94 Plan III

45 Wastewater Treatment Plants

46 State, County and Local Police Protection

47 Police Calls in Jefferson County for 1983‑1985 and 1987‑1991

48 Emergency Operations 1987 to 1991

49 Public School Facilities in Jefferson County

50 Average Number of Pupils Per Household

51 Parks in Jefferson County

52 Rare and Endangered Species From either the Federal List or Rangewide Status

PART III

TRANSPORTATION

INTRODUCTION

Background

Of all the problems to be addressed in a Comprehensive Plan, transportation is one of the most urgent. The improvement or further deterioration of transportation in Jefferson County will directly affect our quality of life.

Jefferson County had the first paved roads in West Virginia. But, many of today's roads still follow the old carriage and wagon roads and, except for paving, have not been improved. Most of these improvements were made when traffic was lighter and slower.

With the increase in population in the last three decades Jefferson County's roads have had to bear the combined burden or increased traffic volume and heavier commercial vehicles. As a result, the deficiencies of the highway and road systems have become more critical. Inadequate funding and further increase in transportation demand are conditions which probably will be facing the people of Jefferson County for some time.

The municipalities of Charles Town, Ranson, Harpers Ferry, Bolivar, and Shepherdstown have their own land use plans and regulations, and as such are not subject to guidelines or regulations developed as part of the Comprehensive Plan for Jefferson County. However, they are the sites where the major roads converge and where traffic problems occur with increased traffic flow. Therefore, their transportation needs are part of the overall county needs.

General Goals

In addition to the specific recommendations discussed in this section, the following general goals need to be attained:

o To reduce the occurrences of traffic accidents.

o To reduce the severity of traffic accidents.

o To eliminate conditions which either cause accidents or contribute to their severity.

o To achieve and maintain efficient traffic flow throughout the County.

o To develop coordination between all levels of government to assure the establishment of common priorities and the best use of transportation resources.

o To adopt an aggressive and creative position toward overcoming funding and legislative limitations to solving transportation problems.

o To advocate and lobby for road improvements in the County.

Categories of Road Systems

Roads and highways in the County fall into the following categories.

o State Highways ‑‑ These are further categorized according to standard highway classification systems shown in Map 2.

o Private Roads ‑‑ These are owned by individuals or groups of homeowners who are responsible for their maintenance. For the most part these are land service roads which are used by the public to visit, serve or otherwise gain access to homes and businesses along such roads. Private roads that meet State criteria can be accepted into the State Highway System.

o Orphan Roads ‑‑ These are land service roads with no known ownership or assigned responsibilities for maintenance.

There are no County owned or maintained roads.

Public transportation consists of a bus service (PanTran) and commuter rail to Washington, D.C. (MARC). Transportation is an integral part of all aspects of life within Jefferson County and a primary influence on most other elements of this Plan.

STATE HIGHWAYS

Functional Classification

The West Virginia Division of Highways classifies highways in five different ways:

1. By jurisdiction

2. By Federal‑aid system

3. By National Highways Functional Class

4. By sign system

5. By functions within the State‑administered system.

The latter system is the only one of interest to the County planning process because it reflects function which in turn influences potential land use.

There are three West Virginia State‑Administered Systems. They are as follows:

o Legal Function Classification System (X‑T‑F)

1. Expressway (X): serves major intrastate and interstate travel, including Federal Interstate routes.

2. Trunkline (T): serves major city‑to‑city travel.

3. Feeder (F): serves community‑to‑community travel or collects and feeds traffic to higher systems.

4. State Local Service (SLS): localized arterial and spur roads which provide access and socio‑economic benefits to abutting properties. These are further broken down by (a) essential arterial, (b) collectors, and (c) land access.

o Delta Road System

These are in the public domain by virtue of long history of common public use, but where title to rights‑of‑way is indeterminate.

o State Park and Forest Roads

The distribution of road miles and vehicle miles traveled on the X‑T‑F classification is shown below in Table 40.

Table 40 ROAD MILEAGE BY CLASS‑‑STATE SYSTEM

Annual*

% of Vehicle Miles % of

Roadway County Traveled County

Class Miles Total (millions) Total**

X Expressway 0.0 00.00 0.0 0.0

T Trunkline 35.48 10.08 117.296** 44.58

F Feeder 25.88 7.36 48.320 18.37

SLS Essential Arterial 69.90 19.86 58.644 22.29

SLS Collectors 86.31 24.52 26.133 9.93

SLS Land Access 134.38 38.18 12.706 4.83

Local (Unclassified) 0.00 0.00 0.000 0.00

351.95 100.00 263.099** 100.00

*Source: WVDOH Traffic Count File Summary Tables 1990

**These values do not include the Bypass which was not open at the time.

The highway classifications used in the 1986 Comprehensive Plan, Primary, Secondary and Local Service, approximately correspond to the State‑Administered classifications, Trunklines, Feeders and State Local Service, respectively.

Traffic Volume Trends

The West Virginia Division of Highways maintains a traffic flow map. It shows the Average Daily Traffic (ADT) at counting stations around the County. The map is updated every three years. Table 41 shows a comparison of 1987 and 1990 ADT's for selected locations on State highways in Jefferson County.

Table 41 AVERAGE DAILY TRAFFIC AT SELECTED LOCATIONS

ADT

Location 1987 1990

Route 340 @ eastern Va. line 8800 14000

Route 340, west of Bolivar 14000 17500

Route 340, east of Charles Town 16500 21500

Route 340, south of Charles Town 7800 7300

Route 9 @ eastern Va. Line 4800 6000

Route 9, south of Charles Town 8900 8650

Route 9, north of Charles Town 9300 9400

Route 9 @ Berkeley County line 8100 11000

Route 51, west of Charles Town 5000 7100

Route 45 @ Berkeley County line 4800 5600

Route 45, west of Shepherdstown 9300 9700

Route 480, south of Shepherdstown 4200 5000

Route 230, south of Shepherdstown 4800 5200

Route 230, south of Route 17 fork 1700 2100

Route 17, south of Duffields 2300 2900

Source: West Virginia Division of Highways Traffic Map

It is apparent from these figures, but no surprise, that traffic volumes have increased in Jefferson County. However, the Charles Town Bypass was opened in 1991 which solved traffic problems in downtown Charles Town with the removal of most trucks and through traffic. The State DOT has made their 1993 traffic counts but the processed data will not be available until 1994. However, the improvement in traffic operations is readily observable.

ANALYSIS OF CURRENT PROBLEMS ON STATE HIGHWAYS

Highway engineering professionals define highway problems based on documented traffic flow problems (Level‑of‑Service, comparisons of actual volume versus designed capacity, etc.) and accident rates (number and severity of accidents relative to exposure as measured by vehicle miles). On the other hand, the public perceives highway problems by experienced congestion, knowledge of individual accident occurrences, severity of a particular accident and perceived potential hazards such as poor sight distance. The final program of highway improvements usually is based on a mix of engineering analysis and public concern.

WVDOT Critical Levels List

Based on accident analysis alone the WVDOT has identified the following locations as having accident rates that exceed critical levels:

1. Rural Primary

a. US 340 Milepost 8.10 ‑ 10.00

b. US 340 Milepost 15.30 ‑ 15.90

c. WV 9 Milepost 1.00 ‑ 1.90

d. WV 9 Milepost 2.40 ‑ 3.10

e. WV 9 Milepost 4.40 ‑ 5.20

f. WV 9 Milepost 10.10 ‑ 15.10

g. WV 9 Milepost 15.50 ‑ 16.20

h. WV 45 Milepost 0.90 ‑ 2.40

i. WV 51 Milepost 0.30 ‑ 1.20

2. Urban Primary Two Lane

a. US 340 Milepost 7.40 ‑ 8.30

b. WV 9 Milepost 8.00 ‑ 9.90

c. WV 51 Milepost 7.00 ‑ 7.50

3. County Routes Over 500 ADT

a. CR 20 Milepost 0.00 ‑ 0.60

These are shown on Map 3.

