Clayton St. which is the newly constructed station. The department has various apparatus including multiple ambulances. Other response vehicles include SUV’s, a rescue boat, and multiple MVC response engines. In 2018, the members of this Volunteer Fire Department responded to 199 fire calls and 599 ambulance calls.
Sussex County EMS operates as a non-transporting EMS agency providing paramedic services using eight specially designed ALS rapid response vehicles and two District Supervisors. To ensure the fastest response, each vehicle is based at one of eight paramedic stations located throughout the County. Station 103 is the primary response station for Dagsboro and located just north of the Town. The ambulance transportation of patients is provided by 21 BLS transport services (with a SCEMS Paramedic on-board if the patient meets ALS criteria), or by ALS helicopter service provided by the Delaware State Police and Life Net, which are both stationed in Sussex County.
Community Services
The Town Hall and Police Station are centrally located at the intersection of Main Street and Clayton Street. The Town employs a Town Administrator, Administrative Assistant, part-time Finance Clerk, a part-time Maintenance employee, and four police officers. The hours of Town Hall are from 8:30 a.m. to 4:30 p.m., Monday through Friday, excluding holidays. The Town Administrator is responsible for a wide array of the Town’s day-to-day activities and
22 September 2019 Town of Dagsboro Comprehensive Plan Update 2019 longer-range functions. A few of the more important functions of a Town Administrator include: payroll, grant writing, department supervisor, personnel services, special projects coordinator for Town Council, and code enforcement, as well as other duties. The Administrative Assistant handles building permits, as well as water and tax billing. The Finance Clerk is responsible for accounts payable and accounts receivable.
The Town has three facilities available for community meetings or banquets: Bethel Center on Clayton Avenue, National Guard Armory on Route 20, and the Volunteer Fire Hall on Clayton Street. Typically, the meetings are held in the Bethel Center. The Town Hall is used for office space only and its small size will not accommodate large community meetings. Therefore, the municipal meetings for Town Council, Planning Commission and Board of Adjustment are scheduled and held in other facilities.
Postal Service
The United States Postal Service has an office located at 102 Clayton Street, which is near the Town’s main intersection of Main Street and Clayton Street.
Libraries
Sussex County operates two libraries in the area. One library is in Frankford and the other is in the Town of Millsboro, both of which are accessible to the residents.
Education
The Town of Dagsboro is within the Indian River School District, which serves southeast Sussex County. The Indian River School District geographically is the largest school district in the State of Delaware and is also one of the largest by number of students. Students from the Town currently attend schools located in the surrounding area. Students in grades K-5th attend John M. Clayton Elementary School, which is on Clayton Avenue in Frankford. Students in grades 6th-8th attend Selbyville Middle School in Selbyville, which is about seven miles from Town, and grades 9th-12th attend Indian River High School located within the Town of Dagsboro. There are several private elementary and secondary schools within twenty miles of the Town.
Medical Services
There are two dentists located just outside the Town. Additionally, there are several medical facilities located in the Town of Millsboro where residents can seek medical attention. The nearby hospitals include Beebe Hospital in Lewes (23 miles east), Nanticoke Hospital in
September 2019 23 Town of Dagsboro Comprehensive Plan Update 2019
Seaford (25 miles west), Peninsula General Hospital in Salisbury, MD (27 miles southwest), Atlantic General Hospital in Berlin, MD (18 miles south) and the Bayhealth Sussex Campus (30 miles north).
Trash
The Town does not have a trash service contracted for the residents. Each individual resident must contract for trash removal services independently.
Critical Issues and Future Needs
Residents were asked to rank the types of services, housing developments and businesses they would prefer to be in Town. The majority of residents said they would like a medical facility, town trash service, and a town library. Throughout the survey, a medical facility consistently ranked as one of the highest priority services requested.
The Town currently has four full-time police officers. They are currently making plans to add a K-9 unit to assist in drug enforcement. Residents would like to see a larger police force, especially during months of heavy congestion. The current conditions require the State Police to respond for emergencies when the Town Police is not available. This requires emergencies to be prioritized by the State Police, which could cause some community members to wait for long periods of time before seeing a police officer. In addition, an increase in population and traffic due to growth will certainly increase the need for a greater police presence. Town Police do not currently have an active bicycle patrol, but they do plan to start summer bike patrols again in the future. This would help with increasing police presence during the summer months that bring heavy traffic congestion.
The current Police Department building adjacent to Town Hall does not have the adequate space to accommodate a larger police force. This may present a security risk for the storage of evidence and the keeping of security weapons.
Recommendations
1. Develop a plan for the replacement of any police officers leaving the employment of the Dagsboro Police Department either by retirement or relocation.
2. The Town currently does not have a public works department for the maintenance of the water system, streets, and sidewalks. The Town uses an outside utility vendor for maintenance of the water system. As the Town continues to grow, the creation of this department with qualified personnel will be vital.
Stormwater Management
The Town currently handles all the stormwater functions for the municipality. The Planning & Zoning Commission, Town Administrator and Town Engineer all have a role in plan review of stormwater management plans. The Town Engineer provides oversight of new construction of facilities, as well as inspections and maintenance of facilities. Maintenance responsibilities are governed under the State regulations and the stormwater management plans are
24 September 2019 Town of Dagsboro Comprehensive Plan Update 2019 reviewed by the Sussex Conservation District (SCD). In addition to plan review, the District inspects the construction and compliance of approved plans and conducts annual inspections of permanent stormwater facilities. In recent years, the Town has been working towards improving drainage. In 2015 the Town completed a Stormwater Infrastructure Inventory. The project mapped the location of existing stormwater infrastructure, and in turn revealed areas that see regular flooding coincided with areas suffering from insufficient drainage. The Town created a priority project list and is moving forward with a drainage improvement project.
In 2018, the Town conducted a drainage study of the northern area of Town along Warrington Street and intersecting streets. Engineering plans for proposed improvements were completed and the Town is now working with local legislators to fund the construction. This project will alleviate drainage problems, implement water quality BMP’s, and reduce minor flooding.
Critical Issues and Future Needs
Currently, the Town experiences flooding during major rain events. Much of the flooding occurs within the Town Center District. The stormwater management infrastructure in the older, core section of Town needs updates and replacement of aging infrastructure. Older sections of Town rely on a series of natural drainage, tax ditches, agricultural ditches and DelDOT storm drains to provide stormwater management and general drainage. As a result, pollutants are free to enter both surface waters and the underground aquifers.
The Town recognizes that most of the statewide and local stormwater management regulations in the past have focused on regulating new development. However, many stormwater runoff problems are associated with existing developments that were built prior to the adoption of the recent source water protection and non-point pollution control strategies. The Town further recognizes that traditional stormwater management technologies significantly alter the natural hydrology of a site, which has regional impacts. The Town has developed a Downtown Development District Plan which addresses stormwater related issues in the town center. As included in the Downtown Development District Plan, the Town encourages the use of BMP’s in the redevelopment occurring with the Town Center District. The Town should continue to be diligent in enforcing the flood regulations to minimize future flooding.
Recommendations
1. Continue to coordinate with the SCD in ensuring new developments adequately address how stormwater quantity and quality treatment will be achieved.
2. Continue working with DNREC and the SCD to develop stormwater management practices in the Town that address stormwater runoff impacts within the Pepper Creek and Inland Bays watershed. These efforts should strive to manage stormwater runoff in the most efficient and effective manner while respecting natural features and constraints. New developments that design, construct, and maintain BMPs would minimize impervious coverage and reduce the need for permanent stormwater management basins. BMPs remove many of the impacts of stormwater runoff, prevent erosion, and
September 2019 25 Town of Dagsboro Comprehensive Plan Update 2019
filter sediment, nutrients and pollutants. Example BMPs include, but are not limited to, bioretention facilities, filter strips and biofiltration swales.
Parks, Recreation and Open Space
Katie Helm Town Park is located along Main Street. The park is for public use and the location for Town events such as the annual Christmas festivities. The park includes amenities such as playground equipment, benches, open space, passive recreation areas, and interpretive displays. Indian River High School and the John M. Clayton Elementary School are located between the Town and Frankford and have several athletic fields and courts available for public recreational use.
Dagsboro is also the recipient of several grants from the Delaware Department of Forestry. These monies were allocated by the Town to continue its designation as a “Tree City” which was acquired through the Arbor Day Foundations program “Tree City USA.” Over the years, the grant funding has allowed the Town to plant trees and shrubbery in Katie Helm Park as well as plant street trees throughout Town.
There are additional outdoor recreation opportunities within close proximity of Town. Holt’s Landing State Park is located less than 10 miles east of Town and is the closest state park. This 204-acre park became a state park in 1965 and boasts diverse terrain that includes a bay shore beach, grassy fields and hardwood forest. Holt’s Landing is located on the Indian River Bay and includes the Assawoman Canal, a 97-acre canal, with public space along the canal, that connects the Indian River with Little Assawoman Bay to the south. Amenities include a boat ramp, fishing, nature trails, picnicking, a playground, a pavilion, a crabbing pier and restroom facilities. A privately-owned marina operates on a leased portion of the Assawoman Canal and includes a fuel pump and a small boat launching ramp for boaters and visitors.
Delaware Seashore State Park, Fenwick Island State Park and the public beaches in the Towns of Bethany Beach and Fenwick Island are located less than 10 miles from Town. Sussex County maintains the James Farm Ecological Preserve near Ocean View which has a substantial positive impact on local ecology.
The Great Cypress Swamp is located less than two miles southwest of the Town. This area is owned and managed by Delaware Wild Lands Inc., a non-profit conservative organization. Cypress Swamp’s access is limited, as it is a private conservation area. The area contains the northern most stands of Cypress trees in North America.
The updated 2018-2023 Statewide Comprehensive Outdoor Recreation Plan (SCORP) was completed in October 2018. The purpose of the plan is to present outdoor recreation trends and preferences of Delawareans across the State. The State is divided into five regions with
26 September 2019 Town of Dagsboro Comprehensive Plan Update 2019 the Town of Dagsboro being within SCORP Planning Region 5. The highest ranked outdoor activities within that region were walking and jogging, swimming at the beaches, fishing, visiting historic sites, and bicycling.
Critical Issues and Future Needs
Financial consideration must take a priority when creating parks and playgrounds. The long- term success of the Katie Helm Park will be in part of the annual budget prepared by the Town Council and Finance Committee.
Open space for parks and recreation facilities continues to be an important amenity for the Town of Dagsboro. In the Town survey, several residents expressed interest in the need for more community open space. Parks and recreation facilities that are centrally located with easy accessibility would be most beneficial to all residents.
Recommendations
1. Identify more parcels that could be used for municipal or neighborhood open space.
2. Create accessible walkways, bike paths and greenway corridors to get to the parks or recreation facilities. Possibly develop a trails system, connecting Dagsboro to Frankford and Millsboro through pedestrian friendly walkways.
3. Pursue donations from businesses and the community to help fund the development and maintenance of the park and any future parks. Apply for grants concerning the development and maintenance of open spaces such as the Katie Helm Park.
4. Maintain “Tree City” status through the Arbor Day Foundation program by continuing to plant trees and habitat restorative plants.
Economic Development
The Town currently has a variety of businesses ranging in size from owner operated to the largest employer - Indian River School District. These various businesses include retail, professional, general and educational services. Most of these businesses are located along the Route 113 corridor, Clayton Street (Route 26) and Main Street (Route 26/Route 20). The businesses are economically stable in their positions. The newest commercial developments were created with mixed-use commercial activity in mind - they include Clayton Crossing and Savannah Square shopping centers. Both are designed on the concept of having multiple businesses located in proximity to one another to allow customers to travel from business to business on the same grounds. They include a variety of shops and services, and professional offices.
Of the Town’s major businesses, the four largest employers are:
September 2019 27 Town of Dagsboro Comprehensive Plan Update 2019
Table 5: Town of Dagsboro’s Largest Employers Company Number of Employees
Indian River School District 120 Mediacom 55 Royal Farms 23 Southern States 16
The newly established Delaware Botanic Gardens at Pepper Creek, located just outside of Town limits, has the potential to make positive impacts on Dagsboro’s economic development. Situated on 37 acres off Piney Neck Road, the Botanic Gardens are just a few minutes north of Town. Their mission statement is “to create a world-class, inspirational, educational, and sustainable public botanic garden in southern Delaware for the benefit and enjoyment of all.” The first of its kind in Sussex County, the Botanic Gardens will be open to the public year-round.3 The opening of the Botanic Gardens has numerous benefits to the Town of Dagsboro, two of the primary benefits being potential employment opportunities and bringing tourists to Town. The uniqueness of the site is projected to attract locals and tourists. With its close proximity, visitors would have easy access to Dagsboro’s dining and shopping. This in turn could attract new businesses in Town, as well as the redevelopment of vacant buildings and parcels.
Critical Issues and Future Needs
Economic development is one of the top priorities for the Town of Dagsboro. With a growing population, there is a need for more diversity in businesses and services to support current and future residents. The Town strives to support existing businesses while welcoming new businesses. In recent years, the Town has made efforts to specifically address Dagsboro’s economic potential. In 2016 the Town, with the assistance of a Neighborhood Building Blocks Fund Grant and guidance from town planners, finalized the Town of Dagsboro Downtown Development District Plan. The proposed downtown centers around the Main and Clayton Streets and aligns with the existing Town Center zoning district. The Plan discusses the current condition of downtown, the issues holding the Town back from meeting its economic potential, and strategies and incentives to make improvements.
With the establishment of the Dagsboro Business Alliance, which formed as a result of the Downtown Development District Plan process, it is vital that the community focuses on making growth sustainable both within the Town and in surrounding areas. The Town, in partnership with the Dagsboro Business Alliance, should focus on development of the following business types and locations based on the January 2019 community survey:
3 http://www.delawaregardens.org/our-story
28 September 2019 Town of Dagsboro Comprehensive Plan Update 2019
Table 6: Potential Future Business Locations Main Clayton Route Where would you like to see the following businesses located: Street Street 113 Fast Food 8.8% 8.8% 82.5% Family Restaurant 43.5% 33.3% 23.2% Grocery Store 22.7% 14.7% 62.7% Retail Clothing Store 26.3% 18.8% 55.0% Service Station 18.5% 20.4% 61.1% Bakery 57.5% 31.3% 11.3% Professional Office 25.3% 30.4% 44.3% Large Scale Store 5.5% 5.5% 89.1% Hardware Store 28.8% 27.4% 43.8% Research and Development Facility 10.2% 18.4% 71.4% Shopping Center 5.8% 11.54% 82.7% Other 30.0% 33.3% 36.7%
Recommendations
1. Utilize the Town’s Downtown Development District Plan as a guide to redevelopment of the Town Center. The Plan sets forth goals and implementation items that should be re- evaluated.
2. Work closely with the Dagsboro Business Alliance to help maintain existing and attract new businesses.
3. Review the Town’s current Zoning Codes to determine if the permitted uses in the Town Center, Commercial and Highway Commercial Districts strive toward economic growth.
2-5 Transportation
When considering current and potential transportation issues the Town must have a clear idea of where improvements and additional evaluation need to be made. The two issues the Town faces are congestion and lack of pedestrian connectivity. It is the Town’s vision and goal to reduce traffic, including truck traffic, and install sidewalks where there are currently none. It is expected that in the future, Dagsboro will become a more pedestrian and bike friendly community where residents can easily and safely walk or bike to school and other destinations in Town, and passersby will want to stop and visit businesses in Town rather than just passing through on the way to other towns.
The primary streets in Town, which include Main Street, Clayton Street, Vines Creek Road, Armory Road, Piney Neck Road, Hudson Road, and Iron Branch Road, are maintained by DelDOT. All the other streets and sidewalks within the Town are maintained by the Town and funded by the Municipal Street Aid funds from the State and Capitol Improvement accounts established by the Town. Any additional or new streets or sidewalks constructed as a result
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of redevelopment or subdivisions of lands shall be dedicated to the Town of Dagsboro and will be maintained by the Town in a similar manner.
The rail line that runs through the Town is the Indian River Secondary line. Norfolk-Southern, the ownership company, leases the line for operations to Carload Express. On average, two trains travel through the Town on a daily basis hauling grain for the poultry industry and coal for the Indian River Power Plant. The Town should plan for and promote the use of this existing rail line which may prove to be more heavily utilized in the future due to escalating fuel costs. With the increase use of the rail line, which is being seen locally and nationally, the Town should also work with the Dagsboro Volunteer Fire Company in developing a disaster plan in preparation for any potential emergency which may occur in or adjacent to Town.
The Town of Dagsboro, as with other small communities, could be considered a bedroom community. The majority of Town residents are employed in other surrounding municipalities. The larger cities such as Salisbury, MD, Ocean City, MD and Dover, DE, are within a 60-minute commute. The ever-increasing population of commuters is growing, and some will travel a greater distance to enjoy the lifestyle of living in a rural setting and close to the ocean, while working in cities as far away as Annapolis, MD or Wilmington, DE.