Low volume roads are difficult to evaluate using the "critical level" approach because patterns (substantial clusters of accidents) amenable to evaluation and improvement usually are not found.

WVDOT Transportation Improvement Program (TIP)

The WVDOT maintains a project list called the Transportation Improvement Program (TIP). The following projects were listed in August, 1992 as being either under construction or ready to begin construction.

1. Route 1, 0.1 mile north of WV 51, improvement of a vertical sight distance problem, 1993,

2. Route 1, 0.08 mile north of CO 1/2 to Route 9, 1" resurfacing, underway,

3. Route 9, U.S. Route 340 to Va. state line, upgrade to four lane, 1998,

4. Route 9/Route 20 intersection relocation, underway.

5. Route 9, 0.45 mile east of CO 27 to 0.39 mile east of CO 9/8, realign roadway,

6. Route 22, 0.02 mile east of CO 17 to 0.8 mile east of CO 17, 1" resurfacing,

7. Route 25/5, over Bullskin Run, replace timbers, underway,

8. Route 48/2, 0.47 miles north of CO 20, install RR Xing signal and gates,

9. Route 51, Berkeley County line to 0.02 mile east of CO 6, 1" resurfacing,

10. Route 340, U.S. 340 near CO 13/3, landscaping,

11. Route 340/Route 17 Intersection, modify traffic signal, 1993,

12. Route 340, replace Shenandoah River Bridge, 1995,

13. Route 480, Potomac River Bridge, repair, 1993.

Summary of Traffic Problems Identified by County Citizens

Table 42 is an update of the Summary of Traffic Problems in Jefferson County which was presented in the 1986 Comprehensive Plan as Table 31. With the exception of U.S. 340 and the Bypass almost all roads and highways are upgraded wagon trails which originally were laid out to fit property lines. Consequently, there are numerous locations with poor sight distance, sharp curves, inadequate shoulders, encroaching fixed objects and hidden entrances. Under the land development process and the ordinances the County is able to deal with these situations when landowners develop their property by preventing future problems and by requiring improvements to problems adjacent to their properties.

Unprotected at‑grade railroad crossings are a class of hazard which has been a long‑term public concern. Since 1986, signals and gates have been installed at seven locations.

Table 42 SUMMARY OF TRAFFIC PROBLEMS IN JEFFERSON COUNTY, WV

Route Number (road class)* Problems

Route 340 (P) Parallel to Potomac R.: curvy, rough shoulders, falling rocks, inadequate parking, stone retaining walls at road edge; Intersection with Rt. 32: inadequate turning area, single land traffic on hill, limited sight distances, dangerous when road surface wet or icy; Entering Shenandoah River Bridge: high traffic speeds and congestion at park entrances, limited visibility;

Route 9 (P) At Route 32/2: poor visibility; At Route 1/2 & 48/3: numerous intersections; At Route 480: inadequate visibility; At Route 9/3: inadequate sight distance.

Route 51 (S) Poor visibility at Route 1/5, 1/13, and 1/17; blind driveways;

Route 230 (S) S‑curve 1 mi. S Rt. 17; poor visibility at Rt. 230, 31/1, and 16/1;

Route 480 (L) At Route 5: intersection conflicts, pedestrian conflicts;

Route 1/7 (L) Poor visibility at Route 51;

Route 1/17 (L) Rough 1‑lane dirt road;

Route 9/3 (L) Poor visibility at Route 9;

Route 9/4 (L) Within 100 year flood boundary; portions frequently covered with water;

Route 9/5 (L) Partially dirt road with pot holes; many curves on 2‑lane paved section; serves several large residential developments;

Route 11 (L) No signals and rough at RR crossing (Mt. Pleasant Rd.)

Route 13 (L) Poor visibility at Route 51 and 51/1; S curves; 90 degree turn at Rt. 13/2;

Route 16/1 (L) No signals at RR crossing; poor visibility at Rt. 230 and Rt. 13/1;

Route 16/4 (L) No signals at RR crossing;

Route 17 (L) Rough, no signals at RR crossing at Flowing Springs Run; bad curves S. of Duffields and near Dogwood Manor; poor visibility at Rt. 18 and Rt. 22;

Route 18 (L) Limited visibility at Rt. 17;

Route 21 (L) Difficult ingress/egress at Rt. 340;

Route 24 (L) Rough, no signals at RR crossing at Flowing Springs Run;

Route 25 (L) One‑lane traffic at Kabletown bridge with sharp curve at S. end;

Route 26 (L) Poor visibility at Rt. 340;

Route 27 (L) At North: one‑lane tunnel with hill and sharp curve; At South: within 100‑year flood plain, rough, no signals at RR crossing;

Route 28 (L) Several unmarked sharp curves;

Route 29 (L) Rough RR crossing on curve;

Route 30 (L) Several unmarked curves;

Route 31 (L) Poor visibility at junction Rt. 31/1, Rt. 17, & Rt. 16/1;

Route 32 (L) Inadequate turning space; 1‑lane on hill, hazardous when wet or icy;

Route 32/1 (L) Limited visibility at Rt. 32;

*Road Classifications: P = Primary (Trunk);

S = Secondary (Feeder);

L = Local Service

Projects that are in the design report phase are as follows:

1. Route 9, Charles Town to Route 45 in Berkeley County, upgrade to four lanes,

2. Route 9, Charles Town to Virginia State line, upgrade to four lanes.

Long‑Range Highway Projects

In the 1986 Comprehensive Plan concern was expressed that major improvements in the State road network had been slow to materialize. Since then major improvements‑‑Charles Town Bypass and Bloomery Bridge‑‑have been completed and preliminary design work is proceeding on complete upgrading of Route 9 and replacement of the U.S. Route 340 Shenandoah River Bridge. The concern being expressed now relates to how any rerouting of Route 9 might affect land use. In fact, the route planning process is a function of the WVDOH and contains numerous opportunities for private citizens and local jurisdictions to present their concerns and preferences. WVDOH after this extensive planning and public process selects the final route. Once this route is selected the County may alter land use policy as deemed necessary. Under the current Land Evaluation and Site Assessment (LESA) system properties near upgraded major highways would become more eligible for conditional use permits for higher intensity uses. Under traditional zoning, map amendments would be needed following a major highway upgrading or relocation plan in order to adjust land use to the newly enhanced transportation system.

Citizens have expressed the desire to be more involved in the route selection process possibly even to the extent of proposing routings. As noted above, the WVDOH process provides opportunities for a wide range of input to the route selection process. This could include an actual proposed alignment.

PRIVATE ROADS

Since the County has no legal authority to build, own, and maintain roads, the responsibility falls upon the developers, who eventually transfer ownership and responsibility of maintenance to the property owners. Almost all of these roads remain in private ownership. However, the West Virginia Division of Highways has procedures whereby a private subdivision road may be added to the State road system.

Before the County Subdivision Ordinance was adopted, no method existed to provide for maintenance of these private roads, and maintenance on many was minimal or nonexistent. Since 1979, the County has required that a formal road maintenance agreement be developed and recorded for each new subdivision. Although road maintenance agreements provide a mechanism that subdivision residents can use to keep roads in repair, they do not ensure that regular maintenance or snow removal takes place.

Maintenance problems on private roads can be minimized with good construction practice and sound road section standards. The JCPC has modified standards to achieve stronger roadways and should continue to develop standards that result in low maintenance roadways.

At present, several roads within the County are not included in either the State or private road systems. In general, these are roads in which the ownership is uncertain and include some roads that the State refused to accept when it took over the other roads in Jefferson County. Some of them (such as the one leading to the Valley View Subdivision in Bakerton) now serve new development. In some cases, paved roads have deteriorated to the point where vehicle damage is a possible outcome of regular travel over these roads.