Currently, there is no regular fixed-route bus service to or through the Town. DART First State offers Paratransit services for those eligible elderly and disabled residents, as well as those requiring kidney dialysis services. This service is available on a reservation basis. The Roxana CHEER Center also provides weekly transportation for senior citizens. The service destinations include trips to the bank, post office, drug store and grocery store.
The increase in traffic on Route 26 and Route 20 (Main and Clayton Streets, Vines Creek Road) through Town continues to be a problem for Town residents. Currently, these routes serve as the primary routes to the resort towns along the Atlantic beaches. It is estimated that daily traffic counts through the Town of Dagsboro on Main Street approaches approximately half of daily traffic counts on Route 113. However, it is likely that traffic through Town will continue to become more congested until alternative routes and improvements are made to the area’s transportation network. Sussex County has acknowledged that although the seasonal highs tend to escalate traffic numbers to a varying degree they note that “the highest growth in traffic has been on US 113 and SR 1.”
Route 26 is also utilized by delivery and construction trucks servicing the development work in areas near the coastal resorts. There are plans for the Allen Harim Foods Company, a reuse and expansion of the Vlasic Facility located on Iron Branch Road north of Town, and the proposed Southern Delaware Botanic Garden Arboretum, to be located on Piney Neck Road, which could potentially generate more general and truck traffic. It is possible that trucks will find it more accessible to travel through Dagsboro to get to these sites rather than driving through Millsboro, causing
30 September 2019 Town of Dagsboro Comprehensive Plan Update 2019 additional traffic on Iron Branch Road. This direct route for the truck traffic may result in an unsafe traffic condition for the local traffic as well as the pedestrians along the streets.
Critical Issues
The primary issue for the Town is the overwhelming traffic congestion on Route 26 and Route 20. Each year the traffic count continues to rise on Route 26 and Route 20, and while DelDOT is currently working on alternative routes to direct traffic around the Town there is no short-term plan in effect. Despite the feeling of an increase in traffic, according to the 2018 traffic summary report from DelDOT (See Table 7), traffic on the primary through streets within the Town of Dagsboro have decreased. There has been a slight decrease of cars traveling on Main Street compared to the last traffic count taken, however there has been an increase in truck traffic through Town. According to the data there has been a minor increase in traffic on US 113 from Dagsboro north to Millsboro following the major increase that had occurred in the last traffic count. This could be viewed as a current and compounding issue for the Town. It should also be noted that despite the increase of traffic north of Dagsboro limits there has been a decrease at the southern limits of approximately 409 vehicle counts per day.
Table 7: Average Annual Daily Traffic (AADT) on Key Roads (2018)
Year Last Traffic Road Segment AADT Count Group
Clayton Street, US Route 113 to Main St 6,020 2018 8 Main Street, Iron Branch Rd to Vines Creek Rd 15,419 2018 8
US Route 113, South of Dagsboro Limits 30,815 2015 5
US Route 113, North of Dagsboro Limits 22,545 2014 2 Source: DelDOT Traffic Summary Report, 2018
The Town has several key intersections that serve as the primary traffic arteries of the Town. Their function is to move the 17,000 vehicles of intra-town and inter-town traffic each day. However, these streets were not designed to be major thoroughfares but rather access streets to provide access to abutting property. The intersections were never intended to carry the heavy volumes of traffic noted in Table 7, which has caused concern within the Town over safety and efficiency of these intersections. a. The first area of concern is the intersection of Vines Creek Road, Armory Road and Chapel Lane (also known as Prince Georges Avenue). This intersection was part of DelDOT’s capital transportation program improvement project that was completed in 2012. The project improvements included realigning the intersection to remove the current traffic calming lane shift along SR 26 at this intersection and signalization of the intersection. The results of this intersection created a 70-degree angle as Vines Creek Road intersects traffic traveling north bound. The project also resulted in the creation of an intersection that curves at the crossroads of Chapel Lane and Armory Road thereby
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not creating a straight through intersection. The intersection is controlled by a DelDOT traffic signal. The signal is not equipped with a directional signal allowing traffic to turn left onto Armory Road from the west bound lane of Vines Creek Road or right from Vines Creek Road from the east bound lane. Further complicating the intersection, the east bound traffic on Vines Creek Road trying to turn onto Armory Road is directed to a short, narrow turn lane that is part of the road shoulder. This narrow turn lane creates a traffic hazard for larger vehicles attempting to make the right turn and its short length prohibits the smaller vehicles from merging onto the turn lane in a timely manner without utilizing the roads shoulder. While the design and construction of this intersection at the time it was built was a benefit to the Town and through traffic, it has since become a hazardous intersection. The heavy traffic volume located on Vines Creek Road and Armory Road, and the timing of the traffic signal creates long lines of vehicles trying to enter onto or exit from Vines Creek Road. b. The second area of concern is located at the intersection of Iron Branch Road, Main Street and Hudson Street. While Iron Branch Road has a right turn lane, vehicles trying to enter onto Main Street and turn left continually wait for long periods of time especially during the tourist season, thereby creating traffic congestion and causing the right turn lane to become inaccessible. Further complicating this intersection is Hudson Road. The intersection at Hudson Road, if entering from Main Street, is located approximately 65 feet from Main Street off Iron Branch Road. While Iron Branch Road is controlled by a stop sign the traffic on Main Street does not have any traffic control devices, thereby creating a safety problem for vehicles entering Main Street. All issues will be exacerbated if general and truck traffic continues to increase. c. The development of the Delaware Botanical Gardens at Pepper Creek, as well as new residential development along Piney Neck Road, will also contribute to increased traffic. In comments made by the County Planning and Zoning Commission it was noted that comparing the proposed project to similar botanic gardens in other states, approximately 83,000 should be expected to visit the site annually. The County Planning and Zoning Commission concluded that the site would have little to no impact on traffic or the nearby roadways. d. There are several intersections in Town that need to be evaluated for additional safety improvements. The intersections of Main and Clayton Streets and Route 113 and Route 26 have seen many accidents in recent years. For example, the intersection at Route 113 and 26 has issues with vehicles and trucks getting stopped at the red light in the median of this intersection. The Town will need to work with DelDOT to further examine these intersections, identify needed safety improvements with better functionality, and develop
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a plan to implement the necessary improvements. Some improvements are starting to be planned for due to the development of the new Royal Farms location. e. There are several streets and sidewalks throughout Town that need maintenance and repair. The Town has identified gaps in the sidewalk network, however, additional studies or surveys need to be completed to help the Town prioritize areas in need. A lack of funding for street projects is the main reason the Town has been unable to make all the needed repairs. The Town should consider implementing a capital improvement plan to include street projects so that the Town can establish a schedule and a plan for funding needed street repairs and improvements.
Recommendations
1. The Town should continue to improve the Town Center District and work with DelDOT in the consideration of the downtown streetscape. This redesign will create a traffic calming effect plus add a pedestrian and bike friendly environment for the businesses located in the Town Center District. The Town and DelDOT have previously worked on a streetscape project for the intersection of Main Street and Clayton Avenue, and the southern third of Main Street. This project was Phase I of a larger streetscape plan for Main and Clayton and was constructed early 2009. In 2012 Phase II of the streetscape project was completed for Main Street, which included new sidewalks and street trees. Phase II improvements extended from Town Hall to just past Katie Helm Park. Additional streetscape improvements should be conducted throughout the Town Center District, specifically Main Street north of Clayton Street.
2. The Town should complete an updated street assessment to identify streets or segments in need of repair and improvements. The assessment should include a street prioritization to assist the Town in planning for future street projects. The Town should also identify a mechanism to fund these street repairs and improvements. The Town could consider using a percentage of building permit fees or impact fees to help fund the street repairs. These funds could be held in a transportation fund to be available for scheduled projects and emergency repair projects.
3. The Town should complete a sidewalk assessment to determine current conditions of existing sidewalks and identify where there are missing segments. The Town should also draft a sidewalk policy that would develop sidewalks where missing and identify maintenance requirements and construction specifications. The Town should also seek sources of funding assistance to extend and repair sidewalks where needed.
2-6 Community Character and Design
The Town of Dagsboro’s central location amidst the larger Towns of Millsboro, Salisbury and Ocean City, MD, and the Delaware beaches helps give it its distinct characteristic.
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The Town of Dagsboro is a small, quiet community which gives it its added atmosphere and charm. The Town is primarily comprised of single-family homes, most of which were built before the 1960s. New developments have added townhouses and duplexes to the housing stock. This mixture of housing allows for a range in housing costs and gives the opportunity for more individual home owners. Most of the structures throughout the Town are wood framed with wood or wood-like siding. The few brick structures are mostly for commercial or public uses such as the Town Hall, Clayton Theater, bank and post office. There is one larger scale commercial development located along Route 113, but the overall height and scale of the buildings is in proportion to the rest of the community.
Historic Preservation
Although the Town does not currently have a historic district, it does have the potential to create one. In 1998, an area was identified as the potential historic district for the Town. However, this district has yet to be formalized by the Town. Dagsboro has a few historic structures like Prince George’s Chapel built in 1757, which is the only building in Dagsboro to currently be listed on the National Register of Historic Places. The Clayton Theater built in 1948 is a vintage style movie house theater with one screen and a stage which plays first- run movies. This theater is one of many structures that have the potential to be listed on the National Register. It is important to look further into identifying historic structures within the town boundaries, because the history of a town gives residents a sense of place and connects them to the past.
Design Standards
In March 2008, the Town of Dagsboro: Development Design Standards was adopted to create guidelines for new development and redevelopment. The purpose of these new design standards is to create an attractive and charming community that meets the Town’s visual aesthetic objectives. Some of the design standards objectives include building upon the historic heritage, encouraging creative designs for sites and buildings, and supporting pedestrian movement. The design elements are broken into types of development categories of residential, multi-family residential, commercial, industrial and institutional, signage, and utilities and stormwater. It is the hope that the character and aesthetic of the Town will be preserved if these design standards are followed.
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Critical Issues
The Town of Dagsboro has several historic structures, many eligible for listing on the National Register of Historic Places. Past window surveys determined the Town had enough eligible historic structures existing to create a historic district. Currently, only Prince George’s Chapel in Dagsboro is listed as a historic building. More research needs to be done on the possible historic buildings within the Town to help move ahead with creating a historic district. The window survey should be updated to ensure it is still an option. Developing a historic district will only add more to the character of the Town and preservation of historically and architecturally significant structures.
With the possibility of the Town growing and expanding, it is easy to think that the Town could lose some of its identity due to the loss of historically and architecturally significant resources. It is important to reinforce the use of design standards for rehabilitation, redevelopment and new development.
Recommendations
1. Create an inventory of the possible historic structures within the Town that could be eligible for the National Register of Historic Places. This will also help in possibly moving forward in creating a historic district. The Town should work with Sussex County and the State Historic Preservation office to conduct surveys.
2. Continue to reinforce the Development Design Standards to keep with the aesthetics of the Town and preserve the overall Town character.
3. Keep enforcing the tree and woodland protection ordinances to preserve the greenery in Town.
4. Maintain Tree City U.S.A status.
2-7 Redevelopment
Over the years, Dagsboro has been able to maintain economically stable businesses like the Clayton Theater and Serendipity Quilt Shop, however, the Town has had some difficulties in attracting new businesses. The Town is working on developing more ways to keep the businesses in Town successful and attractive to residents as well as visitors, while also welcoming new businesses.
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Encouraging revitalization of the downtown (Main and Clayton Streets) is one way the Town is working to attract new businesses. The Town also supports infill for mixed-use development and the reuse of existing structures for commercial use. Not only does the Town want to encourage redevelopment in the downtown area but also in the Highway Commercial District along Route 113. In the Highway Commercial District, the additional development of retail services is ideal.
The Town has rezoned areas like Main Street, Clayton Avenue and Vines Creek Road. These areas originally varied in their zoning with most of the zoning being commercial. The areas have been rezoned to Town Center which encourages mixed-use development, while offering flexibility for lot size, coverage and parking requirements are necessary to all redevelopment of the existing Town Center. There has been some discussion about the possibility of a downtown municipal parking lot to make patronizing downtown businesses more convenient and encourage visitors to walk through Town. The Town has identified several parcels which could be ideal sites for a future municipal parking lot.
Town wide design standards are now required for all new and substantially improved structures. Some of the new design standards include parking design and signage regulation and landscaping requirements. Other building requirements for new structures are making sure they are built close to the street and sidewalks with parking lots behind or to the side of the primary structures. Commercial parking lots are also now required to have considerable landscaping.
Critical Issues
There are high volumes of traffic through Dagsboro, especially during the summer months. With traffic, this discourages many people from stopping to frequent businesses in Town.
For older structures there are certain requirements that must be followed to preserve them. Several older residential structures need to be renovated, but for the most part, Dagsboro’s housing stock is in good condition with only a few substandard units. Many residents are not able to keep up with the maintenance of these structures, whether it is due to their age, disabilities or being unable to afford repair charges.
There are several housing programs administered by various agencies that may help some Town residents maintain their homes. The Delaware State Housing Authority runs the Housing Rehabilitation Loan Program, which provides a three percent loan either as a conventional loan with regular repayment schedule or as a deferred lien registered as a loan on the property to be satisfied at the time of resale. Owners of buildings contributing to the Dagsboro Historic District, if adopted, are eligible for state and federal tax credits for rehabilitating their buildings. Applications and information for both are available through the State Historic Preservation Office. There are some non-profit agencies that provide a wide range of housing assistance and counseling programs, including Interfaith Housing Delaware Inc., and Community Housing Inc. Also available, Sussex County provides Community Development Block Grant (CDBG) monies for home repair and improvements.
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Recommendations
1. Encourage businesses to develop along the major streets for commercial uses. Some ideal businesses would be family restaurants.
2. Support incentives identified in the Town’s Downtown Development District Plan.
3. Consider providing maintenance support to owners of older homes such as: a. Start a library of information on the repair and upkeep of older homes. b. Recognize the well-maintained and newly repaired properties. c. Investigate low or no cost loans for repairs to historic homes for the elderly, disabled or low-income homeowners. Advertise these available resources to all residents by providing informational meetings. d. Apply for grants to help assist in needed preservation to the older structures. e. Publish and distribute a brochure to all homeowners explaining ordinance requirements for maintenance and listing resources for help. f. Ask community organizations to volunteer their time to help with residential maintenance needed. g. Conduct informational workshops and meetings to inform community members about state and county programs and services available to them that will help with the maintaining and rehabilitation of their homes and businesses.
4. Consider requests for reuse of older homes on a case by case basis working with the State Historic Preservation Office and the Sussex County Historic Preservation planner.
2-8 Environmental Protection
2-8a Environmental Resources The Town of Dagsboro receives much of its natural beauty from all the environmental resources found in and around the Town. Pepper Creek and its tributaries run through the center of Town and along the northern boundary, creating a wide 100-year floodplain zone through the Town surrounding the waterway, as well as some areas of forested wetlands. Just to the northeast of Town, a large area has been designated as an excellent recharge area. These recharge areas are important for the role they play in mitigating flooding and maintaining the quantity and quality of water that recharges into the underground aquifers from which the Town draws its drinking water.
The Town of Dagsboro is located within the greater Inland Bays drainage area. Under Section 303(d) of the 1972 Federal Clean Water Act (CWA), states are required to identify all impaired waters and establish total maximum daily loads (TMDLs) to restore their beneficial uses (e.g., swimming, fishing, and drinking water). A TMDL defines the amount of a given pollutant that may be discharged to a water body from point, nonpoint, and natural background sources and still allows attainment or maintenance of the applicable narrative and numerical water quality standards. A TMDL is the sum of the individual Waste Load Applications (WLAs) for point sources and Load Allocations (LAs) for nonpoint sources and natural background sources of pollution. A TMDL may include a reasonable margin of safety (MOS) to account for uncertainties regarding the relationship between mass loading and resulting water quality. In
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simplistic terms, a TMDL matches the strength, location and timing of pollution sources within a watershed with the inherent ability of the receiving water to assimilate the pollutant without adverse impact. Moreover, reducing the pollutants to the level specified by the TMDL(s) will ensure that a water body meets the water quality criteria and goals in the State Water Quality Standards.
A Pollution Control Strategy (PCS) is an implementation strategy that identifies the actions necessary to systematically reduce the pollutant loading rate for a given water body and meet the TMDL reduction requirements specified for that water body. A variety of site- specific best management practices (BMPs) will be the primary actions required by the PCS to reduce pollutant loadings. The pollutants specifically targeted for reduction in the Inland Bays watershed are nutrients (e.g., nitrogen and phosphorus) and bacteria. The PCS for the Inland Bays was approved on November 11, 2008 and is now a regulatory directive containing enforceable provisions.
The Town of Dagsboro is located within the greater Inland Bays drainage (high nutrient reduction area). The Inland Bays drainage is assigned a range of nutrient (e.g., nitrogen and phosphorus) and bacterial TMDL load reduction requirements that, as mentioned previously, must be met in order to meet the State Water Quality Standards (See Table 8).
Table 8: TMDL Nutrient (Nitrogen and Phosphorus) and Bacteria Reduction Requirements for the Inland Bays Inland Bays Drainage N - reduction P - reduction Bacteria-reduction (high reduction area) requirements requirements requirements Indian River Bay watershed 85% 65% 40% Fresh; 17% Marine
DNREC oversees the State’s Source Water Assessment Protection Program (SWAPP), which is primarily aimed at protecting water supplies from contamination. Central well protection areas and excellent recharge areas have been designated by DNREC. Sussex County has a source water protection ordinance that was recently adopted to meet a requirement of the State Source Water Protection Law of 2001. The ordinance is primarily designed to minimize the threats to major water supply wells from pollutants. The best type of land use around water supply wells is preserved open space or low-density residential development. Ideally, the amount of impervious coverage around major water supply wells would be minimized to allow the groundwater to be recharged. Currently, two private water supply wells are found within the Town boundaries, however, neither is being used as drinking water sources.
The 2007 Sussex County Comprehensive Plan identified a large area of the County near the coast as an Environmentally Sensitive Developing Area. Dagsboro bordered the designated area on the northeastern boundary of Town. The County defined the area as a location for new housing as well as an area that contains ecologically important resources that help absorb floodwaters and provides a place for wildlife habitat and overall health of the Inland Bays. It appears the County has made some changes to that defined area in their updated 2018 Comprehensive Plan. The name has been revised from Environmentally Sensitive Developing Areas to Coastal Areas. It did not mention that the area boundaries have changed. The plan also notes the Environmentally Sensitive Development District Overlay Zone
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(ESDDOZ) is to be updated to be consistent with the County’s comprehensive Plan. The Town should stay up-to-date on any changes made to this district. There are still potential concerns of stormwater runoff flowing into and polluting waterways. It is important for Dagsboro to be aware of how the Town might be affected by this area. In the future, Dagsboro might have the opportunity to annex land to the north of Town and would then be affected by ESDDOZ and the requirements for this area.
Regulatory protection of wetlands (tidal and nontidal) is mandated under Section 404 provisions of the Federal Clean Water Act through the United States Army Corps of Engineers (USACE). Certain other wetlands (mainly in tidal areas) are accorded additional regulatory protection under Title 7, Chapter 66 provisions of the State of Delaware’s Code.
Dagsboro is proud to say that since the 2003 Plan, the Town has been named a Tree City U.S.A. In 2007 the Town enacted several progressive ordinances to protect the greenery found spread throughout their community. One of these protection plans is a Woodland Protection Ordinance. The second is a landscaping, screening and buffering ordinance that has been added to the Town Zoning Code. This prohibits substantial clearing of any forested tracks and requires the replanting of a percentage of mature trees that were removed. It also requires that trees are planted as buffers between land uses and added to any new or expanded parking areas. The last ordinance is a woodlands preservation ordinance that works towards protecting the existing trees by restricting clearing of trees and requires replanting.
2-8b Climate Change Incorporating impacts due to climate change is an increasingly important component to a comprehensive plan. Sussex County and other state agencies like DNREC have identified three potential vulnerabilities linked to climate change: sea level rise, heavy precipitation, and increase in temperatures. Of the potential vulnerabilities, sea level rise is not a high priority concern for the Town of Dagsboro due to its location. Increases in temperatures are a concern as they affect public safety, and in the long-term, could affect infrastructure. The immediate concern, to which the Town is already seeing the effects of, is heavy precipitation. In recent years, the area has seen an increase in the number of severe weather events from heavy rainfall to hurricanes. During these events residents have witnessed flooding along Main Street. In a few severe instances sections of streets were impassable and needed to be closed off until the water receded. With frequent, and unpredictable, weather events causing flooding it is important that Dagsboro assess vulnerabilities to the environment, commercial and residential structures, and transportation, and plan for these more frequent heavy rain events.
Environment
In 2014 Dagsboro’s Town Council adopted an updated Floodplain Management Ordinance in accordance with revisions made to flood maps by the Federal Emergency Management Agency (FEMA). Several special flood hazard areas were identified within Town boundaries. The 2016 maps substantially increased the area of Town within the AE Flood Zone. FEMA determined the flood hazard areas to be along Pepper Creek and its tributaries, the area near the intersection of Main and Clayton Streets, and a large area in the northern area of Town in
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the vicinity of Warrington and Waples Streets. The purpose of the floodplain ordinance is to minimize flooding and damage associated with flooding. The areas identified on FEMA’s maps are the same areas seeing major flooding during heavy rain. Continuing to implement this ordinance, along with drainage improvements, will work towards that purpose of reducing flooding and any associated damages.
Commercial and Residential Structures
Flooding can also have major impacts to commercial and residential structures, especially older buildings. As stated above, much of the flooding that has occurred within Dagsboro’s Town Center District, the same area designated as flood hazard areas. There are several houses located within the Town Center District. These houses have been impacted by nuisance flooding in the past and have a high potential for greater and more substantial future damage. The area around Main, Warrington and Sussex Streets and Fork 1 of Pepper Creek has seen severe flooding during very heavy rain events. FEMA also identified that as a flood hazard area. Along Main Street there are several commercial structures that could be affected by flooding, however, it is the numerous residential structures along New Street, which runs parallel to Main Street, that have the potential for major impacts. It should be noted at most of these structures were built prior to the adoption of flood management ordinances.
Transportation
It is also important to note that traffic congestion through Dagsboro has the potential to increase during hurricane season. For those evacuating the beach communities of Bethany Beach and South Bethany, and other towns potentially affected like Ocean View and Millville, heading west on Route 26 is the main evacuation route out of town. These towns funnel on to Route 26 which leads them through Dagsboro before they reach Route 113. Sussex County’s updated comprehensive plan includes a section on safety and resiliency as well as a proposed evacuation route map. Dagsboro is one of many towns identified as a “Potential Congestion Area” during an evacuation. The County stresses the importance of resiliency planning in the face of increasing severe weather events. Of the many goals and strategies set forth in the County’s comprehensive plan, identifying potential local roads to serve as alternative routes would be beneficial to Dagsboro. This would help alleviate some of the congestion.
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Critical Issues
When it comes to potential vulnerabilities, the biggest threat to the Town of Dagsboro is flooding. The Town is already starting to see the effects of climate change with more frequent storms that have caused flooding. The FEMA maps verified their flood hazard areas coincide with where major flooding is occurring in Town. Everyone has the potential to be affected by flooding – homeowners, business owners, and visitors. It is important for the Town, and property owners, to be proactive in addressing vulnerabilities due to climate change. For property owners, floodproofing may be necessary. For the Town’s efforts, some of the flooding may be alleviated by making drainage improvements, especially along Main Street. A Stormwater Infrastructure Inventory was completed in 2015. Prior to the inventory being completed, there was no record or understanding of the existing drainage system. The final inventory helped to identify where there was insufficient drainage and based on that determination the Town made a priority project list. After a heavy rainstorm brought severe flooding at the intersection of Main and Warrington Streets, the Town decided to make that area its first drainage project. In 2017, stormwater infrastructure improvements were proposed for the intersection of Main, Warrington and Sussex Streets. The project is currently in the budgeting phase.
Recommendations
1. Continue to implement the Floodplain Management Ordinance and make any necessary updates according to revisions suggested by FEMA and DNREC.
2. Develop strategies, ordinances and policies to control sediment or pollutants that might flow into the waterways found in Dagsboro and update development ordinances accordingly.
3. Consider a source water protection ordinance with the assistance of DNREC in preparation for expansion to the Town’s water system and annexation.
4. The Town, working with the Dagsboro Police and Fire Company and other County and State agencies, should develop a disaster preparedness plan and seek funding for resiliency planning.
5. Review existing documents published by Sussex County, such as Hazard Mitigation Plan (2016), and resources like Creating a Flood Ready Community, a course presented by University of Delaware Institute for Public Administration and Delaware National Estuarine Research Reserve. These documents are useful in educating about climate changes and its impacts.
6. Monitor changes to climate related plans published by the State, Sussex County, and other government agencies like DNREC, and implement as appropriate.
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Chapter 3: Implementation Plan
3-1 Summary of Recommendations
With the Town of Dagsboro’s potential to grow in the future and the citizens’ desire to maintain a high quality of life, it is important to prioritize what needs to be done to ensure smart and positive growth. How Dagsboro chooses to accomplish the goals and recommendations mentioned throughout this plan, will affect all the different components that go into improving Dagsboro as a livable community. The goals and recommendations are separated to help categorize what needs to be done immediately and what can wait to be accomplished in the future. These categories will ultimately act as a type of reference when the implementation process begins. The categories are separated as:
• Short term- implementation desirable within two years • Mid/Long term- implementation desirable within three to ten years
These categories are based on what is necessary to the community to help enhance the quality of their Town.
Short term (within two years) • Review the list of permitted uses in the Town Center (TC) District and the Highway Commercial (HC) District to ensure alignment with the desired uses revealed through the public opinion survey.
• Be aware of and plan for water needs while also planning for future water usage for the next five years based on approved residential developments and build-out analysis for vacant lands and annexation areas.
• Coordinate with the Public Service Commission to expand the Certificate of Public Convenience and Necessity (CPCN) service territory to include annexation areas based on the Future Land Use Plan.
• Coordinate with Sussex County to align phasing of development projects with planned wastewater capacity upgrades and increase in permit limits.
• Continue to pursue improvements for Katie Helm Park and identify parcels that could be used for municipal or neighborhood open space.
• Continue to seek remedies to reduce traffic through Town
• Continue planning for alternative water supply options.
• Develop and implement a street and sidewalk improvement plan to increase connectivity both in the older section of Town and within new developments. Create a capital improvements plan.
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• Better identify existing parking locations and investigate providing other provisional parking.
• Continue partnering and working with the Dagsboro Business Alliance to establish new businesses and support existing businesses in Dagsboro. Work closely with other local Chamber of Commerce entities to help entice the businesses.
Mid/Long term (within three to ten years) • Continue to seek grant monies to implement an expanded County/Town drainage study that identifies any issues that need to be mitigated.
• Continue working with DNREC and SCD to develop stormwater management practices in the Town that address stormwater runoff impacts within the Pepper Creek and Inland Bays watershed.
• Continue to seek new opportunities and location for a public works, police department and Town Hall center. The current Town Hall could be utilized as an information center or museum to serve public needs. The Town Hall services should be relocated to a larger facility more conducive of town meetings, providing council chambers, and administrative office space. Possible location could be current fire department parcel.
• Keep enforcing the tree and woodland ordinances to preserve and expand the tree canopy in Town, and work to maintain the Town’s Tree City USA status.
• Develop promotional tools to promote the Town to future businesses and residents.
• Continue to reinforce the Development Design Standards to keep with the aesthetics of the Town and preserve the overall Town character.
• Continue to maintain an inventory of vacant/abandoned land to determine how the land would be best used for redevelopment. The most up-to-date map for Development Potential is in the Town’s Downtown Development District Plan.
• Review all the current zoning code regulations to ensure they are compatible with the comprehensive plan and Town’s needs.
• Continue to maintain small town atmosphere through use of the most current Comprehensive Plan and ordinances during periods of persistent growth.
• Continue working with all Town agencies to develop a strong central downtown area that is both a walkable public realm, and promotional of creative business growth.
• Support infill for mixed-use development and the use of existing structures for commercial use.
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• Utilize the Town’s Downtown Development District Plan as a guide to redevelopment of the Town Center and support the incentives listed in the Plan.
• Monitor changes to climate related plans published by the State, Sussex County and other government agencies like DNREC, and implement as appropriate.
3-2 Intergovernmental Coordination
Dagsboro already coordinates with Millsboro and Sussex County to help provide services to the Town. Several recommendations outlined here will require additional coordination efforts by Dagsboro to be successful in their future growth.
• Require developers to do a study of the sewer infrastructure in coordination with the Town and Sussex County to determine long term sewer needs to support future development.
• As part of the Dagsboro/Frankford Sanitary Sewer District Study, begin working with Sussex County and the Town of Frankford to allocate sewer capacity in place to accommodate anticipated development.
• Continue to coordinate with the SCD in ensuring new developments adequately address how stormwater quantity and quality treatment will be achieved.
• Work in partnership with the Sussex County and State Historic Preservation Offices, and University of Delaware, to complete an architectural survey of structures in Town and to revisit the option of a historic district.
• Consider requests for adapted use of older structures and homes on a case-by- case basis working with the Historic Preservation Office and Sussex County Historic Preservation planner.
• Coordinate with DNREC and SCD on updated strategies to become more resilient to the impacts of climate change.
• Work with DNREC and DelDOT to encourage greenways to connect Dagsboro to neighboring towns like Millsboro and Frankford, and Sussex County parklands and open spaces.
• Develop a Memorandum of Understanding with Sussex County, as well as the Towns of Frankford and Millsboro, to notify, coordinate and jointly address issues related to land use and development activities within shared areas of concern and annexation areas.
44 September 2019 Appendix A Public Opinion Survey
Community Questionnaire
P.O. Box 420 Comprehensive Plan Update Dagsboro, DE 19939
The Town of Dagsboro is currently updating the comprehensive plan that will guide its growth and development for the next five to ten years. The first steps in preparing for the future is by asking the community members of Dagsboro what type of place they would like to live in. Please take a moment to complete the questionnaire. This is your opportunity to participate in the planning of your community’s future.
Please return the completed questionnaire by January 30, 2019. It may be completed online at https://tinyurl.com/y78ksshl , dropped at Town Hall, or mailed to the address above. If you have any question please feel free to contact Town Hall at (302) 732-3777.
1. Demographic Information : (Please place an X in the appropriate 5. Where would you like to see the following located and would you boxes that apply to you) do business with them? (Please place an X in the boxes where applicable)
Yes No Main Clayton Route Yes No Street Street 113 You live in the Town of Dagsboro Fast food restaurant You own the home you live in. Family restaurant You own property in the Town other than your home. Grocery store You own a business in the Town. Retail clothing store You work in Town or in the immediate area (5 miles) Service station Your age is: ☐16-24 ☐25-45 ☐46-65 ☐65-75 ☐over 75 Bakery
Where do you live or own properties in Dagsboro? : (Please write your Professional office address below) (medical, law, etc.) Large scale store Hardware store Research and 2. You live in the Town of Dagsboro because : (Please place an X in development facility the appropriate boxes that apply to you) Shopping center Yes No Other: You were born here
Close proximity to the beach 6. Which attribute / characteristics would you rate highest for preserving the rural community character? (Please mark your top five Cost of living, Town taxes, utilities, etc. choices, 1-5 with 1 being most important.)
Land value (Cost to purchase home or rent home) Open lands Small town atmosphere Biking/hiking trails Friendly neighborhoods Historic district standards Easy access to surrounding towns Clean appearance of towns Availability to needed services (Medical, Social, etc.) Trees and ditches/streams through town Balance between growth and small town character preservation The following questions will help the Town determine some of the Quietness and solitude types of public services and businesses that you would like to have available to you. Clear scenic views Wildlife and its natural habitats 3. If you could bring one business into the Town what would it be? (Please indicate either company name or type of business) Public land access Clustered or compact development Local businesses, thriving Main Street 4. What one business would you not want to see come to town? (Please indicate either company name or type of business) The following questions are to help determine a priority base for services and developments within the Town. 7. What type of development would you like to see in the town: (Please place in numeric order of priority with 1 being your first priority, 2 being your next priority, 3 being your next and so on.)
All single family homes on large lots 1 2 3 4 5 6 7 8 9 10 All single family homes on modestly sized lots 1 2 3 4 5 6 7 8 9 10 Mixture of single family homes and row homes 1 2 3 4 5 6 7 8 9 10 Mixed use community (single family homes, duplexes and townhouses) 1 2 3 4 5 6 7 8 9 10 Multifamily homes/ Town houses 1 2 3 4 5 6 7 8 9 10 Assisted living facility 1 2 3 4 5 6 7 8 9 10 Retirement community 1 2 3 4 5 6 7 8 9 10 Condominium building or condominium developments 1 2 3 4 5 6 7 8 9 10 Apartment buildings 1 2 3 4 5 6 7 8 9 10 None 1 2 3 4 5 6 7 8 9 10
8. I am concerned about: (Please place in numeric order of priority 9. What other concern do you have that is not listed in the with 1 being your first priority, 2 being your next priority, 3 being your previous question? next and so on.)