PUBLIC TRANSPORTATION

PanTran, Bus Service

The Eastern Panhandle Transit Authority, PanTran, provides bus service within the City of Martinsburg and between Martinsburg and other locations in Jefferson County and Berkeley County, including Charles Town, Harpers Ferry, Shepherdstown and Inwood. Service is available Monday through Saturday.

PanTran provides route‑deviated service as far as 3/4 of a mile off the regular routes for any passenger when requested in advance. All PanTran buses are wheel‑chair accessible. The service operates eight buses. In 1986 there were seven buses, but only two of them were wheel‑chair accessible.

Ridership has doubled in Jefferson County since early 1993. The causes of this increase have not been determined.

As traffic density and population increase, public transportation can be used as one means of relieving congestion in affected areas and of providing low income and elderly persons access to employment, shopping, recreation, and health services. However, experience has shown that people rarely make efficient uses of buses as long as it is more convenient to use their cars. Thus, any transportation plan that includes buses will have to provide incentives both to riders and carriers without creating a financial burden for the public.

Commuter Rail Service

The rail commuter service from Martinsburg to Washington, D.C. has attracted a growing number of County residents. Between mid‑1988 and spring of 1992 the number of a.m. boardings has increased from approximately 60 to 160 at the Duffields stop and from 130 to 170 at the Harpers Ferry stop.

Parking is a critical problem for this service. The Duffields stop has a gravel parking lot with no amenities (lighting, telephone or restrooms) and which currently has no reserve space. A future stop at the Burr Industrial Park several minutes away is planned, but has not been programmed for development. It could replace the Duffields site without inconvenience to most commuters. On the other hand, commuters boarding at Harpers Ferry are faced with possible loss of the current parking lot which now is owned by the National Park Service (NPS). NPS is reputed to have other plans for the site. The growth in the number of riders boarding in Jefferson County is exceeding the rate of population growth. Based on the parking situation cited above it would not be unreasonable to ask whether or not ridership would be even higher if parking were more convenient and available.

Commuter rail systems in general are heavily subsidized by State and Federal funds. Rider fees only cover a portion of operating fees. Capital costs are totally subsidized. This suggests that future growth of commuter rail service will be affected by success of other strategies (van pooling, High Occupancy Lanes on freeways close to Washington), uncertainty of fiscal policies of the State and Federal governments, relative attractiveness of exurbia living and the cost‑to‑ride relative to other options.

Other Strategies

High Occupancy Vehicle (HOV) lanes are programmed for the I‑270 corridor of Maryland. When these lanes are open and if they achieve the success of HOV lanes in northern Virginia, they could attract some County commuters to use van pools. Although van pooling and HOV lanes are not, strictly speaking, public transportation, they achieve many of the objectives of public transportation. In numerous cities HOV lanes have attracted more commuters from using single occupancy vehicles than have heavy‑or light‑rail systems, although they have not received the fanfare that rail systems have. In the event a substantial trend of van pooling should develop marshalling areas will be needed at which van poolers can meet their vans and park their cars.

OTHER ISSUES

Shepherdstown

Traffic passing through Shepherdstown must go through the intersection of Routes 45 and 480. Traffic at this intersection is controlled by stop signs on each of the four legs. Traffic volumes are high enough that there is a relatively steady flow of traffic to the intersection. With this four‑way stop control vehicles are released onto Route 45 at a rate of about one every five seconds. This creates a situation whereby it can be difficult for vehicles desiring to enter Route 45 from adjoining properties. Signalization of the intersection would help relieve this situation because vehicles would be released from the intersection in "platoons", thus leaving longer gaps between platoons which entering or left turning vehicles could use.

The question as to whether or not there will be a Shepherdstown bypass is frequently asked. As of this time there are no solid proposals for such a bypass. Traffic volumes probably would not warrant such an effort for many years. However, in the process of development it would be useful if a secondary link between Route 480 and Route 45 were to result. This may be possible by linking future land development parcels in the area southwest of Shepherdstown.

At‑Grade Railroad Crossings

The 1986 Comprehensive Plan cited at‑grade railroad crossings in the County as potential traffic hazards. As noted previously the WVDOH has been installing gates and warning lights at selected RR crossings. Emergency Services Companies have agreements relative to providing coverage when access is cut off by railroads. The Charles Town Bypass crosses two rail lines with grade separation structures thus eliminating the cut off problem in the adjacent areas.

ISTEA

The scope of transportation related activities that are eligible for Federal funding was broadened by the Intermodal Surface Transportation Efficiency Act (ISTEA) of 1991. Flexibility as to how States use their Federal allocation is a major element of this Act. The County needs to keep abreast of these decisions to identify opportunities for application of Federal funds to the solution of local problems and enhancement of the County transportation system. (More data is expected on this subject).

RECOMMENDATIONS

Transportation problems in Jefferson County largely fall within the purview of State agencies. However, the County, by being aware of the State‑of‑the‑Art of Federal and State transportation programs and by taking an active role in initiating actions to solve transportation problems, can maximize its role in planning and operating the transportation system.

The following recommendations are categorized to correspond with the headings used in the 1986 Comprehensive Plan.

Land Use Regulations

o Subdivision planning should provide for collector route to connect large subdivisions.

o Village center concepts should be investigated as a means of encouraging walking and bicycling as modes or transportation.

o Developers of large subdivisions should be encouraged to provide commuter and van pool parking areas.

o Zoning and subdivision ordinances should provide flexibility for locating commuter and van pool parking areas.

o The Roadway Adequacy criterion of the LESA System should be reviewed for possible reclassification of roads to provide more road categories.

o (1986) As areas for commercial and office use are developed, the high volume of traffic generated by these businesses should be channeled to roads capable of handling it. Two‑lane roads with limited sight distances and many turns are not adequate for office and commercial uses. Residential, low density traffic uses should be placed along minor roads.

Coordination and Planning

o (1986) Ways for routing traffic around Shepherdstown need to be explored as soon as possible.

o (1986) Jefferson County should develop the public or private means to bring existing private roads up to State standards and to ensure that new private roads meet the appropriate design criteria where such roads are deemed to be candidates for inclusion in the State system.

o (1986) The County should advocate the adoption of legislation which officially designates planned public highway improvements to reserve those corridors for acquisition and restrict private land and building development.

o The County should participate in all public input stages of planning for limited access roads in order to influence the choice of locations.

o The County should cooperate with the State rail agency in establishing a parking lot to replace the Harpers Ferry site if the U.S. Park Service closes the present site.

Access Control

All the recommendations from the 1986 Comprehensive Plan have been implemented.

Generation of Revenue

o (1986) Residential or commercial developments should help pay for the improvements needed to accommodate increased traffic flow.

o (1986) Federal funds should be sought to supplement State and local transportation funds.

o (1986) County officials need to find methods of obtaining more State highway funds and of having increased control over locally generated tax revenue.

o Determine how the County may benefit from the Federal ISTEA program to fund highway improvements, commuter services and pedestrian pathways.

Specific Improvements

o The County should establish a process for making recommendations to the State that priorities be given to upgrading specific intersections, improve certain road alignments, create or widen shoulders, and improve at‑grade railroad crossings.

o (1986) The County should recommend that the state use the following priorities for road maintenan ce: Resurfacing, snow removal, shoulders, signs and signals, markings and trash removal.

o (1986) The Governor should be encouraged to use his authority and direct the B & O Railroad to enlarge the Bakerton Underpass to three lanes.

o The County should support the improvement of the U.S. Route 340 Shenandoah River Bridge and the Shepherdstown Bridge over the Potomac River.

o The County should support the addition of basic services to the Duffields rail stop.

o The County should support continuing efforts to enhance existing public transit services, especially the PanTran service.

o Crossing gates should be encouraged on all railroad crossings.

WATER RESOURCES

INTRODUCTION

The following sections present an analysis of the water resources, an overview of current and anticipated problems, and recommendations for the future. In this chapter, as in virtually every section, the problems and resources of the municipalities must be considered when a comprehensive plan for Jefferson County is formulated, even though these municipalities have independent systems of land use planning and regulation. Central water facilities are located in these towns and generally have the capacity to accommodate some adjacent development. Since future growth is expected to take place primarily outside the incorporated areas, municipal and County needs will have to be carefully coordinated.

WATER AVAILABILITY AND USE

Source

The Potomac and Shenandoah Rivers are utilized to provide water to five municipalities and areas surrounding those municipalities.

Groundwater from wells and springs provides water to industry, agriculture, private water systems and single family homes. As of 1988, 58.5% of Jefferson County Residents relied on surface water for their needs. The remaining 41.5% utilized groundwater from wells and springs.

While the greatest usage at present is surface water, the greatest potential for future use is groundwater. The U. S. Geological Survey study of Jefferson County's groundwater (Kozar and other, 1991) emphasized answering questions about quantity and quality of groundwater, particularly in the limestone (carbonate) areas of the county. Approximately 86% of the county is underlain by limestone. this study found that three limestone formations are the most productive. These formations underlie 55% of Jefferson County and yield about 86% of the total flow to springs in the County. The following summarizes the findings:

Percent Yield Range

Formation of County (galls/day/sq. mile)

Chambersburg 4 1,300,000 ‑ 1,500,000

Beekmantown 19 290,000 ‑ 485,000

Conococheague 32 175,000 ‑ 375,000

These formations alone conservatively produce 34.6 million gallons of water a day or an average yield of 300,000 gallons per day per square mile. The USGS study of the Potomac River Basin in West Virginia (Hobba and others, 1976) cites an average yield for the carbonate (limestone) aquifers (86% of the county) of 500,000 to 600,000 gallons per day (GPD) per square mile or 938 galls per day per acre. This would suggest a total average yield from the carbonate aquifers of 90.7 million gallons per day.

Availability

Figure 2 below demonstrates that theoretically, when all the present uses of water are concentrated in one of the three geological formations, there is still an excess of available water.

This graph only shows how far these three aquifers could be stretched. It would be irresponsible for any planning body to base future growth on these figures.

Groundwater flow in the county is concentrated in secondary fractures in the rock, so there is a wide range of well yields depending, among other factors, on the depth of the wells and whether the well encounters significant fractures. It would not be possible or desirable to recover all of the available groundwater through wells. Under no circumstance should the groundwater withdrawal exceed the recharge rate to the aquifer. If the annual recharge to the carbonate aquifer is eight inches per year (Hobba and others, 1976), the total average daily groundwater recharge to the carbonate aquifers in Jefferson County is approximately 69.3 million gallons per day or 380,900 gallons per day per square mile. This is the figure that should be used to evaluate the impact of future development in 86% of the County.

The western flank of the Blue Ridge Mountain east of the Shenandoah River is an area where there are many residents. There is much less potential for continued growth based on utilizing groundwater for individual homes. Groundwater recharge is much less on the steep slopes and the poor aquifer of medasedimentary rocks. Hobba (1976) cites a yield of 100,000 to 200,000 gallons per day per square mile or 312 gallons per day per acre for these aquifers. A liberal estimate would suggest that this is only a third of the water that is available from the carbonate aquifers in Jefferson County (312 vs. 938). The West Virginia Department of Health uses 70 gallons per person per day as a design standard. This suggests a one acre lot on the Blue Ridge will have enough water for a family of 4 to 5 people. Just like in the carbonate aquifers, there is a wide range in the yield of wells drilled in these aquifers. It will not be possible to recover all of the available groundwater through wells.

Use

The use of water in Jefferson County was estimated at approximately 9 million gallons per day. Table 43 and Figure 3 show the categories of the end users:

Table 43 GROUNDWATER USE IN 1988 (values in million gallons per day)*

Public water supply 1.83

Rural Domestic .85

Agriculture

Fisheries 1.10

Dairy Facilities .47

Irrigation (spray arch) .58

Industry 1.69

Mining 2.00

Commercial (motels, schools) .20

Total 8.72

*Geohydrology, Water Availability and Water Quality of Jefferson County, 1991

PUBLIC WATER SYSTEMS

Systems

At present, the District Office of the West Virginia Health Department monitors 33 community systems and 10 transient water systems in Jefferson County. Map 4 shows the locations and Table 44 contains a list of these systems. Community systems are defined as those which provide a domestic water supply. Transient systems are those which provide water for at least 75 users at least 60 days per year. These include such systems as schools, federal installations and the County's industrial park. Community water systems serve a population of over 20,700. Three major public systems supply over 65% (13,380) of the population. These public‑operated central water systems serve the municipalities of Charles Town/Ranson (7,280), Shepherdstown (4,500) and Harpers Ferry/Bolivar (1,500). Surface water is the source of their water. Water treatment by privately operated central systems constitutes the balance of the community systems. These thirty (30) systems serve approximately 7,400 people. They have an average population of only 245 people with a range of between 38 and 1500 persons per system. The smaller systems are generally limited to chlorination to eliminate pathogenic organisms.

Table 44 JEFFERSON COUNTY WATER SYSTEMS

System, Source, Treatment, Capacity, Service Area, Population, fire protection

Municipal Systems

Charles Town/Ranson, Shenandoah River, Complete, 3,000,000, Charles Town\Ranson, 7,000, yes

Harpers Ferry\Bolivar, Potomac River/Elk Run, Complete, 700,000, Harpers Ferry/Bolivar/Cliffside/Cavalier Heights, 1,500, yes

Shepherdstown, Potomac River, Filtration/Chlorination/Carbon Feed/Chlorination, 500,000, Shepherdstown/Rt.45 N to Heatherfield/Mecklenberg/Willowdale/and Shepherd College, 4,500, yes

Private Systems

Cave Quarter Estates, Well, Chlorination, 2,000, Same, 40, no

American Society for Continuous Education, Well, Chlorination, 1,200, Same, 100, no

Fox Glen, Well, Chlorination, 1,500, Same, 800, no

Glen Haven, Well&Spring, Chlorination, 1,500, Same, 1500, no

Green Acres Trailer Park, Well, Chlorination, --, Same, 70, no

Harpers Ferry Mountain Club, 4 Wells, Chlorination, 20,000, H.F.Campsites, 350, no

Keyes Ferry Acres, 4 Wells, Chlorination, 100,000, Same, 530, no

Leights Trailer Court, 2 Wells, Chlorination, --, Same, 80, no

Millville Water System, Well, Chlorination, --, Same, 87, no

Ott's Mobile Home Park, Well&Spring, Chlorination, --, Same, 120, no

Parkview-Woodland, Well, Chlorination, 1,000, Same, 300, no

Potomac Farms, Well, Chlorination, 700, Same, 75, no

Security Hills-Walnut Grove, Well, Chlorination, 30,000, Same, 450, no

Shenandoah/Witch Hazel, Well, Chlorination, 20,000, Witch Hazel & Part of Shenandoah Junction, 400, yes

Shenandoah Plantation Mobile Home Park, 2 Wells, Chlorination, --, Same, 200, no

Shockey's Mobile Home Park, Well, None, --, Same, 42, no

Tuscawilla Hills, Well, Chlorination, 20,000, Same, 1350, yes

Valley View Mobile Home Park, Well, Chlorination, -- Same, 60, no

Westridge Hills, Well, Chlorination, 5,500, Same, 275, no

South Cavaland, Well, Chlorination, --, Same, 117, no

Russells Mobile Home Park, Well, Chlorination, 10,000, Same, 40, no

Potomac Terrace, Well, Chlorination, 1,500, Same, 45, no

Kratz Mobile Home Park, Well, Chlorination, 1,500, Same, 68, no

Dillows Mobile Home Park, Well, Chlorination, 2,000, Same, 70, no

Sanitary Association, Charles Town Water, --, --, Same, 280, yes

Graves, Well, Chlorination, 2,000, Same, 38, no

Many of these systems were installed before the Planning Commission had design standards. Several of these systems are not providing an adequate and safe source of drinking water on a consistent basis. More than one has gone into receivership and will eventually be taken over by the Jefferson County Public Service District. These aging and poorly designed systems will need to be upgraded with little or no federal or state funds to lessen the financial burden on the Public Service District or the users of the water system.