Traffic congestion 1 2 3 4 5 6 7 8 within the town 10. I would like the following in Town: (Please place in numeric 1 2 3 4 5 6 7 8 order of priority with 1 being your first priority, 2 being your next Crime / Safety priority, 3 being your next and so on.) Property maintenance 1 2 3 4 5 6 7 8 Medical facility 1 2 3 4 5 6 7 Pedestrian safety 1 2 3 4 5 6 7 8 Library 1 2 3 4 5 6 7 Public parking 1 2 3 4 5 6 7 8 Senior center (i.e. Cheer) 1 2 3 4 5 6 7 Drinking water 1 2 3 4 5 6 7 8 Community center 1 2 3 4 5 6 7 Waste water treatment 1 2 3 4 5 6 7 8 General services and 1 2 3 4 5 6 7 Adequate public activities for seniors transportation to other 1 2 3 4 5 6 7 8 towns Town trash service 1 2 3 4 5 6 7 Not having a safe area Youth program 1 2 3 4 5 6 7 8 1 2 3 4 5 6 7 for kids to play (i.e. boys & girls club)
11. Do you agree or disagree with the questions below: (Please place an X in the boxes where applicable) Strongly Strongly Agree No Opinion Disagree Agree Disagree
Do you think the Town has an adequate amount of housing supply? ☐ ☐ ☐ ☐ ☐ Would you support incentives to encourage developers to build more ☐ ☐ ☐ ☐ ☐ affordable housing? Do you think the Town should actively promote job growth? ☐ ☐ ☐ ☐ ☐ Would you support incentives to encourage new businesses to the ☐ ☐ ☐ ☐ ☐ Tow n? Do you think tourism should be promoted more by the Town? ☐ ☐ ☐ ☐ ☐ Do you think the Town should capitalize from the tourist industry? ☐ ☐ ☐ ☐ ☐
12. In the space below, please list any additional comments on issues, suggestions, or solutions of importance to you for the Town’s future that should be considered in the development of the Town of Dagsboro Comprehensive Plan.
Thank You for Your Time Appendix B Downtown Development District
Summary: Downtown Development District
In May 2016 the Town of Dagsboro applied for Downtown Development District (DDD) designation. The purpose of the 10-year DDD designation is to help strengthen neighborhoods by spurring capital investment in businesses, stimulating job growth, and improving housing. The two main components in applying for DDD designation is creating a District Plan and submitting the designation application. In 2015 the Town received a Neighborhood Building Blocks Fund Grant to develop the District Plan and complete the application submission process. That same year the Town sent out a Downtown Survey to collect data on consumer activity, demand for new businesses, and factors that influence shopping activity. A Task Force was formed to evaluate the survey results as well as drive the direction of the District Plan. The Task Force was made up of property owners, business owners, planning commission members, the Town Administrator, and planning consultants. A total of five Task Force meetings were held, each focusing on a different topic to help shape the plan and overall vision. When the District Plan was finalized, a resolution was signed supporting the application for the DDD designation and willingness to adhere to goals and incentives set forth in the District Plan.
The DDD Plan included several parts – identifying the boundaries of a mixed-use downtown, discussion on the need and impact of the designation, goals for the district, and incentives to be offered by the Town. Dagsboro’s proposed DDD was centered along Main Street between Irons Branch Road and Vines Creak Road (ending at Wards Lane) and along Clayton Street to the railroad. The proposed district closely followed the existing Town Center zoning district. The need for designation was ensuring existing, economically stable businesses, like the Clayton Theater, continue to thrive while finding opportunities to draw in new businesses to support the needs of current residents and projected population. The goals for the District, which were derived from recommendations set forth in the Town’s 2015 Comprehensive Plan, focused on maintaining town character by rehabilitating older structures, and improving pedestrian connectivity and parking. Additional goals looked at diversity in businesses, promoting infill development, and improving streetscapes. The Town focused their proposed incentives on lessening the financial burden that many business owners face when opening a new business. The incentives included deferment of EDU payments for up to five years with and development of a repayment plan, a 50% - 70% reduction in variance fees, and tax reductions based on the value of improvements.
The Town stressed throughout their District Plan that small changes to Dagsboro’s modest downtown would have immense impact, and the proposed district included a collection of structures that epitomized the Town’s character. While the Town ultimately did not receive the Downtown Development District designation, the District Plan is still a valuable planning tool and the Town’s only document primarily focused on economic development. The Town and its residents are already utilizing the plan for their benefit. The Dagsboro Business Alliance was established as a result of working through the designation process, and the organization is growing in membership. Their primary focus is on businesses in the 19939 zip code. In creating the District Plan, the Town has taken the important steps in addressing economic development issues, encouraging investment, and identifying critical issues impeding the Town from meeting its economic potential. Downtown Development District Plan
May 27, 2016 Table of Contents
Section 01 Introduction Purpose...... 01 Need...... 01 Benefits...... 02 Planning Process...... 02 existing Documents...... 05 Public Investments...... 06
Section 02 District Anlaysis District Boundary...... 01 demographics & Housing...... 01 land Use & Zoning...... 03 Natural Resources...... 05 Public Realm & Walkability...... 06 Parking Analysis...... 07 economic Analysis...... 08 district Vision...... 09
Section 03 Goals, Objectives & Strategies Community Character...... 01 transportation...... 01 commercial Areas...... 01 land Use & Redevelopment...... 02 housing...... 02 economic Development...... 03 Parking...... 03
Section 04 Implementation & Incentives Implementation Plan...... 01 Potential Partners...... 02 local Incentives...... 02 conclusion & Renderings...... 03
Table of Contents 01
List of Figures Poverty Rates education Attainment future Land Use Map existing Land Use redevelopment Potential Job Counts by Distance/Direction, 2013 inflow/Outflow Job Counts, 2013
list of Tables Population Estimates New Construction Building Permits industries of Town Residents existing Land Use comprehensive Plan Survey redevelopment Potential industries of District Residents Where District Residents Work
list of Maps State Strategies district Boundary existing Land Use Zoning development Potential environmental Features transportation Parking
Appendices
SWOT Analysis downtown Survey resolution
Table of Contents 02
Task Force Members Brad Connor, Planning Commission Scott Crater, Planning Commission sandra deChurch, Blossoms matthew Kern, Property Owner kathy Lewis, Serendipity Quilt Shop stacey Long, Town Administrator earl Savage, Planning Commission Jim Thompson, Property Owner
Town Council & Town Staff Norwood Truitt, Mayor Brian Baull, Vice-Mayor theresa Ulrich, Secretary / Treasurer William Chandler, Councilman Pat Miller, Assistant Secretary stacey Long, Town Administrator
planning Consultants
Table of Contents 03 Section 01 Introduction section 01 Introduction
Purpose Need
veryone has heard the adage ‘small changes can have a big he Town of Dagsboro is a quiet community with classic small impact.’ This thought can also be applied when discussing im- town charm. It sets itself apart with a unique Main Street which is Eprovements to downtowns, especially when it comes to small towns. Twider than a typical downtown street. This wide corridor allows build- Simple changes such as improving street lighting and signage, and ings to be set back with inviting entrances to buildings. The Town adding street furniture can bring color and liveliness to the down- has been able to maintain many economically stable businesses and town. What seems like small improvements can completely alter and is always looking for more ways to keep businesses successful and enhance the rhythm of a street and sidewalk. It is also these little attractive to residents as well as visitors. Over the years stimulating changes that can eventually lead to greater improvements. Modest economic development that respects its small town character and updates to the streetscape can be encouraging to potential busi- enhances community vitality has been a top priority, but the Town nesses which in turn can lead to reopening vacant storefronts and has had little success in attracting new businesses. infill development. It is important for smaller cities and towns to con- centrate on these small changes to their downtowns. To assist com- Dagsboro’s downtown has several small-scale, locally-owned busi- munities in making improvements to their downtowns, the Delaware nesses including retail, professional services and general services. General Assembly enacted the Downtown Development Districts Act in 2014. This Act allows communities to create Downtown Devel- Encouraging revitalization of Main and Clayton Streets is one way the opment Districts, which are designated areas in our cities and towns Town is working to improve existing businesses and attract new busi- that are in need of support, and if designated would help qualify for nesses. This District Plan and Downtown Development District des- significant development incentives and other State benefits. ignation are the next steps in the economic development process; as they will work to advance the objectives of the Town Center Zoning The Town of Dagsboro is seeking Downtown Development District District, Development Design Standards, streetscape improvements (DDD) designation as a way to strengthen their downtown, and show and the 2009 Comprehensive Plan. Economic development is a top that small changes in a small town can have a great impact. The Town priority and Dagsboro wishes to address several critical issues that hopes by receiving designation they can accomplish the goals set may be slowing the downtown from meeting its economic potential forth in the Downtown Development District Act, which include: and capitalizing on its many strengths and opportunities.
Spur private capital investment in commercial busi The primary issue is ensuring existing local businesses continue to ness districts and other neighborhoods thrive, while also finding opportunities to draw in new businesses to support the needs of current and projected residential growth. Ac- Stimulate job growth and improve the commercial cording to the 2015 Comprehensive Plan the Town currently consists vitality of such districts and neighborhoods of about 900 acres and could grow to approximately 1,680 acres, should all annexation plans come to fruition. Proposed annexation Help build a stable community of long-term resi areas include 560 acres for residential development, and whose resi- dents by improving housing opportunities dents would be frequenting downtown businesses. There is potential for a major increase in population which would cause immense pres- Assist local governments in strengthening neigh sure to the downtown area to provide services to a growing popula- borhoods while harnessing the attraction that vi tion. There are already not enough businesses and services, in num- brant downtowns hold for talented people, innova ber and variety, to support the current population, so it is important tive small businesses, and residents from all walks the needs of current and future residents remain a priority. of life.
In 2015 Dagsboro received a Neighborhood Building Blocks Fund A second critical issue for the downtown is the overwhelming traffic Grant to develop a Downtown Development District Plan and sub- congestion due to the popularity of the many coastal communities. mit the DDD designation application. The District Plan identifies the Each year the traffic count continues to rise on both Main Street and needs and benefits of receiving designation, challenges and op- Clayton Street. Contributing to the traffic is both delivery trucks and portunities within the District, establishes a vision and goals for the vacationers. Both these streets are utilized by delivery trucks servic- downtown, and recommends development strategies and incentives ing the building and development work in and surrounding the coast- to achieve these goals. The planning process in creating this District al resorts. This direct route for the truck traffic results in an unsafe Plan included an extensive public outreach process, including com- traffic condition for local traffic as well as pedestrians. As develop- pleting a Downtown Survey and forming a Task Force facilitated by a ment occurs by the beach more and more people are buying second planning consultant. homes and vacationing in the area. During the summer months traf- fic back-ups are a common occurrence on Main and Clayton Streets.
01 Introduction 01 These streets were not designed to be major thoroughfares carrying itive edge when seeking funding assistance, donations and private heavy volumes of traffic, which has caused great concern over safety investments for the following types of public projects: and efficiency of key intersections in the downtown. The traffic also discourages many people from stopping to frequent businesses in Extending and repairing sidewalks; the downtown which in turn impedes development. While DelDOT is currently working on alternative routes to direct traffic around the Increasing street tree plantings; Town, there is no short term plan in effect. It is the hope that truck traffic would take advantage of alternative routes. Increasing streetscape amenities to improve walkability and aesthetics; The third critical issue combines aspects of the first two issues. There are thousands of people driving through the Town, especial- Developing and maintaining parks and open space; and ly during the summer months, yet few stop to patronize the current businesses. One reason could be traffic related, but the lack in num- Creating walkways and bike paths, such as a “Rails and ber and variety of businesses and services is more than likely the Trails” system that could connect Dagsboro to Frankford main reason. People like the convenience of being able to visit many and Millsboro shops at once; if the businesses are not there they are not going to stop. Being able to attract a variety of new businesses would help Designation would help to even the playing field with neighboring solve this issue. For now, the Town and its businesses have yet to coastal towns. As stated earlier, in a small town like Dagsboro one successfully find ways to capitalize on the annual increases in traffic. successful project could go a long way in turning the tide to greater investment and positive economic development. Currently there are The fourth critical issue is competition. Dagsboro and its downtown several businesses waiting for the outcome of the Town’s request for find it competing with multiple towns and their commercial develop- designation to begin to plan for expansion and improvements to ex- ment. Just outside the downtown there is competition with retail, isting businesses, and to start a new downtown development trend. food establishments and general service-oriented businesses along the Route 113 corridor. The type of development found on the high- Planning Process way is by no means what the Town is looking for in their downtown, but it still finds itself not being a consideration for the smaller neigh- borhood scale uses that would be ideal for Dagsboro’s downtown. TASK FORCE ROLE The Town is also competing with the numerous coastal communities. he Task Force members included property owners, business Many developers and business owners are also looking to take ad- owners, planning commission members, the town administrator vantage of all the business that comes from people moving to and and planning consultants. The members were chosen based on their vacationing in the beach towns. The downtown will never be able to T involvement in the community as well as their interest in to work to compete with benefits that come with being by the ocean, but Dags- improve Dagsboro’s downtown. Each meeting focused on a partic- boro has its own individual true small town character that cannot be ular discussion topic that helped shape key sections of the District compared to any of the coastal communities. Plan. At the end of each meeting Task Force members were given “homework” to help them prepare for the next meeting. The role of Through development goals, strategies and local incentives, in con- the planning consultants was to prepare presentations and visuals, cert with State incentives that come with receiving Downtown Devel- and guide the conversation by presenting the discussion topic for opment District designation, it is the intent of this District Plan to start each meeting. Task Force members shared their knowledge of the to solve these critical issues and stimulate economic development Town, experiences and opinions which pieced together a vision for to create a vibrant downtown while protecting its current pedestri- the downtown and methods to achieve that vision. an-oriented neighborhood scale and small town values.
The Task Force met on five separate occasions: Benefits Task Force Meeting No. 1 | Kick-Off owntown Development District designation will assist in attract- The Task Force kick-off meeting was held on November 12, 2015 ing and incentivizing private capital investment within the pro- at Bethel Center. Planning Commission/Task Force members were Dposed District. The program will entitle private construction projects present to hear the consultants discuss background on the 2014 within the District to receive incentives. Upon completion of a Down- Downtown Development District Act, Neighborhood Building Blocks town Development District Plan, Town officials, business owners, Fund (NBBF) Grant and Dagsboro’s successful NBBF grant applica- stakeholders and potential investors will have an important tool that tion. The overall project scope and schedule was discussed, as well can be used to market and promote downtown Dagsboro. Regard- as project roles and responsibilities. A brief overview of recent proj- less of obtaining DDD designation, the District Plan may aid in ob- ects and investments was given that lead into a discussion of the taining other grant funding allowing the Town to achieve the multiple District’s demographics and existing conditions. Members were in- goals that are set forth in the District Plan and Town’s Comprehensive troduced to their homework assignment – a SWOT analysis – where Plan. The Town may also be better positioned and have a compet- they were asked to walk the District area and think about its positives
01 Introduction 02 and negatives. A SWOT analysis is a strategic balance sheet that map to be included in the Plan and proposed incentives. At the start lists the strengths, weaknesses, opportunities and threats of a par- of the meeting members were given the opportunity to present their ticular area from an unbiased perspective. The benefits of this exer- opinions about the draft Plan and provide feedback on needed revi- cise are that it provides insight critical to the downtown’s vitality and sions. It was also decided that revisions needed to be made to the prosperity. The SWOT Analysis is included in Appendix. Members parking map to include priority development parcels. The group also were also asked to review and comment upon draft survey questions discussed and finalized existing and proposed incentives. that would be finalized and made public, coinciding with the Project Display/Holiday Photo Booth at the annual Christmas Parade. Mem- PARTNERSHIP bers were also asked to consider whether they would like to see any changes to the proposed District boundary. ounded in 2012 as a 501(c)(3) nonprofit organization, the Dela- ware Botanic Gardens at Pepper Creek celebrates the coastal en- Task Force Meeting No. 2 | Visioning Fvironment with plans for a sustainable public garden that educates The second Task Force meeting focused on visioning activities visitors and inspires them to preserve Delmarva’s native landscapes. and was held on January 12, 2016, also at Bethel Center. Planning The Gardens will create an accessible garden for public benefit and Commission/Task Force members were present to hear the consul- pleasure. The Gardens have embarked on a multiyear, multiphase tants review five model projects: Winchester, VA; Apex, NC; Milford, plan to establish a flagship botanic garden for Delmarva that mani- DE; Keswick Village, PA; and a mixed-use Habit for Humanity project fests the values motivating all garden lovers – from the appreciation located in Albany, NY. Consultants also discussed lessons learned of nature to the role of horticulture in learning, enjoyment and health. in interviewing staff from these and other “model” towns, as well as The venture will also expand tourism in Sussex County by offering a their own past experiences. Members were asked their opinions on sustainable garden open to the public year round, in turn contributing the proposed District boundary. The SWOT analysis that had been annually to the County’s tax base through direct and indirect eco- assigned as homework for the first meeting was discussed in depth nomic activity. Along with the economic benefits are employment (information can be found in Economic & Market Analysis). Members opportunities and possible increase in property values in the area were also were introduced to their homework assignment – draft surrounding the Gardens. goals and objectives. As part of the planning process the Botanic Gardens worked with Task Force Meeting No. 3 | Goals & Strategies Rockport Analytics to put together a report titled The Economic & The third Task Force meeting focused on goals and strategies and Fiscal Impacts of the Delaware Botanic Gardens at Pepper Creek (Au- was held on February 18, 2016 at Bethel Center. Following up on gust 2015). The Report gives great insight into the potential economic the discussion about the proposed District boundary from the previ- contributions the Gardens will bring to Sussex County. The document ous meeting, the group came up with two possible boundary options states that the Gardens’ “construction and continuing operations will that they wanted to see as draft maps before making a final decision. create new permanent jobs in Sussex, generate much-needed tax The Task Force also finalized the SWOT analysis and moved on to revenue, enhance Delaware’s already strong tourism offering, and discussing the goals and objectives. During the discussion possible contribute considerable educational benefits.” Through research of strategies were presented by the group as well as additional goals. other botanic gardens and using many variables it is estimated that in A brief overview of potential incentives was discussed, and the Task the opening year (2017) there will be 31,500 people that visit the Gar- Force homework was to consider incentives the Town could offer.