Safe Drinking Water Act and Other Rules

The 1986 Amendments to the Federal Safe Drinking Water Act will have major effects on these water systems and may create an economic hardship on the small systems. The following highlight these amendments:

Surface Water Treatment Rule

1. Water must be filtrated.

2. Wells that have certain characteristics will be considered surface water and must be filtrated.

Lead and Copper Rule

1. All systems are responsible for treating water so it is "nonaggressive" to the plumbing in the home and the distribution lines of the system.

2. Additional costs for treatment to change the pH are possible.

Monitoring

1. Systems will be required to monitor initially and possibly on a regular basis for pollutants that may be found in the drinking water. This will add some additional costs to providing water.

Non‑transient, non‑community systems will be required to meet these requirements as well. This includes such facilities as public schools, the County's industrial park, Charles Town Races and other facilities where twenty five (25) people consume water at least 60 days a year. Sanitary surveys will be completed once every five years for groundwater systems and once a year for surface water systems by the West Virginia Department of Health.

Water systems in Jefferson County must meet the requirements of the West Virginia Department of Health. The County Subdivision Regulations contain engineering design provisions for central water systems and also incorporate the State Health Department's requirements by reference. The largest problem with the installation of these systems is the lack of on site inspections during construction.

WATER QUALITY

Private Wells

The installation of private wells is regulated by the Health Department and the Planning commission. Many wells, constructed before current regulations were in place, have a greater susceptibility to surface water contamination from pollutants such as fertilizer and pesticides. This not only applies to wells located on farms, but also to the average home owner who uses these same products to achieve a well maintained lawn and garden. In three separate studies, namely the National Survey of Pesticides in Drinking Wells, a study done by Dr. Henry Hogmire of the West Virginia Experiment Farm on water quality of wells in orchards and the results of well sampling by the U. S. Geological Survey (USGS) in Jefferson County, found that shallow, ungrouted wells had the greatest potential for contamination.

Although the County possesses substantial groundwater resources, they are easily accessible and susceptible to damage. The geological formations of the County which provide abundant water fail to provide adequate groundwater protection. Sinkholes, rock outcroppings and fissures provide open channels for animal and human wastes, petroleum products, and stormwater runoff to directly enter and contaminate groundwater resources. Nitrates have been mentioned in studies done by the USGS as a contaminant found in many of the wells surveyed. Other work done by the Jefferson County Extension Service in 1989 found nitrates in 31.6% of the wells tested over a short period of time. In other study of wells done by the Extension Service in cooperation with the District Health Office, samples of wells were taken over a year and a half on a quarterly basis. These results showed that a highly variable level of nitrates could be found in wells with no correlation to the time of year orrainfall. Levels above the drinking water standard for nitrates were found in grouted as well as ungrouted wells.

USGS Study

The 1991 study by the USGS did not show significant change in the water quality between samples taken in 1974 and samples taken in 1988. This despite the fact that many of the wells surveyed were susceptible to surface water contamination.

Protective Measures

The agriculture community, through the efforts of the Soil Conservation Service (SCS), has begun a program to visibly mark sinkholes in fields and create a buffer zone of permanent vegetation to filer contaminants and keep the application of fertilizers and pesticides away from the sinkhole. The SCS is also exploring a method of capping sinkholes to prevent infiltration of surface water. The Extension Service in cooperation with the SCS is also assisting agricultural producers to use less commercial fertilizers and give more credit to the nitrogen provided by the animal manures. One producer is lowering the potential for nitrate contamination by composting the animal manure which consumes a portion of the nitrogen in the breakdown of organic matter.

Groundwater has the greatest potential to be the primary water resource for the County's residents and businesses. Policies adopted by the County and other agencies should provide for the optimum management and protection of groundwater. In addition, County and state agencies must recognize that presently, the majority of residents rely on surface water and must be aggressive in protecting these water resources.

FIRE PROTECTION

Adequate protection from fire is greatly dependent on the accessibility of adequate water supplies. At present, there are several parts of the county where adequate, easily accessible supplies are several miles away. Of the 33 public and private systems, only seven (7) have the capacity to provide fire protection for themselves or others by hauling the water. Other sources of water utilized in fighting fires include farm ponds and streams. A dry hydrant has been installed at Shannondale Lake which allows for fire equipment to pump directly from lake without a loss of pump efficiency. Further evaluation of a "pumping well" is being done by local fire fighters. This would be placed in water a source to create an area where efficient pumping could occur.

ANALYSIS OF PROBLEMS

This section needs to be read in conjunction with the section on Wastewater Treatment. Both of these areas are closely related, and changes in one can produce profound effects in the other. For example, virtually all common methods of treating wastes require quantities of water to operate properly. Therefore, the availability of water resources must be considered as part of the process of identifying problems and developing methods of wastewater treatment. In addition, improperly constructed or poorly functioning wastewater treatment facilities will reduce the amount of clean water available for other uses. Finally, all methods of wastewater treatment, from the largest central facilities to the smallest residential drainage/septic fields, produce solid waste. These solids must be disposed of properly to ensure a safe drinking water supply in the future.

Private Wells

o Approximately 16,000 Jefferson County residents obtain their water from individual wells. Shallow, (less than 100 feet), ungrouted wells can be susceptible to contamination from surface pollutants and act as a channel to pollute groundwater. Wells, grouted or ungrouted, are also susceptible to groundwater degradation from contaminants entering from sinkholes, rock outcroppings, and other fissures. This hazard is particularly great in older communities and in homes with relatively shallow (less than 100 feet) wells.

o The results of the USGS Study of 1991 shows that the groundwater supply in 86% of the county is adequate to sustain additional development with a reliance on individual wells for homeowners. The challenge is to utilize this study to monitor what portion of a particular aquifer is already committed to domestic or industrial use and how much may be an adequate buffer to ensure an adequate supply in times of severe drought or other natural disaster.

o The use of private wells does have the potential to diminish groundwater resources, especially in small lot residential developments being served by aquifers (underground sources) of limited yield. This would be more prevalent in the Berkeley Shale near the Opequon and the West Flank of the Blue Ridge Mountain.

Privately Operated Public Water Systems

o Additional requirements to meet water quality standards spelled out in the Amendments to the Safe Drinking Water Act will add more financial burden to smaller, older systems. In some cases, the water system service area and the demand exceeds the system's design capacity, especially for systems installed before design standards were adopted. In some other instances, the actual construction of water systems may not have been consistent with the engineered construction plans approved by the public agency. Inadequate inspection during the construction phase of the system has led to problems as well. Failure of more of these systems to provide a safe and adequate source of drinking water is possible.

o Central water systems permit more intensive (higher density) development than do private wells. Present regulations allow the use of central water systems on any site within the County as long as such systems comply with applicable design standards. the economic viability of small systems has been reduced due to the new regulations discussed earlier. This mix of approval and regulation could lead to an increase in the number of systems that must be taken over and managed by the county at a loss.

o The current Subdivision regulations require that central water systems meeting certain minimum pressure and flow rate standards must also provide fire hydrants. This requirement may be an incentive for subdividers to construct inadequate systems. A more rational requirement would like the provision of fire hydrants to the density of development and fire/rescue station needs. (In addition, the threading and size of hydrant couplings is not presently standardized, which lessens the effectiveness of fire/rescue services.)