Task Force Meeting No. 4 | Incentives The fourth Task Force meeting centered on finalizing the boundary map and discussing incentives, and was held on March 17, 2016 at Bethel Center. The Task Force decided on which boundary they pre- ferred after reviewing and discussing both options. The majority of the meeting discussion was on strat- egies and incentives. Current and proposed incen- tives were introduced and discussed thoroughly to decide on an incentive package.
Task Force Meeting No. 5 | Draft Plan Review The last Task Force meeting concentrated on a re- view of the draft Plan and finalizing the incentives, and was held on April 14, 2016 at Bethel Center. A draft of the Plan was sent out to Task Force members prior to the meeting for review. A presentation was given on a draft Plan overview, a proposed parking
01 Introduction 03 dens, and that number will increase to 198,000 visitors by 2021. This velopment District Plan was held on May 23, 2016. can be translated into additional spending outside the venue from visitors including dining, shopping and possibly overnight accommo- Project Display / Holiday Photo Booth dations. The Report estimates the total of non-local visitors addition- On December 10, 2015, the Town of Dagsboro in conjunction with al spending will be close to $874,000 in the first year of opening and- their planning consultants held a project display/holiday photo booth will rise to $6.4 million by 2021. It should also be noted that during at the Fire House during the annual Christmas Parade. The purpose the first five years of operation the Gardens should support close to of this booth was to display information on the Downtown Develop- 120 jobs per year, which includes direct employees and those work- ment District Project, gain feedback on the proposed boundary and ing for other local businesses that will work closely with the Gardens. SWOT analysis, and to encourage attendees to fill out the Downtown Survey (discussed below). There was a map of the proposed bound- The Botanic Gardens are located a short two miles down Piney Neck ary map and copy of the SWOT analysis, as well as District Plan com- Road from Dagsboro’s Downtown Development District. The devel- ponents and information on the 2014 Downtown Development Dis- opment of the Gardens, the only one of its kind in southern Delmarva, trict Act for community members to review and ask questions. provides for an unequaled opportunity for a partnership. Downtown Survey With the rise in popularity of ecotourism and close proximity to the In December 2015, an online survey was opened to all residents, Gardens the Town will see the effects of the increase in visitors. business owners and operators, property owners, renters, and visi- Dagsboro is in a prime location for visitors to stop at when traveling tors to the Town of Dagsboro. Paper copies of the survey were also to or from the Botanic Gardens. A family or individuals could easily made available to those without internet access. Postcards and make a day trip out of visiting the Gardens then stopping in Dags- brochures describing the Downtown Development District project, boro for a bite to eat and shop. Currently there is one restaurant, as well as requesting completion of the survey, were distributed at a few places to shop and one place to fill-up on gasoline. The few the Christmas Parade, throughout the downtown and emailed. Pa- businesses in Town will not be able to support the projected number per copies that were returned to the Town Hall were manually entered of visitors and will encourage people to choose to go elsewhere for into the online survey for data aggregation purposes. A total of 47 dining and shopping options. As discussed later in the Plan there responses were collected. Surveys were differentiated for residents/ are many priority locations that the Town would like to see developed visitors and merchants. The purpose of the Survey was to collect first. These sites would make great locations for restaurants, shops information on the frequency and purpose of consumer activity in and even businesses that would cater directly to the Gardens. the Dagsboro area, the demand for new and expanded commercial offerings, and the factors that influence local consumer shopping Additional ways for the Town and Botanic Gardens to work together decisions. and promote one another would be creating a transportation/shuttle system and putting up signage. A transportation system would al- The majority of Survey responses came from Town residents (53%), low people the option of parking in Town to frequent businesses and 23% of responses were from property owners, 19% were visitors and catch a shuttle to the Gardens, or if someone wanted to park at the 4% were business owners. When asked how often people shop in Gardens there would be a shuttle to take them into Town and back. downtown Dagsboro 31% said they shop downtown once a month Adding signage in Town and at the Gardens would also be a great or once every few months. That can be compared to the 43% that way to promote each other. There could be signs in both directions shop two to four times a week or 31% that shop once a week along pointing visitors in the direction of the Gardens and the Town. the Route 113 corridor. A popular write-in was frequenting business- es along the Route 26 corridor in Millville and Ocean View. The most The full Report as well as additional information about the Delaware common time for people to visit downtown is Monday through Friday Botanic Gardens at Pepper Creek can be found at www.delaware- before 5 pm. gardens.org. Survey responses identified three equally important items that- at COMMUNITY OUTREACH tract people to a shopping or business area, which includes: quali- ty of products and services, friendly customer service and conve- ommunity outreach is an important component to the planning nient location. Responders stated the advantages of the current process. The opinions of residents, business owners and oper- downtown are convenient location and friendly customer service. Cators, property owners and visitors help to identify what they think People also thought the ability to support local businesses was an the important issues are that need to be addressed and how they advantage as well. The major disadvantages of the downtown are think their downtown can be improved for the future. Throughout the poor appearance and lack in variety of goods and services. Dags- process of creating the Dagsboro Downtown Development District boro has several of the assets people find important in a shopping/ Plan, community outreach came into play through several Task Force business destination but is lacking in variety of businesses. Those sessions that were open to the public (described under Task Force taking the Survey would like to see specialty retail and personal ser- Role), a community outreach event, as well as a Downtown Survey. vices, public and civic services such as a community center, locally owned restaurants and specialty food places such as bakeries and The first review of the Plan by the Town Council was discussed at ice cream shops. To sum up Survey responders’ general opinions, their May 5, 2016 meeting, and the final review of the Downtown De- they would like to see businesses that locals would want to frequent
01 Introduction 04 but that would also attract the tourists that travel through Dagsboro, ment links the Town’s current street and sidewalk network. especially during the summer months. It is also important to peo- ple that Dagsboro maintain its small town character and atmosphere Commercial Areas that is appealing to both residents and visitors. In keeping with the small town spirit, residents would like to see retail and professional business within the community to take advantage Additional information gleaned from the survey can be found through- of the beach traffic and to better serve the overall community. out this Plan. The Survey results can be found in the Appendix. Transportation DISTRICT SURVEYING While wanting to take advantage of the beach traffic to an extent, traffic traveling through the Town to various nearby beaches was also he District reconnaissance consisted of the planning consultants seen as a problem due to the congestion it creates and disruption it visiting the Town of Dagsboro and performing a walkthrough with- provides to accessing local services. The community encouraged Tin the Downtown Development District boundaries at the very outset Dagsboro to work with DelDOT to investigate options for alternative of the planning process. The objectives of the reconnaissance sur- traffic patterns in the greater area to reduce traffic in the downtown. vey were to observe, document and photograph the existing condi- There is also a desire to have better sidewalk connectivity through- tions of the District, including but not limited to types of uses and out Town and to neighboring communities. businesses, urban form, contributing features to community identity and character, property maintenance and upkeep, redevelopment Community Design opportunities, streetscape conditions, and overall walkability. Residents would like to maintain the small town atmosphere while growth occurs. Community members would also like to see the pres- ervation of historic sites and structures. Existing Documents Housing COMPREHENSIVE PLAN The preferred type of housing for the Town is low density single-fam- ily homes, while higher density housing in the form of townhouses he Town of Dagsboro’s certified Comprehensive Plan was adopt- was accepted but to a lesser degree. ed in 2003 and most recently updated in 2015. Over the years, T the Town has worked to protect Redevelopment its small town charm by devel- The Town supports additional infill development on vacant parcels oping its own identity through for mixed-uses, as well as the adaptive reuse of existing structures. its historic character and being proactive in the preservation of A number of goals and strategies were devised as ways to achieve natural greenery found through- the visions developed during the Comprehensive Planning process. out the community. Anticipating Some of these recommendations have already been accomplished future Town expansion, positive or are part of ongoing efforts by the Town and its partners, such as growth and development has improvements at Katie Helm Park, streetscape improvements along been encouraged. Balancing vi- Main Street, and an inventory of vacant land and buildings that is be- brant businesses and a variety of ing undertaken as part of this Plan. housing, services, and amenities were identified in the Compre- This District plan seeks to augment the strategies in the Compre- hensive Plan as the best way to hensive Plan and set forth additional implementation strategies to help create places for current achieve these goals and objectives. Those goals and strategies re- and future residents to enjoy. lating to the downtown that are still valid and have not yet been com- pleted have been incorporated into this Downtown Development The Comprehensive Plan developed visions around four areas: land District Plan’s Goals, Objectives & Strategies section. use and annexation, commercial and industrial areas, transportation, and neighborhood and community design. These visions have been STATE STRATEGIES outlined and paraphrased below. n April 1, 2011, Delaware Governor Jack Markell signed Execu- Land Use tive Order #26, approving an update of the Strategies for State The Town expressed a desire for its existing vacant land to be used for OPolicies and Spending, originally approved in 1999 and updated in residential purposes and that redevelopment take place on existing 2004. The strategies represent a combination of state and local land parcels and structures that have already been selected for that pur- use policies intended to guide State agencies as they make invest- pose. With the possibility of existing land being redeveloped, there is ment decisions. The District is within the Level 1 and Level 2 desig- also a possibility of additional land being annexed. In both cases, the nations, with the exception of Katie Helm Park, which is Out of Play. Town should keep in mind the continued preservation of agricultural The following provides a general description of these State Invest- and open spaces. It is also important to make sure all new develop- ment Level Strategies. (See Map No. 8 – State Strategies)
01 Introduction 05 Levels 1 and 2 identify areas that are most prepared for growth and amenities, which extend from Clayton Street to just south of Katie where the State can make the most cost-effective infrastructure Helm Park. investment for schools, roads and public safety. The State Strate- gies generally prioritize the most intense State investments in and Dagsboro is also proud to say that through its progressive “green” around municipalities. These areas typically provide an opportunity ordinances that require tree planting and protection and its street for contiguous development that should grow consistently with his- tree projects, the Town has been named a Tree City USA for the past toric character. The State encourages new development and rein- three years. The Town strongly believes that greenery is one of the vestment in these areas. most attractive features of Dagsboro, and is confident that planting and protecting more trees will only enhance community identity and Level 3 areas reflect areas where growth is anticipated by local, beautification, which will in turn help foster economic activity. County and State plans in the longer term, or areas that may have en- vironmental or other constraints to development. State investments will support growth in these areas; however, the State may have other priorities in the near term, especially for Levels 1 and 2.
In the Level 4 areas, the State will make investments that will help pre- serve a rural character, such as investments to promote open space and agriculture. The State is also looking to enhance agricultural ac- tivities by encouraging the location of complementary businesses in these areas.
Out-of-Play lands are those that cannot be developed for reasons including they are federal- or state-owned protected lands, parkland, the development rights have been purchased, or state or local regu- lations prohibit their development.
ZONING REGULATIONS & DESIGN STANDARDS
he Town has been diligent in advancing placemaking principles that promote pedestrian activity, and retaining and attracting Tneighborhood scale business. For instance, the Town has adopted a Town Center District (TCD) and Development Design Standards, and has made significant public investments including streetscape im- provements and a new centrally located community park. The TCD along Main Street, Clayton Street and Vines Creek Road, is one major component towards creating a downtown area that people will want to live, visit, shop and work. It gives developers flexibility in design, while maintaining the character of the Town. The Town’s Develop- ment Design Standards supplement the zoning regulations, includ- ing those in the TCD. The objectives are to allow for context sen- sitive infill development and promote the desirability of investment and occupancy in businesses and other properties. Inherent in these objectives is the expectation that the community’s aesthetic values will promote orderly community growth and stimulate economic de- velopment. The Design Standards emulate and promote the Town’s historic heritage, encourage creative designs for sites and buildings, and support pedestrian movement.
Public Investments
onsistent with the Town Center theme, the Town and DelDOT One of Dagsboro’s greatest assets is all the natural greenery. The Town carried out streetscape projects along Main Street and Clay- continues to work to maintain and protect this important Town feature. ton Street to calm traffic and improve the pedestrian environ- ment. The streetscape projects included intersection and sidewalks Cimprovements, crosswalks, street trees and lighting, among other
01 Introduction 06 Section 02 District Analysis Section 02
District Analysis
District Boundary Demographics & Housing
agsboro’s Downtown Development District is located along the POPULATION Main Street (Route 26) corridor between Irons Branch Road and DVines Creek Road (ending at Ward Lane), and along Clayton Street he 2013 population estimate for the Town was 1,240, a 54% in- to the Railroad. The District contains 99 parcels totaling 78.4 acres. crease over the 2010 U.S. Census count of 805. Using the most The District includes the streets and right-of-ways and is contiguous Tup-to-date Block Data (2010), there are approximately 339 people with no enclaves. (See Map 1 – District Boundary) living within the District. Dagsboro’s central location amid the larger towns of Millsboro, Salisbury and Ocean City, MD, and other Delaware The District epitomizes the Town’s character and reputation of being beaches provide it a unique opportunity to be set apart by its distinct a quiet community with small town charm. Main Street and Clayton character. With its close proximity to these areas it has experienced Street have a variety of small scale, locally owned specialty retail tremendous population growth in a short amount of time, perhaps in stores and service-oriented establishments mixed with single-family part because it has been able to retain its small town character when residential uses. The District is a spot for antique shopping, a place others have not. to catch a movie in a unique historic theatre, and have a picnic at the park. Table 1. Population Estimates
The District makes up almost the entire Town’s Town Center District, which is one major component of the Town’s overall community de- velopment strategies. While this area offers many strengths and assets that define the Town of Dagsboro, there are many issues to overcome and opportunities to build upon. The next critical step in the economic development process is to prepare a Downtown De- INCOME & POVERTY velopment District Plan that continues the momentum of previous successes and advances the objectives of Town Center District, De- agsboro’s median household income is $49,167, more than velopment Design Standards, and the updated 2015 Comprehen- $10,000 below the state average of $60,000. The Town’s pover- sive Plan. Dty rate of 10.3%, according to the 2009-2013 American Community Survey, fell under the State’s poverty rate of 12%. As you can see Dagsboro has some development constraints to overcome as well from the table below, the Town, State and Nation have been expe- as many strengths and assets that can be drawn upon to augment riencing higher poverty rates in recent years, but Dagsboro experi-
the vision and goals for developmentPI in the DDD. The Town wishes enced an outlier year in 2010. Other than this “blip” Dagsboro’s rate HEL N M S EY T D ProposedD R R N Y R E O to address severalN critical issues that may be slowing the TownM from has steadily been lower, but trends have remained fairly consistent C R Downtown DevelopOment District A K S
D R OMAR ST 99 Parcels; 78U .4 Acres D LA meeting its Heconomic potential and capitalize on itsCHA PmanyEL assets. with those experienced in the State.