Municipal Water Systems

o The incorporated towns of Shepherdstown, Harpers Ferry/Bolivar, and Charles Town/Ranson rely heavily on surface water as their source of potable water. Surface water resources are much more susceptible to contamination from various sources, including urban stormwater runoff, agricultural field runoff, and septic system effluent.

RECOMMENDATIONS

Many of the recommendations proposed below cannot be implemented without adequate manpower through volunteers or additional employees to monitor water quality and enforce regulations. One of the primary responsibilities of the County should be to develop a mechanism by which all county agencies responsible for ensuring adequate and safe drinking water share and provide information to each other. The agencies involved should be led by the Planning Commission and would include the West Virginia Department of Environmental Protection, West Virginia State Health Department, Jefferson County Health Department, Eastern Panhandle Soil Conservation District, West Virginia University Extension Service, and private citizens with expertise in this area. This group has multiple talents and multiple sources of information to assist decision makers in setting planning priorities by coordinating the vast amount of water quality and quantity data on Jefferson County. This group could also provide guidance on how to fill in the "gaps" of knowledge that might exist.

Private Wells

o The County should establish a program of periodically monitoring the quality and quantity of selected well water sources, especially those in potential problem areas. More specifically, a two to five year study should be done to evaluate water availability on the west flank of the Blue Ridge Mountain. An annual status report should be completed by the Planning Commission and submitted to the County Commission which provides updated information on the County's groundwater resources.

o In agricultural areas served by private wells, the County should review minimum lot size requirements and setbacks to ensure the continued availability of potable groundwater.

Privately Operated Public Water Systems

o When persons propose to subdivide lots within a development and add these new lots to the development's existing central water system, the County should continue to require such subdividers to adequately demonstrate that the additional lots can be served without a significant adverse effect on the quality and quantity of the water system.

o The County should critically examine the design standards contained in Section 8.2(d) of the Subdivision Regulations to determine if revisions are necessary to assure that water system design standards are appropriate to the scale of proposed development.

o To assure that central water systems are constructed in conformance with engineered construction plans, the County should provide professionally trained inspectors who have a civil engineering background.

o The County should adopt a policy of encouraging the construction and use of central water systems only in areas that are appropriate and designated for more intensive development by the land use plan.

o The County needs to work cooperatively with volunteer fire departments to create appropriate fire suppression standards for all new development. The Subdivision Regulations should be amended to reflect accepted fire suppression standards. A committee, possibly including one representative from each volunteer fire company and the Emergency Services Director should be formed to examine fire suppression standards and make specific recommendations to the County Commission for ordinance amendments. This committee should also evaluate and identify potential water sources that could be upgraded to provide a more complete network of fire protection.

Municipal Water Systems

o To protect areas that make use of surface water, the County should adopt and administer an effective stormwater management program/ordinance that maintains or improves the quality of the County's surface waters.

o To protect areas that make use of surface water, the County should adopt a program in conjunction with the local Soil Conservation Service and Extension Service which encourages local farms to use the best management practices (BMP) in their agricultural operations. These practices include maintaining undisturbed/untilled strips of land adjoining stream and creek banks, siting manure management facilities to minimize discharges of raw water into stream channels, and the appropriate application of nutrients and pesticides to agricultural crops and fields.

o An erosion and sediment control ordinance should be adopted.

o The types of soils and the availability of groundwater supplies should be used to determine if a large subdivision should be required to use a central water system.

WASTEWATER TREATMENT

INTRODUCTION

The following section presents an analysis of wastewater treatment, an overview of current and anticipated problems, and recommendations for the future. In this chapter, as in virtually ever section, the problems and resources of the municipalities must be considered when a comprehensive plan for Jefferson County is formulated, even though these municipalities have independent systems of land use planning and regulation. Central wastewater treatment facilities are located in these towns and generally have the capacity to accommodate some adjacent development. Since future growth is expected to take place primarily outside the incorporated areas, municipal and County needs will have to be carefully coordinated.

In the survey conducted by the Citizen's Advisory Committee in 1985, groundwater quality was perceived as one of the top ten problems in the county, while failing septic systems and wastewater treatment were not perceived as serious concerns at the time. However, water may be unsafe to use even when it tastes, looks, and smells acceptable. Organic clogging of drainage/septic fields and contamination of groundwater can occur quietly and invisibly.

On the other hand, the 1991 USGS Groundwater Study indicates that groundwater quality improved slightly or remained unchanged since the 1981 study. During that time nearly 4,000 on site sewage systems were installed in Jefferson County. Fecal coliform/fecal streptococci ratios indicate that about 90% of bacterial contamination in the study samples were of animal not human origin.

However, many communities throughout the country have learned the hard way that clean water is one of their most valuable resources and that water quality cannot be maintained without adequate methods of wastewater treatment and solids disposal. Once groundwater becomes polluted, the condition is virtually irreversible. Growth and development may stop, the local economy may suffer, and public health may be jeopardized. For these reasons, future residential and commercial development must not take place at the expense of water quality, wastewater treatment, or solids disposal.

EXISTING WASTEWATER COLLECTION AND TREATMENT SYSTEMS

Package Plants

Residential development in rural areas has increased substantially during the last 15 years and has made use of package treatment facilities. There are nineteen (19) of these private systems located throughout Jefferson County. Nine of nineteen would be considered transient systems if they were also providing water. These nine systems do not have permanent residents and fall into categories such as schools, motels and places of work.

Municipal Systems

The three main population centers of our County‑‑Charles Town/Ranson, Shepherdstown, and Harpers Ferry/Bolivar, all have excellent sewage treatment plants that serve the municipalities and some of the surrounding countryside. See Map 5 for locations and Table 45 for names of municipal and private sewage treatment plants.

Table 45 WASTEWATER TREATMENT PLANTS

Facility Name, Cap. MGD, Receiving stream, Location

Blue Ridge Elementary School, .012, N.B.of Forge Run, Harpers Ferry

Cave Quarters Estates, .123, Evitt's Run, Charles Town

Cliffside Motor Inn, .03, Alstad's Br.of Shenandoah

City of Charles Town-jefferson County PSD-Town of Ranson, 1.2, Evitt's Run, Charles Town

Harpers Ferry\Bolivar PSD, .3,Shenandoah River, Harpers Ferry

Harpers Ferry Job Corp,.01845, Elk branch of the Potomac, Harpers Ferry

Harpers Ferry Caverns MHP, .03, Elk Run, Harpers Ferry

Harpers Ferry KOA Campground, .035, Shenandoah River, Harpers Ferry

Jefferson County High School, .025, Elk Branch, Charles Town

Jefferson County PSD, , Charles Town Sewage Collection System, Ranson

Locust Hill STP, (3) 100,000, Evitt's Run, Charles Town

Ott's Mobile Home Park, .015, Forge Branch, Harpers Ferry

Page Jackson Elementary School, .012, Unnamed tributary of Evitt's Run, Charles Town

Priest Field Pastoral Center, .017, Opequeon Creek, Kearneysville

Prospect Hall Shooting Club, .00272, N/P Pond, Kearneysville

Shenandoah Downs Race Track, .1, Flowing Springs Run, Charles Town

Sanitary Associate's Limited Partnership, .135, Flowing Springs Run, Charles Town

Tuscawilla Utilities, .196, Evitt's Run, Charles Town

USDA Appalachian Fruit, .006, None, Bardane

Willow Spring PSC, .1, Cattail Run, Charles Town

Witch Hazel Mobile Home Park, .018, Elk Run, Shenandoah Junction

WV Department of Highways, .018, None, Leetown

[[original plan also has latitude+longitude, not yet available electronically]]

Public Service District

Jefferson County has a Public Service District (PSD) to collect sewage and wastewater outside of the municipalities. The PSD is presently made up of three board members appointed by the County Commission and a general manager and secretary selected by the board members. Presently the PSD has a collection line west of State Route 9 to the Burr and Bardane Industrial Parks. This line also serves the T. A. Lowery Elementary School. Another line extends north along State Route 17 towards Shepherdstown and serves a concentration of residences near Flowing Springs. A third line extends east on State Route 340 to the area near Charles Town Races. These collection lines will provide adequate service to these areas for future growth. The present lack of growth is placing a financial strain on the PSD, present users and those developers who would like to hook on. The PSD has one of the highest rates in West Virginia because of the lack of users and the cost of installing these extensions. Little state funds were available to install these lines leaving more than 25% local share to be paid in customer rates (approximately $3 million).