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S L OUT HE C RN RAIL RAIL ROA Dagsboro, Delaware D RD Southern Downtown Development District States Dagsboro’sMap 1 - District Boun dproposedary Downtown Development District is 78 acres and 0 125 250 500 Feet is comprised of 99 parcels. [ 5/20/2016
02 District Analysis 01 HOMEOWNERSHIP & VACANCY RATES The 2009-2013 American Community Survey estimates that there are a total of 441 housing units in the Town of Dagsboro. Thirty-three agsboro is primarily a Town with owner-occupied housing, with percent of those (146) were constructed prior to 1969, or are roughly just shy of 30% of the Town’s housing stock used as rental hous- more than 50 years old. The ACS estimates that 103 units were built Ding (29%). These rates are consistent with the State (74%) and well in the years 2000 to 2009, which generally corresponds to new con- above the National rate (65%). struction building permits during a similar period of time, shown in the table below. One factor that contributed to this substantial growth in Housing affordability is always a concern, as housing costs normal- housing units was the installation of the Town public water system in ly occupy the most significant portion of a household’s expenses. 2005. Dagsboro’s median home value in 2013 was $211,900 and its medi- an monthly rent was $1,157. The median home value is approximate- For the most part, Dagsboro’s housing stock is in good condition. ly $24,000 under the State median of $235,800, while the median Homes located within the District reflect that of the Town’s overall monthly rent exceeds the State’s ($989) by more than $150. The housing stock. Today, 30 years is considered to be the standard life median home value is similarly about $25,000 under Sussex Coun- cycle for homes before requiring substantial rehabilitation. As noted ty’s median of $236,600, while the median monthly rent exceeds the above 33% of the Town’s housing stock was built before 1969, and County’s ($944) by more than $200. over 60% of its homes were built at least 30 years ago. Residents are not always able to keep up with the maintenance of these structures, According to 2013 Census data, the housing vacancy rate across whether it is due to the resident’s age, disabilities or inability to afford the Town was 15%, which is above the national average of 11% how- repair costs. It is often finically difficult for homeowners, especial- ever, Dagsboro’s rate was significantly below that found in Sussex ly with lower incomes, to maintain their homes over time leading to County, which was 38%. Vacancy rates are important because prop- postponed maintenance, substandard housing conditions, and with- erty tax revenue growth for a town can be impeded by vacancies and out some repairs possible blight and abandonment. Several older blighted properties. residential structures in Town need to be renovated but there are only a few units that would be classified as substandard. Attention should Some of Delaware’s strongest industries – particularly health care, be paid to the older housing stock conditions and available resourc- tourism and retail – have many low and moderate wage workers, cre- es should be publicized so the Town does not end up with a concen- ating a significant demand for workforce housing. According to the tration of homes in disrepair, especially within the District. Additional 2015-2020 Delaware Housing Needs Assessment, there is a short- strategies for improving housing are further explained in the Goals, age of housing affordable to workers within these industries, particu- Objectives and Strategies section. larly in east Sussex County. The 2015-2020 Delaware Housing Needs Assessment identifies the east Sussex County housing market as the fastest growing and most HOUSING STOCK expensive market in the State. This market includes beach and in- land communities that are attracting retirees and those looking for he Town is primarily composed of single-family homes, most of a second home. Dagsboro was able to take advantage of the boom which were built prior to the 1960s. New developments have in building years prior to the 2007-2009 housing market crash. As added townhomes and duplexes to the housing stock. This mix al- T shown in Table 2, 87 residential building permits were issued between lows for a more diverse cost of living and housing type. The majority 2001 and 2007. Since that time 41 residential permits have been of the structures themselves are wood framed with wood or wood- issued which reinforces the effects of an unstable housing market. like siding. The few brick structures are mostly for commercial or public uses. Given the fact that eastern Sussex County relies heavily on its tour- ism, the majority of workers in that area work in the service and retail Table 2. New Construction Building Permits industries. Typically these types of jobs pay less than area median income, and with high housing costs along the coast many of these workers have a difficult time finding affordable housing. Dagsboro is in a prime location as it is close to the many coastal communities and can provide reasonably priced housing for a more regional work force.
EMPLOYMENT
agsboro’s 2013 labor force was comprised of 594 people aged 16 years and over. Thirty-nine of those, or 5%, were unemployed. DWorkers were employed in the following occupations: management, business, science and arts occupations (37%); sales and office -oc cupations (27%); service occupations (20%); production, transpor- tation, and material moving occupations (9%); and natural resourc-
02 District Analysis 02 es, construction, and maintenance occupations (7%). Most of the velopment, with over 140 subdivided and slated for residential devel- Town’s residents are private or salaried workers (83%), with 13% em- opment. In addition, there are a substantial number of large parcels ployed by the government and 4% self-employed. Industries repre- in Town and in the Town’s annexation area that are currently used for sented by Dagsboro citizens are the following: agriculture or open space, and that are in the Town’s growth plans for residential development. Table 3. Industries of Dagsboro Residents Per the 2010 Census, the population of the Town is currently 805 residents, up 55% from the 519 population in 2000. Through new single-family subdivisions/developments, housing and population growth has been steady. The Town projects that this steady growth rate will continue to 1,286 people by 2040 . It is clear that there is a significant amount of new housing development opportunities town wide that would significantly increase the Town’s population and pro- vide residents that would frequent downtown businesses.
Figure 3. Future Land Use Map
EDUCATION
he level of education of Dagsboro’s residents has increased and is now higher than the State average and the Sussex County av- Terage. In 2013, 91% of the Town’s adult population had graduated with a high school diploma or higher degree and over 22% had ob- tained a bachelor’s degree or higher.
Figure 2. Educational Attainment There is currently a mix of residential, commercial, and institutional land uses in the District. (See Table 4, Figure 4 and Map 3- Existing Land Use) Residential properties are predominantly detached sin- gle-family residences. Commercial properties consist of small scale retail shops, food establishments, services and entertainment uses, such as the Clayton Theatre. The retail shops include specialty retail stores and antiques, such as the Serendipity Quilt Shop and Jayne’s Reliable. Institutional uses include two churches, a bank, the Post Of- fice, Town Hall, police station and two professional offices (law and medical). While the Town Center zoning allows for on-site mixed use, such as apartments or offices above retail storefronts, the current uses are dispersed on separate lots throughout the District.
Table 4. Existing Land Use Land Use & Zoning
EXISTING LAND USE
ne primary issue and opportunity to address is to help existing local businesses continue to thrive and draw new businesses Oto support the current and projected residential growth. Residential is by far the most prevalent land use in Dagsboro. Per the updated Comprehensive Plan, about half of the Town’s 452 parcels were de- voted to residential; 220 of which contained existing residential de-
02 District Analysis 03 Figure 4. Existing Land Use The Town’s Development Design Standards supplement the TCD zoning regulations. The Design Standards emulate and promote the Town’s historic heritage, encourages creative designs for sites and buildings, and support pedestrian movement. The Design Standards include parking and signage regulations and landscaping require- ments. Other building requirements for new structures are making sure they are built close to the street and sidewalks with parking lots behind or to the side of the primary structures. Commercial parking lots are also now required to have considerable landscaping.
VACANT LAND & INFILL OPPORTUNITIES
s areas closer to the beach become more heavily developed, The Town is not seeking to economically compete with large-scale, Dagsboro will become a more attractive location for the devel- auto-oriented commercial uses on Route 113. Rather, the Town is Aopment of vacant parcels, and the redevelopment of existing struc- seeking to preserve the neighborhood scale and boost a unique tures. There are some highly visible vacant lots and buildings within place with specialty retail shops and locally owned service, retail the District boundaries, presenting a clear opportunity for infill devel- and entertainment establishments. Based on a community survey opment and rehabilitation. As expressed in the Comprehensive Plan, conducted for the 2009 Comprehensive Plan, Town residents would the Town supports additional infill development on vacant parcels like to see the following types of commercial uses in this area: family for mixed-uses as well as the adaptive reuse of existing structures. restaurant, retail convenience, coffee shop, bakery, medical facility, Some properties have been vacant for a long time while some are barber/beauty shop and a hardware store. These preferred types of more recent. There are a few abandoned residential structures that uses coincide with the survey that was conducted for this District offer a prime opportunity for adaptive reuse into retail or mixed-use Plan. More detailed results of the 2009 Comprehensive Plan survey while maintaining the current neighborhood scale and character. are as follows: There are also a few large vacant properties that could offer new de- velopment opportunities. (See Map 4 – Development Potential) Figure 5. Comprehensive Plan Survey There are six development potential properties identified as priority locations that the Town would like to see development occur first as they could have an immediate and significant impact, and may be a catalyst for future development. These locations are of significant size and in prominent locations, either on Main Street or at the Dis- trict gateways. Perhaps the most prominent and notable priority area is the southwest corner of Main Street and Clayton Street. This prop- erty is at a central location in Town with high visibility and vehicular and pedestrian traffic, is surrounded by other retail and service uses, and benefits from recent streetscape improvements.
These vacant lands and buildings can be considered an asset as they offer space to grow in a manner that could help achieve the com- munity’s vision, goals and objectives established in the Town Center ZONING District.
The entire Downtown Development District is zoned Town Center Participants in the Downtown District Survey were asked how the va- District (TCD). The intent of the TCD zone is to create a walkable and cant lots and buildings should be used. The majority (53%) agreed vibrant mixed-use commercial area. The TCD advances a small town, that commercial uses, including restaurants, retail, convenience pedestrian-oriented scale, as it encourages the continuation and es- stores and a grocery store should be encouraged. Civic uses, such tablishment of small businesses, professions and skilled craft occu- as parkland, a town library, community garden and a farmers market, pations in conjunction with residential uses. In addition to permitting were also uses that respondents would like to see encouraged (43%). a variety of uses, the design and development standards focus on creating urban form and community character. The TCD allows small Table 6 - Redevelopment Potential displays the number and total lot sizes and minimal setbacks that will create a more compact, pe- acreage of vacant parcels, parcels with infill and subdivision poten- destrian-scale environment. The front and side yard requirements tial, and parcels with buildings that could be rehabilitated or redevel- allow buildings closer to each other and to the street and sidewalk, opment. thereby creating a sense of place and promoting the sidewalk and store fronts as public space.
02 District Analysis 04 Table 6. Redevelopment Potential Wetlands The presence of Pepper Creek and its tributaries throughout Town has served to create some areas of forested wetlands. These areas are important for the role they play in mitigating flooding and main- taining the water quality. Regulatory protection of wetlands (tidal and nontidal) is mandated under Section 404 of the Federal Clean Water Act. Certain other wetlands are accorded other regulatory protec- Figure 5. Redevelopment Potential tion under Title 7, Chapter 66 provisions of the State of Delaware Code. Within the Downtown Development District itself, only a small portion of wetlands exist which are located along the Pepper Creek corridor and generally at the rear of lots. Since the TCD zoning re- quires new buildings to be along the street frontage, the buildable area in the DDD is not impacted.
Wellhead Protection One of two private water supply wells that are found within Dagsboro’s corporate boundary is located within the DDD; however, it is not cur- Natural Resources rently being used as a drinking water source. DNREC oversees the State’s Source Water Assessment Program, which is primarily aimed at protecting water supplies from contamination. Well protection ar- ne feature making the Town of Dagsboro distinctive from its eas and excellent recharge areas have also been designated by DN- neighbors is its natural beauty and environmental features. REC. The adoption of a source water protection ordinance by Sussex OPepper Creek and its tributaries run through the center of Town and County meets the requirements of the State Source Water Protec- along its northern border, creating floodplain and areas of forested tion Law of 2001 and is designed to minimize threats to water supply wetlands. To the Town’s northeast, a large area has been designated wells from pollutants. as an excellent recharge area by the State. Tree Cover Floodplain The Town believes that greenery is one of Dagsboro’s most attrac- The floodplain is the land area adjoining a river or stream that has tive features and is confident that planting and protecting more trees a 1% or greater probability of flooding in any given year. In general, will enhance community identity and beautification. In 2007 the a floodplain is a relatively flat or low land that is subject to partial or Town adopted Chapter 276 Buffering, Screening and Landscaping, complete inundation from floodwater. Historically, 100-year flood- and Chapter 277 Woodland Preservation as a way to be proactive in plain protection requirements were used to guard against injury to preserving the Town’s natural resources. Through these “green” ordi- people and to prevent destruction to property. In the context of sen- nances that require tree planting and protection, as well as its street sitive areas protection, relatively undisturbed floodplains also serve a tree projects, the Town has been able to maintain its greenery and variety of environmental functions. has been designated a Tree City U.S.A.
A floodplain is an integral part of the stream system. It provides stor- Historic Preservation age capacity for high flows, helps reduce the erosive power of the The Town does not currently have a historic district but has the stream during a flood, reduces the discharge of sediment during high potential to create one. An area was identified in 1998 that could flow periods, and helps floodwaters to move downstream. Flood- form the potential district; however, it has not yet been formalized. plains also offer opportunities for wildlife habitat that can increase Prince George’s Chapel, built in 1757, is the only building in Dags- the biotic diversity of a stream. Floodplains provide water quality boro to currently be listed on the National Register of Historic Places benefits as well. It is important that the 1%-chance floodplain be and is located outside of the Downtown Development District. The kept in its natural state to protect public safety and the quality of Clayton Theater, built in 1948 streams and their habitats. and located within the District, is a vintage theater with one Dagsboro’s Downtown Development District is trisected by branch- screen and a stage that has es of Pepper Creek, with each fork having a portion of regulatory the potential to be listed on the floodway and floodplain in or just outside the District. (See Map 5- National Register. It is import- Environmental Features) Forty-four of the District’s ninety-nine par- ant to look further into identi- cels, or 39%, are subject to floodplain regulations. Floodplains in the fying historic structures within Town are protected through the Floodplain Management Ordinance the Town and District bound- (Chapter 118), the Subdivision Ordinance (Chapter 238) and the Zon- aries because the history of a ing Ordinance (Chapter 275). Town gives residents and visi- tors a sense of place and con- nects them to the past.
02 District Analysis 05 Public Realm & Walkability The majority of the District is served by five foot wide sidewalks lo- cated on each side of Main Street. On the west side, the sidewalk extends from Church Street, across from the Clayton Theatre, all the TRAFFIC way to the Town of Frankford. On the east side, the sidewalk extends from Warrington Street, at Bodie’s Market, to Vines Creek Road. In agsboro is connected by highway to larger markets in Delaware, general, the sidewalks in the District boundary are in good condition Pennsylvania and Maryland. The Town is located at the inter- and maintained. Dsection of two major state highways – Route 113 and Route 26. The Route 26 corridor essentially is the District and bisects the Town, Indeed, the public opinion survey for the 2009 Comprehensive Plan while Route 113 bypasses the downtown. This proximity to major Update revealed that residents would like to see an improvement in routes is important for bringing people into the Town and also con- pedestrian connectivity and the number of sidewalks. There are no necting commuters from Route 113 to the coastal towns. sidewalks north of Warrington Street, however it is noted that there are wide shoulders, and high motorist and pedestrian visibility in this While Route 26 provides the opportunity for visibility and being dis- area. Also, with the exception of Clayton Street, there are no side- covered as a quaint town, it also presents overwhelming traffic con- walks or marked shoulders on the perpendicular roads that connect gestion, especially during the peak beach season in the summer adjacent neighborhoods to Main Street. months. Each year the traffic count continues to rise on both Main Street and Clayton Street as tourism increases in Sussex County, and as visitors seek alternatives routes to the beaches. According to the 2013 traffic summary data from DelDOT, the primary through streets within the Town of Dagsboro have consistently shown that the amount of traffic traveling through the Town is comparable to the amount of traffic traveling past the Town on Route 113.
Route 26 is also a direct route for the truck traffic, resulting in an un- safe traffic condition for the local traffic as well as the pedestrians along the streets. These streets were not designed to be major thor- oughfares carrying the heavy volumes of traffic, which has caused great concern over safety and efficiency. The traffic may discour- age many people from stopping to frequent businesses in town and impedes downtown development. DelDOT is currently planning to place signs to direct regional traffic to Fenwick Island and Ocean City to stay on 113.
Comparison of existing sidewalks found throughout Town.
Main Street and Clayton Street are maintained by DelDOT. All the other streets, sidewalks and street lighting within the Town are main- tained by the Town and funded by the State Municipal Street Aid funds State and Town capital improvement accounts. There is not enough revenue through this grant or any other ongoing source to fund the construction of new sidewalks and to maintain existing side- Example of truck traffic on Main Street. walks. The Town currently does not have a public works department for the maintenance of the streets and sidewalks. WALKABILITY The main intersection at Main Street and Clayton Street is a ‘T inter- section’ design connecting the two major arteries. The heavy vol- agsboro is as walkable a community; it is reasonably compact ume at this intersection causes concern over pedestrian safety and and has a grid street network. Town residents are connected efficiency. Towards a remedy and consistent with the Town Center, Dto employment, shopping and entertainment opportunities on Main the Town and DelDOT carried out streetscape projects along Main Street. Many of the commercial and residential uses within the Dis- Street to calm traffic and improve the pedestrian environment for trict have large lots with large side yards. The large lots, large side the local businesses. The streetscape projects included intersection yards and the vacant lots provide green spaces that contribute to the and sidewalks improvements, crosswalks, street trees, and lighting, desired small town character. However, these features also spread among other amenities, which extend from Clayton Street to South out the occupied buildings, reducing the residential and commercial Main Street. density and creating a less walkable environment.
02 District Analysis 06 RAIL forest enhancement. The park and its amenities are key assets and opportunities for the District, as they offer residents and visitors a railroad operated by the Norfolk-Southern Railroad exists near public gathering space for community events and programs, and are the north edge of the District boundary, and runs north and a testament to the Town’s green and community initiatives. Asouth. It is worth noting that these tracks are used to transport goods and supplies to businesses and industries on the Delmarva Parking Analysis Peninsula, offering a great advantage in the transportation and effi- ciency in the delivery of goods. On average, two trains travel through here are approximately 19 individual off-street parking lots along the Town on a daily basis hauling grain for the poultry industry and Main Street and Clayton Street used for non-residential purpos- coal for the Indian River Power Plant. The Comprehensive Plan rec- Tes. The total off-street parking area is approximately five5 acres in- ommends more extensive use of the rail line in the future, especially cluding the driveway and driving aisles. There are no municipal lots, due to volatile fuel costs. and only one shared parking lot (for the Clayton Theatre and the Towne Barber Shoppe). PUBLIC TRANIST The Downtown Development Task Force expressed concerns with urrently there is no regular fixed-route bus service to or through available parking and that the supply may not be meeting the exist- the Town. DART First State offers Paratransit services for those ing demand. Per the Downtown Survey, eighty-nine percent (89%) Celigible elderly and disabled residents on a reservation basis. The of respondents stated that they agree that convenient parking at- Roxana CHEER Center also provides weekly transportation for senior tracts them to a shopping and business area. There was a mixed citizens. The service destinations include trips to the bank, post of- opinion on the adequacy and convenience of parking in Dagsboro fice, drug store and grocery store. as only thirty-three percent (33%) stated that a major advantage to the downtown is that it is easy to find parking, while only twenty-five (25%) stated that it is a disadvantage. Forty-four percent (44%) stat- GATEWAYS ed that improved parking would help the downtown area. Overall, the responses can be interpreted as convenient parking is very import- he District edges lack a definitive sense of entry or departure. ant and that improved conditions may attract more residents and vis- There is an opportunity and a need to make it more apparent itors. However, it does not appear to be a top priority relative to other Tto travelers that have arrived in a charming place, and to encourage needs such as providing a greater variety of retail. motorist to visit the District’s stores, restaurants and theater. There were small ‘Welcome’ signs located at Main Street but have been removed. There is currently a ‘Welcome’ sign on Route 113 at the intersection with Clayton Street. These signs should be updated and reestablished as a starting point to gateway improvements.
PUBLIC SPACES
atie Helm Park is the only public park and recreational area in the District. The park is 2.2 acres and is centrally located in Town. KPark facilities include a playground, gazebo, walking trails, park bench- A commercial establishment on Main Street with convenient parking es, picnic tables, and a pavilion for community gatherings and events in the rear of the building and signage. as well as bio-retention areas and rain gardens. Additional facilities in future will include restrooms, potable water fountains and sidewalk The Town’s parking regulations require parking lots to be behind or to connecting surrounding properties. The park preserves natural fea- the side of the primary structures, require connections from public tures including wetlands, forested area, and an ephemeral stream, sidewalks to parking lots, and in some cases require vehicular con- and provides additional plantings of native shrub and tree species for nections between adjacent lots. Commercial parking lots are also required to have screening and landscaping, and adequate circu- lation and dimensions. Commercial uses are required to have one off-street parking space for each 200 square feet of floor space for customer service, plus one space for every two employees. For mixed-use developments, site plans must address the parking needs of the different users through design measures such as shared park- ing with time provisions and metered parking.
In order to eliminate any potential undue burden of complying with the parking requirements on property owners and developers, the regulations offer some alternatives. For instance, parking spaces may be provided on a separate lot if located within 500 feet of the
02 District Analysis 07 building. In addition, two or more lot owners may join together to- Table 7. Industries of District Residents wards complying with the required number of parking spaces. Also, builders may pay a fee in-lieu of providing the required spaces, which would be kept in a dedicated fund to provide for public parking pur- poses. As stated in the 2009 Comprehensive Plan, there has been some discussion about the possibility of a downtown municipal park- ing lot to make patronizing downtown businesses more convenient and encourage visitors to walk through Town.
There are numerous opportunities to provide an adequate amount of conveniently located parking in the downtown. The Town’s park- ing regulations require sufficient off-street parking, and the lots are of sufficient size to provide for said parking; Either on the same lot as the establishment or through shared parking areas. There is also on- street parking available on Main Street that are often vacant and that None of these residents actually worked within the District, although add to the overall supply. There are no street signs or markings that 37% worked less than 10 miles from their home. The graphic below indicate that parking is permitted. On-street parking is an important shows the distance and direction residents travel to work. The table component of traditional downtowns for multiple reasons. It provides accounts for the top locations where District residents work. convenience to visitors to park near a venue and generates street movement and activity, which adds to overall vibrancy. It also acts as Figure 6. Job Counts by Distance/Direction, 2013 a traffic-calming and pedestrian safety measure as drivers must slow for other cars parking, and the parked cars visually narrow the street and provide a barrier between the street and sidewalk.
Table 8. Where District Residents Work
On-street parking is permitted on Main Street adding to the overall park- ing supply, however these spaces often go unnoticed and unused. On- street parking adds to parking convenience, generates street activity and helps calm traffic.
Meanwhile, 25 people held jobs within the District who commuted Economic Anlaysis from outside the area. The greatest share of these workers (44%) traveled 10 to 24 miles to arrive at their jobs within the District, with 8% traveling 25 to 50 miles and 8% traveling more than 50 miles. ccording to the U.S. Census Bureau’s Center for Economic Stud- Some of the originating locations include Brookside, DE; Millsboro, ies, there were 38 people living within the District who held pri- DE; Fruitland, MD; and Ocean Pines, MD. Amary jobs in 2013. A primary job is a single job per worker, public or private that is the highest paying job for that individual. Twenty-five As shown in the graphic below there is a great imbalance between of these workers were aged 30 to 54. Industries representing the the number of people who are employed within the District who live District’s citizens are the following: outside the area and the number of people who live within the District who are employed outside the area. This is important to be aware
02 District Analysis 08 of if the District wishes to become a successful live-work-play com- Serendipity Quilt Shop and Porto Pizza & Grill. In addition to these, munity. If that is indeed one of the goals, the Town and its partners the community expressed the desire to see downtown-scale family should aim to have a more balanced inflow/outflow count in the fu- restaurant, retail convenience, coffee shop, bakery, medical facility, ture – or at least try to capture some of the District employees in the barber/beauty shop, and a hardware store open within the District. downtown. The Town of Dagsboro, as with other small communities, could be Figure 7. Inflow/Outflow Job Counts, 2013 considered a bedroom community. The majority of the Town resi- dents are employed in other surrounding municipalities. The larger cities such as Salisbury, MD are within a 30 to 45 minute commute. It is important that uses coming to the District keep the downtown scale in mind. Route 113 is a short distance away and is appropriate for more auto-oriented uses, such as a larger grocery store, fast food restaurant, retail clothing store or service station. In this same con- text, the larger nearby cities are more appropriate for large scale de- partment stores, big box stores and super regional shopping centers. The Downtown Development District should respect Dagsboro’s ex- isting small town charm by encouraging a walkable atmosphere and continuing to advance placemaking principles to attain and attract neighborhood scale businesses.
District Vision Dagsboro has been able to maintain economically stable business- es and is always developing more ways to keep the businesses suc- cessful and attractive to residents as well as visitors. Over the years, owntown Dagsboro will be a pedestrian friendly community the town has employed a steady, comprehensive approach towards where residents can easily and safely walk to the park, theater stimulating economic development that respects this small town Dand other destinations in Town. Main and Clayton Streets will have charm and enhances community vitality. a variety of businesses including entertainment, retail shops, offices and personal service stores. Residents of the Town, as well as those Main Street has a variety of small scale locally owned businesses in- living in the surrounding area, will be able to find many of the busi- cluding retail, professional services, and general services, in addition nesses they may need to run daily errands, shop at specialty retail to a number of single-family residential dwellings. Residential uses stores and pick between several dining options. A passersby, wheth- are the most prevalent in the District currently. er a local or visitor, will want to stop and visit businesses in Town rath- er than to just pass through on the way to other towns or the beach. There is currently a mix of businesses and institutional uses in the District, including the following
Bank of Delmarva Beach Uniques Blossoms Bodies Dairy Market Clayton Theater Dagsboro Paint & Wallpaper Left: Serendipity Quilt Shop Dagsboro Town Hall Healthy Habits Below: Vacan Commercial Hurricane Hapkido Building Jayne’s Reliable Masonic Lodge No. 37 Porto Pizza & Grill An exmaple of two Post Office neighboring businesses on Reflections Beauty Salon Main Street. Serendipity Quilt Shop Steve Parsons, Attorney at Law Super Clean Demolition
Encouraging revitalization of Main Street and surrounding areas is one way the Town is working to improve existing businesses and attract new businesses. Two examples of recent revitalization are
02 District Analysis 09 Section 03 Goals, Objectives & Strategies Section 03
Goals, Objectives & Strategies hrough the preservation of historically and architecturally signifi- Transportation cant structures, the enforcement of the development and design Tstandards, the creation of a safe pedestrian-friendly environment, GOALS and the continuation of streetscape beautification with street trees The Town desires to have better sidewalk connectivity through and amenities, the Town of Dagsboro will foster its desired character out Town and to neighboring communities. of the town. These coupled with an energized downtown marketing and advertising strategy will ultimately attract new businesses, resi- Become a more pedestrian friendly community where residents dents, visitors and investors and help create a Main Street Dagsboro can easily and safely walk to school and other destinations brand. in Town.
Community Charater Reduce the beach traffic that creates congestion that disrupts access to local services.
GOALS Become a destination town that capitalizes on its strategic loca Maintain the small town atmosphere while growth occurs. tion along major thoroughfares.
Support the preservation of the Town’s historic homes and OBJECTIVES structures. Investigate options for alternative traffic patterns in the greater area to reduce traffic in the downtown. Create an aesthetic blend of green space, natural elements and pedestrian amenities. Reduce traffic, truck traffic and install sidewalks where there are currently none. OBJECTIVES Reinforce community identity with attractive gateways into the STRATEGIES Downtown District. Develop a sidewalk circulation plan to inventory existing sidewalks, identify gaps and prioritize the areas that need Highlight the history and character of the town through logos or improvements. a statue to be a focal point.
Discuss with DelDOT about weight restrictions on trucks that STRATEGIES use Main Street and Clayton Street, as this may help eliminate or Partner with organizations, such as historical societies, for grant decrease the larger trucks from driving through Town. opportunities to help maintain historic structures and properties within the District. Look into designing and installing traffic calming measures through Town, including landscaping and decorative signs to Put together committee of town staff, town council and planning remind motorists they are entering a small town. commission members, business owners and residents that will continue conservations on defining the Town and look into mar Coordinate with DelDOT to investigate options for alternative keting/branding opportunities. traffic patterns in the greater Dagsboro area to reduce traffic in the downtown area. Update and/or replace the ‘Welcome to Dagsboro’ signs that were located at all gateways into town. Continue streetscape improvements northward along Main Street and westward along Clayton Street, to the District edges. Look into opportunities to incorporate street art, such as murals on building facades that would relate to the town. Commercial Areas Develop a historic preservation plan and create an inventory of historic structures to help establish a historic district GOALS Retail and professional business should take advantage of the Maintain Tree City U.S.A. status beach traffic.
Create a destination. Passersby will want to stop and visit busi
03 Goals, Objectives & Strategies 01 nesses in Town rather than passing through on the way to other Encourage appropriately scaled and context sensitive develop towns. ment to help define the streetscape and create a walkable, attractive public realm. Want a mix of shopping, restaurants, cultural and recreation spaces. STRATEGIES Review existing Town Center regulations and design standards Improve the overall aesthetic and streetscape of the downtown. for modification that may promote infill.
Serve residents’ needs with minimal negative impact and Look into ways to expedite and streamline the process for new enhance Dagsboro’s small town residential character. businesses wanting to develop in town.
Increase access to local public amenities and improve commu Review current fees for applications to see where costs can be nity design. reduced or prorated if developing within the DDD.
OBJECTIVES Enforce the TCD and Development Design Standards. Work on improving the appearance of the streetscape and attractiveness of building facades to make them more inviting Identify the larger vacant properties that would be ideal for multi- to customers. use buildings.
Encourage businesses to be creative in storefront and signage Identify possible locations for new Town Hall, public works and designs. police department. If offices are relocated, current Town Hall could be utilized as an information center. STRATEGIES Encourage property and business owners along Main Street to Reestablish conditional Uses. apply for grant programs geared towards façade and structural improvements. Review current permitted uses for the Town Center District, as well as all zoning districts, to ensure uses are appropriate for the Look into creating a signage program incorporating more district and up to date. signage along Main Street such as seasonal banners, ‘Welcome’ banners and signs listing the local businesses. Housing Continue to pursue improvements for Katie Helm Park. GOALS Improve housing integrity and maintenance within and adjacent Work with DelDOT to expand the current streetscape plans as to the downtown. a phased approach for improvements to Main Street and Clay ton Street to include additional sidewalks and landscaping im Strengthen homes with an emphasis on rehabilitating older provements. homes and avoiding incompatible development.
Serve residents’ needs with minimal negative impact and Land Use & Redevelopment enhance Dagsboro’s small town residential character.
OBJECTIVES GOALS Promote rehabilitation programs to assist homeowners with The Town supports infill for mixed-use development and the maintaining and repairing their homes. reuse of existing structures for commercial use. Enforce existing and new property maintenance codes. Maintain development codes and development processes to STRATEGIES ensure that all new developments and redevelopments enhance Put together workshops and/or information packets to educate Dagsboro’s character. homeowners on property maintenance codes.
Continue to reinforce the Development Design Standards to Promote the Delaware State Housing Authority’s Housing Reha keep with the aesthetics of the Town and preserve the overall bilitation Loan Program, as well as non-profit agencies that pro Town character. vide housing assistance.
Inventory historic properties within the District and identify any OBJECTIVES buildings that could apply to be listed on the National Register Promote a balanced mix of service, retail, entertainment and of historic Places. residential uses.
03 Goals, Objectives & Strategies 02 Economic Development Evaluate any existing signage for parking, and ensure there is sufficient signage making it easy for patrons and visitors to find GOALS parking. Encourage the growth and diversity of neighborhood scale busi nesses. Look into striping existing parking areas along Main Street so it is easily identifiable. Strengthen Dagsboro’s downtown as a business, civic and entertainment center for neighboring communities.
OBJECTIVES Emphasize high-quality products and personalized services, in cluding businesses serving a special market not already served by mass-market retailers.
Market the downtown for customers and businesses.
STRATEGIES Work with a marketing firm to develop a brand for Dagsboro, such as update or create a logo, slogan, town color palette, font, etc., to be used by the Town and business owners.
Put together advertising materials for the town and businesses to use to promote current businesses.
Research possibility of forming a Chamber of Commerce or rejoin a neighboring organization.
Find a volunteer or part-time hire to be a liaison for the town pro moting the current businesses and benefits of developing in Dagsboro.
Look into opening a Welcome Center/Kiosk to provide informa tion about the town.
Create an economic development committee for the purpose of pursuing various businesses to locate and establish their business in Town and work closely with the various Chambers of Commerce to help entice businesses.
Create an inventory of vacant/abandoned land to determine how the land would be best used for redevelopment.
Parking
GOALS Better identify existing parking locations.
Provide more parking options.
OBJECTIVES Look into incorporating signage along Main Street to identify parking.
STRATEGIES Research alternative parking options such as a municipal lot.
03 Goals, Objectives & Strategies 03 Section 04 Implementation & Incentives Section 04
implementation & Incentives Implementation Timeline
eeping in mind that the Downtown Development District is ap- Street to include additional sidewalks and landscaping improve- plied for 10 years after designation, the implementation timeline ments. Kfollows that same schedule. To use the Town’s Comprehensive Plan as an example, the strategies in this Plan mimic the organization of Land Use & Redevelopment the Implementation Plan of the Comprehensive Plan. For this Plan Review existing Town Center regulations and design standards for the strategies have been subdivided into two categories, Short Term modification that may promote infill. and Medium/Long Term. Short Term strategies are defined by being priority items to help jump start the revitalization of downtown. Strat- Look into ways to expedite and streamline the process for new busi- egies labeled as Short Term should be completed within the first 5 nesses wanting to develop in town. years of Downtown Development District designation. Medium/Long Term strategies are more long-range items and will continue to en- Review current fees for applications to see where costs can be re- hance the downtown after the completion of the Short Term strat- duced or prorated if developing within the DDD. egies. These items should be completed over the course of the 10 year designation. Enforce the TCD and Development Design Standards.