PRIVATE INDIVIDUAL TREATMENT

Traditionally, pit privies and septic/drainfield systems provided the exclusive means of wastewater treatment for Jefferson County. Given the agricultural nature of the County, these systems posed little or not danger to the community and natural environment.

Potential for Malfunction

Approximately seventy percent (70%) of the homes in Jefferson County utilize individual septic systems to dispose of domestic waste. The Health Department estimates that only two percent (2%) of the septic systems show signs of malfunctioning. If a liberal estimate of fifteen years is used for the life span of a septic/drainfield, then according to the Health Department 98% of the systems are less than fifteen years old. This statistic is unlikely. Unfortunately the only evaluation of a failed or malfunctioning septic system is by observing it from the surface. There has been no study of installed systems and how efficient these systems are in relation to their age. At present there is no way to determine if the effluent in the drainfield may be entering channels that lead to the groundwater. There is also no available scientific research which would assist planners in determining how concentrated housing can be without compromising the potability of the groundwater in the Karst (limestone) geology that covers 86% of the land area of Jefferson County.

Soils Suitability and the Soils Survey

One of the resources that is available that has not been used to make decisions on the concentration of housing is the Soil Survey of Jefferson County. This document provides a listing of the suitability of soils for septic tank drainage fields. A soil suitability map reveals that the areas with the greatest limitations (moderate to severe) are also areas where existing developments have lots of an acre or less. The largest area is the Blue Ridge Mountain. The second largest area is from the southern most corner of Jefferson County along the Opequon Creek to just north of Leetown. The majority of this area is west of the Leetown/Middleway Road. This area includes the communities of Middleway and Leetown as well as several developments. The third area is north of Shepherdstown along the Potomac River. Almost all of Terrapin Neck is slight to severe in suitability. This area also has several developments of various lot sizes. Another area of the county that has a severe rating in suitability and has a concentration of homes is the community of Kearneysville.

SOLIDS DISPOSAL

The West Virginia Department of Environmental Protection has taken over the responsibility of regulating the disposal of septage and sludge from wastewater treatment plants.

Septage

Septage (septic tank solids) has routinely been disposed of within the County by using the trench and fill method. Trench and fill involves dumping septage into four (4) to ten (10) foot deep trenches, adding lime, and evenutally back filling after several applications. This method will no longer be accepted as an approved method of disposal. Dumping septage at a larger sewage treatment is an approved method for disposal. Charles Town can handle a portion of the septage generated. Septage stabilized with lime may be applied to the land.

Sludge

Stabilized municipal sludge from Shepherdstown and Charles Town is utilized by the agricultural community as a plant nutrient. This method of disposal is monitored by the DEP and application recommendations are made by the WVU Extension Service. Other municipal and private plants may take advantage of this disposal method as the costs of disposing in sanitary landfills increase.

RECOMMENDATIONS

Specific recommendations related to wastewater treatment are discussed below. All methods of wastewater treatment, from the largest central facilities to the smallest residential drainage/septic fields, produce solids that must be disposed of properly. The agricultural community under the guidance of the DEP and the Extension Service can utilize these nutrients to replace commercial fertilizers.

The ability to access records of the County Health Department about well and septic tank installation may not be as easy as desirable. There is a need for better accessibility of these records with which to make long term decisions and look at trends. Another ability that would be desirable, is the ability to place each well and/or septic system on a map based on its latitude and longitude. This technology is available and should be utilized.

Public Wastewater Treatment Plants

The number of residents that can be served by the Public Service District depends, in part, on the amount of water that is available. If water is wasted or not used efficiently, the PSD will be faced with either limiting service or finding new sources of water.

o All new and remodeling construction in the County should be required to use water‑saving shower nozzles and toilets. Water‑saving devices would allow more homes to be added to the Public Service District system and user costs would be minimized.

o Building central wastewater treatment plants involves large capital expenditures. The availability of State and Federal funding for public central wastewater treatment plants continues to be limited and will probably remain so indefinitely.

o Jefferson County should actively seek Federal and State grants and matching funds, augmented by local bond issues which are repaid through user fees, to construct the facilities that the residents of Jefferson County will require. Such methods of financing should be continued to insure that localized projects are not a burden to the general taxpayers.

o A capital improvement plan should be developed to set priorities for which areas of the county have failures of domestic disposal systems and would cause the largest risk to public health and groundwater. This plan should consider the latest technology to reduce installation and operating costs of any proposed system. The plan should also be conscious of the growth policies in Jefferson County. This means that public systems should not proliferate in the farming districts.

o Whenever existing municipal sewage treatment plants are expanded or new central treatment plants are built, facilities should be provided for some septage disposal. Funding should be actively sought to help municipalities build such facilities.

Private Treatment Plants

There are nineteen privately operated package treatment plants within the County. Many of these plants have a life span that may require costly maintenance or replacement.

o Presently, the Department of Environmental Protection can approve a developer's industrial discharge permit (NPDES application) without the knowledge or approval of the County. The County should work with DEP to adopt a policy of forwarding all applications to the County for review and comment. The County currently has the authority to review the erosion and sediment control plan as well as the SWM NPDES application.

Residential Wells and Septic Systems

Small lot residential development using wells and septic systems present potential problems because systems can be located near one another. At present, subdivision regulations permit a well and septic system to be installed in a lot of at least 40,000 square feet. (An acre is 43,560 square feet.)

o The Jefferson County Soil Survey shows that there are several areas of the County that are not suitable for extensive concentration of residential septic systems. The limitations of the soil should play a role in determining how large lots should be so that adequate treatment and an accepted drainfield life span is obtained.

o A study should be done to determine the relationship between housing density and the efficiency of septic drainage fields. This is most important in the limestone region of the county. At this point there is no scientific research to assist planners and others concerned with groundwater quality with this question.

o The County should explore other methods of sewage discharge other than the "septic system only" approach.

o The types of soils should dictate allowed lot size and when a central system should be required.

SOLID WASTE

INTRODUCTION

The Solid Waste chapter in the previous Comprehensive Plan dealt with the disposal of Jefferson County's solid wastes in a simple, traditional fashion. Its authors warned that by 1991 the Leetown landfill could be filled to capacity. They urged that by no later than early 1989, efforts be initiated to expand the existing landfill or acquire a new site.

Since the previous plan was drafted, there has been a widespread rapidly growing awareness of the need to more closely regulate the disposal of solid wastes to safeguard the public's health and safety. Two major developments in the fall of 1991 eliminated the options set forth in the previous Plan ‑ expanding the existing landfill or acquiring and developing a new site.

Closure of Leetown Landfill

The first event occurred on September 3, 1991. On this date the West Virginia Division of Natural Resources (DNR), directed that the Leetown landfill "Cease and Desist" accepting solid wastes for burial. The closure order was based upon DNR's determination that continued operation of the unlined landfill created potential health and safety problems.

Senate Bill No. 18

The second event was the enactment of Senate Bill No. 18 in October, 1991. This comprehensive piece of legislation closely regulated every major aspect of solid waste collection and disposal. The legislation also set statewide standards and goals for recycling. Its most important feature, however, was that it established a closure assistance fund to be financed by a tax on tipping fees. The County Solid Waste Authority has been accepted for closure assistance and has begun engineering to monitor, cap and remediate the landfill. Construction is slated to begin in 1995 with monitoring programs to continue for thirty years.