SHORT TERM STRATEGIES (1-5 YEARS) Identify the larger vacant properties that would be ideal for multi-use buildings. Community Character Partner with organizations, such as historical societies, for grant op- Reestablish Conditional Uses. portunities to help maintain historic structures and properties within the District. Review current permitted uses for the Town Center District, as well as all zoning districts, to ensure uses are appropriate for the district Put together committee of town staff, town council and planning and up to date. commission members, business owners and residents that will con- tinue conservations on defining the Town and look into marketing/ Housing branding opportunities. Promote the Delaware State Housing Authority’s Housing Rehabilita- tion Loan Program, as well as non-profit agencies that provide hous- Update and/or replace the ‘Welcome to Dagsboro’ signs that were ing assistance. located at all gateways into town. Economic Development Transportation Work with a marketing firm to develop a brand for Dagsboro, such as Develop a sidewalk circulation plan to inventory existing sidewalks, update or create a logo, slogan, town color palette, font, etc., to be identify gaps and prioritize the areas that need improvements. used by the Town and business owners.
Look into designing and installing traffic calming measures through Research possibility of forming a Chamber of Commerce or rejoin a Town, including landscaping and decorative signs to remind motor- neighboring organization. ists they are entering a small town. Create an economic development committee for the purpose of Continue streetscape improvements northward along Main Street pursuing various businesses to locate and establish their business and westward along Clayton Street, to the District edges. in Town and work closely with the various Chambers of Commerce to help entice businesses. Commercial Areas Look into creating a signage program incorporating more signage Create an inventory of vacant/abandoned land to determine how the along Main Street such as seasonal banners, ‘Welcome’ banners and land would be best used for redevelopment. signs listing the local businesses. Parking Work with DelDOT to expand the current streetscape plans as a Research alternative parking options such as a municipal lot. phased approach for improvements to Main Street and Clayton Evaluate any existing signage for parking, and ensure there is suffi-
04 Implementation & Incentives 01 cient signage making it easy for patrons and visitors to find parking. Inventory historic properties within the District and identify any build- ings that could apply to be listed on the National Register of historic Look into striping existing parking areas along Main Street so it is Places. easily identifiable. Economic Development It should be noted that the Town has already started discussing sev- Put together advertising materials for the town and businesses to eral of these strategies. The Town Council has discussed the idea use to promote current businesses. of reestablishing conditional uses over the course of several meet- ings this year. While there is still some debate the Town Council is Find a volunteer or part-time hire to be a liaison for the town promot- looking to draft an ordinance allowing for conditional uses. The Town ing the current businesses and benefits of developing in Dagsboro. Council has also discussed the need to periodically review the per- mitted uses for all zoning districts. Over time permitted uses may no Look into opening a Welcome Center/Kiosk to provide information longer fit the purpose and aesthetic of certain zoning districts and about the town. may be more appropriate in other districts, and some permitted uses become antiquated and should be removed all together. The Town Potential Partners Council would like to start this review by looking at permitted uses within the Town Center District which makes up almost the entire pro- he following is a list of potential partners and programs the Town posed Downtown Development District. As discussed in the Plan, could work with to complete the implementation strategies. Also parking is a top priority and the Town Council has already begun pre- Tincluded in the list are source for potential financial assistance. liminary discussions on potential municipal parking lots. Community Development Block Grants (CDBG) MEDIUM/LONG TERM STRATEGIES (5-10 YEARS) Convention & Visitors Bureau for Sussex County Delaware Department of Transportation Community Character Delaware Main Street Program Look into opportunities to incorporate street art, such as murals on Delaware Preservation Fund building facades that would relate to the town. Delaware State Housing Authority Historic Preservation Tax Credit Program Develop a historic preservation plan and create an inventory of his- NCALL toric structures to help establish a historic district. Office of State Planning State Historic Preservation Office Maintain Tree City U.S.A. status. Sussex County Economic Development Sussex County Office of Historic Preservation Transportation USDA Rural Development Loans and Grants Discuss with DelDOT about weight restrictions on trucks that use Main Street and Clayton Street, as this may help eliminate or de- Local Incentives crease the larger trucks from driving through Town.
Coordinate with DelDOT to investigate options for alternative traffic EXISTING patterns in the greater Dagsboro area to reduce traffic in the down- town area. Town Center District The Town established a Town Center District in 2006. The purpose of Commercial Areas this District is to preserve what is existing and encourage new devel- Encourage property and business owners along Main Street to apply opment to be compatible with the scale and character of the Town. for grant programs geared towards façade and structural improve- The Code specifically states in its purpose that “these regulations will ments. make a substantial difference in creating a downtown area that peo- ple will want to reside within, visit, shop and work within.” The Town Continue to pursue improvements for Katie Helm Park. Center District establishes appropriate permitted uses, area and yard requirements, parking standards, and sign and lighting standards. Land Use & Redevelopment Identify possible locations for new Town Hall, public works and police Development Design Standards department. If offices are relocated, current Town Hall could be uti- The current Town Zoning Code provides design standards for resi- lized as an information center. dential and commercial properties. The Development Design Stan- dards were drafted to ensure existing and new development meet Housing and enhance the character and aesthetic of the Town. It is also the Put together workshops and/or information packets to educate purpose of the Development Design Standards to build on the his- homeowners on property maintenance codes. toric character of the Town, maintain the scale, encourage creative
04 Implementation & Incentives 02 design and supporting pedestrian movement, among many other Conclusion & Renderings objectives. As shown throughout the District Plan, the Town of Dagsboro has the Technical Assistance potential to have a one of a kind downtown. Looking past the vacant The Town offers technical assistance to those looking to develop in properties that line Main and Clayton Streets, the Town does set itself Town. The Town’s engineer/planners work with potential Applicants apart from other communities with its wide Main Street, specialty re- tail shops, abundance of natural greenery and its own individual small to explain Town Code requirements and process to assist and expe- town charm. However, if the Town is not proactive about continuing dite the approval process. The Town also works with consultants on to make economic development a top priority existing businesses various engineering and planning projects. will leave and the Town’s unique assets will eventually disappear.
This Plan has explained in detail the need for receiving District desig- PROPOSED nation and lays out the existing conditions of the proposed District. Through public outreach and reviewing existing Town documents an As a means of making Dagsboro a more attractive location for invest- extensive list of goals were put together. Strategies were developed ment and development, the Town Council has made a commitment and prioritized setting the groundwork for the next steps in econom- to provide the following economic incentives to new businesses and ic development. While the strategies and incentives may seem like existing businesses looking to make improvements to their buildings minor improvements, for a small downtown these changes will prove to be immense. The incentives will have an appeal to developers within the Downtown Development District. looking for that small town atmosphere. The Town is committed to working side-by-side with potential developers. It will only take one Deferment of EDU Payments I 90 Days of Designation quality project for others to see Dagsboro as a great opportunity. As For projects located within the District, the Town will defer payment mentioned in the first sentence of this Plan, people often use the of EDUs for a period of up to five years, and will develop a repayment phrase “small changes can have a big impact,” and it is the Town’s plan with individual developers and businesses based on the num- strong belief that this adage applies to Dagsboro and its proposed Downtown Development District. ber of required EDUs. This deferment will be especially beneficial to restaurants and food related businesses, as well as residential devel- The following are illustrative renderings of how the Town envisions its opment, including residential units above commercial spaces. downtown when the implementation items are completed and incen- tives are used to their full potential. 50% - 75% Reduction in Fee for Variances I 90 Days of Desig- nation This will benefit those needing variances from zoning requirements, especially for existing structures. To encourage improvement of ex- isting structures and businesses, the cost of applying for a variance from the zoning code will be reduced. This cost saving will encour- age adaptive reuse of Dagsboro’s older buildings as the current cost of applying for variances has discouraged property owners and in- vestors from doing so.
Tax Reduction I 90 Days of Designation Tax reduction will be based on val- ue of improvements. The Town will waive increased taxes on the value of improvements to existing structures in the Downtown Devel- opment District. The tax waiver will be on the difference between the pre-improvement tax assessment and the post-improvement tax as- sessment. The tax waiver will be for a period of 10 years from the date of improvement.
Top: Currently there is vacant land on one side of the Clayton Theater, and a vacant commercial building and vacant land on the other side.
Left: This rendering shows infill development as well as opportunities for community events, such as a farmers market.
04 Implementation & Incentives 03 Above: An aerial of Dagsboro’s entire Downtown Development District showing potential infill development with an improved streetscape. The infill development completely improves the rhythm of the streets.
Below: An aerial view of Dagsboro’s improved downtown at the intersection of Main and Clayton Streets. Street trees and pedestrian scale street lights line the sidewalks giving the street color and character. This addition shows the impacts small changes can have. Infill development adheres to the small, neighborhood scale development that is currently encouraged and that the Town wishes to continue to promote.
04 Implementation & Incentives 04 Above: Driving on Clayton Street, approaching Main Street, there will be improved pedestrian connections, infill development and street amenities such as outdoor dining. This is the District’s most prominent and notable priority development area. It is centrally located with high visibility, and high vehicular and pedestrain traffic, and is also surrounded by other retail, service and civic uses.
Below: Pedestrians will enjoy walking downtown as new businesses start to open and line Main Street. A variety of businesses will allow for convenient one-stop shopping.
04 Implementation & Incentives 05 MAPS
Map 1 District Boundary Map 2 Existing Land Use Map 3 Zoning Map 4 Development Potential Map 5 Environmental Features Map 6 Transportation Map 7 Parking Map 8 State Strategies PI HEL N M S EY T D ProposedD R R N Y R E O N M C R Downtown DevelopOment District A K S
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V:\Projects\1551\DE_Dagsboro\60439709\GIS_job\Mapping\StateStrategies_8x11.mxd APPENDICIES
A - SWOT Analysis B - Downtown Survey Results C - Resolution APPENDIX A
SWOT Analysis Strengths, Weaknesses, Opportunities and Threats (SWOT) Analysis
STRENGTHS
Small town character Location Main Street Beach traffic Presence of sidewalks / walkability / bikability Variety of goods and services Clayton Theater Katie Helm Park Indian River School District DelDOT traffic funnel Police force Four full time officers for 850 citizens Provide approximately 750 business checks per month Town Council Developers want to build here Recent successful businesses Good infrastructure Businesses have neighborhood look / character Railroad track
WEAKNESSES
Beach traffic Sidewalk gaps / conditions Parking DelDOT traffic funnel Non-conformities (e.g., signs)
OPPORTUNITIES
Beach traffic Natural gas on Route 113 Delaware Botanic Garden partnership opportunity Destination NOT pass-through Farmers’ market Festivals / events Work with DelDOT on Main Street parking New business owner packet
THREATS
Competition with Route 113 Can services / infrastructure keep up with growth – physical and people (budget) North / south Millsboro bypass APPENDIX B
Downtown Survey Results
Berlin MD
Lewes DE
APPENDIX C
Resolution
Downtown Development District Plan May 27, 2016 Appendix C Maps Map 1 Aerial View Map 2 Zoning Map 3 Existing Land Use Map 4 Future Land Use & Annexations Map 5 State Investment Strategies Map 6 Transportation Map 7 Environmental Features
DR MOND IA D
D
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R I DA GS BO RO RD
UV20
ON RD HUDS
W ST A N P TO L NG N E RI E S AR W S W S T T T S D DAGSBORO ON EK R S N CRE U AN ES S C VIN S E X H
S E T L M
C HA S PE T L L A D R P L M R IN A A G W I O S L R R D O
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C I A R CL P
M A IN S UV26 T
D R T O FO E IN D N U P O N T B L V D
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N FRANKFORD
A V T DAGSBORO E S R E T H ORY ST S C HICK D T ° A E H E T R 0 2,000 Feet ^ OL RD FRANKFORD SCHO
MAP #1 - AERIAL COMPREHENSIVE PLAN UPDATE 2019 DAGSBORO, DELAWARE August 2019 D R R E W O T E IR F D R I K R C
O E N N EY B IN R P DA A GS N BO C RO H RD R
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W ST A N P O L GT E IN N S RR E S WA W T S T T S ON NN CA
S U S H S E E X L M S
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L A L A R D L N L T D IN S K R G L EE R O A CR A R N ES I IN L D A V R C O A A D RM O R RY D R T D S ON YT A R CL D S T E S RG O E E N G N E A
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G U TC - Town Center M T R E C - Commercial E R D HC - Highway Commercial
E V I Industrial A N H O O T N Y O ° Railroad A L L U L C U 0 R 1,500 Feet RPC Overlay R D D D R Y AY LE R K R C C U O E M H D S A R LA
MAP #2 - ZONING COMPREHENSIVE PLAN UPDATE 2019 DAGSBORO, DELAWARE August 2019 D R R E W O T D E I R R IR K F O EC N N Y B E
R N PI A
N D C A H GS BO RO R RD D
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Commercial GUM TREE RD Institutional / Office Residential
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N H Park / Open Space O O T N Y 0 O 1,500 Feet A L L U L Utility / Infrastructure C U R D UV355
MAP #3 - EXISTING LAND USE COMPREHENSIVE PLAN UPDATE 2019 DAGSBORO, DELAWARE August 2019 MILLSBORO
UV20
UV26
UV20
UV26
FRANKFORD Dagsboro Boundary Annexation Area 113 Area of Concern ¤£ Millsboro and Frankford Millboro Annexation Area Frankford Annexation Area Future Land Use Commercial Industrial Institutional Park / Recreation Residential ° Town Center / Mixed Use 0 3,500 Feet Utility / Infrastructure
MAP #4 - FUTURE LAND USE AND ANNEXATIONS COMPREHENSIVE PLAN UPDATE 2019 DAGSBORO, DELAWARE August 2019 MILLSBORO UV335
UV26
DAGSBORO
UV20
UV26
FRANKFORD
¤£113
Town Boundaries State Strategies 2015 Level 1 Level 2 Level 3 ° Level 4 0 3,500 Feet Out of Play
MAP #5 - STATE INVESTMENT STRATEGIES COMPREHENSIVE PLAN UPDATE 2019 DAGSBORO, DELAWARE August 2019 C L O G G D G RD R BUNTIN
R OND D D D M R R IA T S D D N
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N DA C G H SB OR R O D RD UV20 Proposed Intersection Improvements Route 20 & Iron Branch Road ON RD HUDS
W ST A N P O L Continue Main Street GT N E IN E S R W AR S W S T Streetscape Improvements T T S ST N RD H NO EK S C N CRE URU A ES H S C VIN C S E Proposed Intersection Improvements X H
S E T L Vines Creek Road & Armory Road M
W C W HA S O A PE T O R D L D L S A H C L A T ZZ N AR L D I S R N T T A G S I O L L R A R D N O A A C D
R D B LA CK FO R T O D T T A D S T R T M R S S O O
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Town Boundaries R H D O Y N E O CL L K E U Road Classification C D L O A U H R C R S LA D L N Major Road A L Y N T A T M S O F R N F E Secondary Road U CH A A T K A V T M TH E S C S N Local Connecting Road M E ° IA A L T L S R IL D A W D R Local Road E0 2,000 Feet I L E T R ORY S R ICK O H FR A AN D KFO R R O S D SXA T ST CHNO NOX AO L K RD RD
MAP #6 - TRANSPORTATION COMPREHENSIVE PLAN UPDATE 2019 DAGSBORO, DELAWARE August 2019 C LO G G D RD R BUNTING
D
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r N RD e O p HUDS 20 p UV e P e rk Number On Fo W er Creek ST A Pepp N P O L GT N E IN E S R W AR S W S T T
ST RD N EEK O S CR S NN INE U A V S C S E X H
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Y A R R P U e M pp er 113 Cr £ e ¤ e k G U Town Boundaries M T R E E E V State Designated Wetland R A D N O T Y Wellhead Protection Area A L R C D H Y O Excellent Recharge Area E N L O K L C U L F O U H L R O FEMA Flood Hazard Areas S D O T D
R S S
Floodway E T CH AT °TH Floodplain (Zone A and AE)
T S 0 1,980 Feet D Vines H E E B e R Creek r r Y ST a CKOR r HI n i n c 54 g h UV
MAP #7 - ENVIRONMENTAL COMPREHENSIVE PLAN UPDATE 2019 DAGSBORO, DELAWARE August 2019 Appendix D Official Correspondence Resolution to Adopt
State Certification Letter