ANALYSIS OF PROBLEMS

Unsuitable Geology

For the above reasons, it is no longer realistic for the Government to talk about expanding the Leetown landfill or developing a new site somewhere else in the County. Because the limestone which underlies most of the County, contains many fractures which could allow surface liquids to reach the water table, it is inherently unsuitable for use even for a state of the art landfill. Further, the cost of constructing a new landfill which met state standards, would be in the range of $450,000 ‑ $500,000 per acre. Thus, even if a suitable site could be located, the construction cost for a modest 40 acre landfill would be around $22‑25 million. In short, it would be one of the costliest public facilities in the county.

High Costs

With the closure of the Leetown landfill and the reality that we can neither find a suitable new site nor afford to construct a triple lined landfill, it is difficult to envisage a low cost stable solution to Jefferson County's solid waste disposal problems. For the foreseeable future, Jefferson County will be in the vulnerable position of having to dispose of its solid waste in out‑of‑county landfills. Due to our dependency upon the cooperation of out of area landfill operators whose charges are not subject to control by Jefferson County officials, it will be difficult to assure County residents that their waste disposal costs will be relatively reasonable and stable over the coming years.

Future Costs

The fact is, that all landfills have limited capacity. The day will come when the landfills presently accepting wastes generated in Jefferson County, will be forced to close too. There is, therefore, little prospect that costs of disposing of wastes ‑ anywhere‑ will decrease or even stay level. The opposite is much more likely. Currently, county wastes are trucked to the L.C.S. landfill in Hedgesville, West Virginia, at $38.70 per ton costs which greatly exceeds the pre‑closure tipping fees charged at the Leetown landfill.

Recylcing Program

If waste disposal costs are to remain relatively stable, we are going to have to continually reduce the tonnage of materials destined for burial in a landfill. An effective recycling program is one of the easiest and most direct ways of reducing the waste stream. The term, "effective recycling program" has at least two major elements. First, we must achieve a high level of participation by all generators of solid wastes. Second, we must maximize the range of materials which are recycled. It is hoped that the countywide recycling program unanimously approved by the County Commission on August 24, 1992 will result in the establishment of a program which meets these criteria.

The county‑wide curbside recycling program was started in July, 1993. At present the program provides residents with the opportunity to recycle paper, most plastics, glass bottles, aluminum and bi‑metal cans. Although modest tonnages were collected in 1993, the curbside program has great potential if all citizens on disposal service participate. The hauler estimated a 90% participation rate among customers on handling service in 1993. Waste generators that need to develop a full range of recycling programs participation is: the five municipalities, county, state and federal government agencies within the county, the county school system, and all commercial and industrial generators. To date no municipality in the County offers a curbside recycling pickup other than newspaper. Government agencies and commercial/industrial concerns are required to participate in a recycling program by Senate Bill 18 and the County's recycling ordinance.

The County's recycling program experienced a boost when in November of 1993 the Department of Natural Resources amended the Jefferson County Solid Waste Authority's recycling grant to allow the authority to use the $100,000 state recycling grant to begin a regional wood and yard waste recycling program as well as a county‑wide used motor oil collection program. The grant was used to purchase a large 300 HP industrial tub grinder to grind wood waste and yard waste into mulch and compost material. In addition the grant has purchased (ten) 275 gallon fuel tanks to be placed geographically throughout the county to collect used motor oil. The oil will be picked up by a used oil recycler and used to produce new oil products. The yard waste recycling program is estimated to potentially reduce the county's waste stream by 10 to 20%. All residential and commercial yard waste, wood, brush, and pallet producers must be encouraged to participate in this program that is located at the recycling site adjacent to the old county landfill. White goods, steel, and tires are collected and sent on to recyclers from the County's waste station at the old landfill on Route 15 east of Leetown.

As the complete program is successfully developed, the County should be able to meet the reasonable waste reduction goals of 30% by January 1, 2000 and 50% by January 1, 2010 compared to the waste tonnages generated in 1991.

Recyclable materials collected in Jefferson County will, in the short term at least, be processed and marketed at Waste Management Inc.'s facility in York, Pennsylvania. In the longer term, it is hoped that all recyclable materials could be processed at the Jefferson County Solid Waste Authority's material recovery facility at the Leetown landfill. Though the building needs to be finished and equipped, several firms have already expressed interest in operating the center. However, all interested parties agree that to justify the cost of equipping the plant they must have a regular, continuous supply of materials flowing through the plant.

A Regional Approach

The generally recognized minimum volume for a profitable recycling operation is 100 tons of materials per day. Even if there was a 100% participation rate by residents, businesses, industry and all the public agencies in Jefferson County, the total amount collected would be around 30 to 40 tons per day ‑ far short of the required minimum. The Jefferson County Solid Waste Authority (JCSWA) has therefore concluded that the only workable solution is to persuade our neighboring counties to participate in a joint regional effort.

Ideally, the regional approach would involve all the eight counties in West Virginia Economic Development Regions #8 and #9. Efforts are now underway and will be intensified in the coming months to establish a full scale regional recycling program. There are however, political, economic and administrative obstacles to overcome before an integrated regional program can be launched. For example, excessive transportation costs for hauling recyclable materials from the most remote counties, could preclude their participation.

Assuming a regional program can be organized, the Solid Waste Authority will work with staff from the Economic Development Commission to attract firms which could utilize recycled materials in their products. Success in this area would, of course, result in job creation. In the interests of fairness to participants in the regional recycling program, an effort would be made to apportion the jobs created in accordance with each county's tonnage contribution or some other jointly negotiated criterion.

Other Problems

Challenging problems without our county‑wide program still need to be solved by the Solid Waste Authority. For example, although the entire county is served by a waste hauler, only approximately 60% of the county's households subscribe to the service. Some of the non‑subscribers haul their waste to the transfer station at the Leetown landfill. Others dump on their own land, on other people's land or along the county's roads. Littering and illegal dumping is a chronic and persistent problem in the County. While current West Virginia law provides that every household must either subscribe to a waste hauling service or furnish evidence that their wastes have been deposited in a legally established facility, it is a difficult law to enforce.

The Authority plans to develop a program by the end of 1993 to collect recyclable materials from households which do not subscribe to a waste hauling service. In addition to a drop‑off center at the Leetown landfill, consideration will be given to locating additional fixed or mobile drop‑off points at convenient sites in more remote areas of the County.

For all the above reasons, it is in the self‑interest of every household, business and public agency in Jefferson County to fully participate in the recycling program. The only way of reducing the cost of disposing of solid wastes is by decreasing the amount of waste we generate in Jefferson County.

RECOMMENDATIONS

o The County has created an effective recycling program. The remaining challenge is to maximize participate by residential, commercial, industrial, and governmental waste producers. The programs must remain responsive to changing trends in waste generation and recyclable end use markets.

o The County land development laws should allow the Leetown facility to fully utilize its grounds for any related recycling or material recovery facility.

o The County should allow the location of fixed or mobile drop‑off points for recyclable materials throughout the County and should explore the possibility of green box locations for waste collection throughout the County to reduce illegal dumping.

o The County should continue to support and endorse a regional approach for landfills and recycling.

LAW ENFORCEMENT AND EMERGENCY SERVICES

INTRODUCTION

This section presents (1) an analysis of the present police, fire, and rescue services, (2) an overview of current and anticipated problems, and (3) recommendations for the future. Although the municipalities of Charles Town, Ranson, Harpers Ferry/Bolivar, and Shepherdstown are not in themselves part of a comprehensive plan for Jefferson County, they provide County residents with essential services. In fact, most of the emergency services equipment and offices are located in these municipalities, while future growth is expected to take place primarily outside the incorporated areas. Thus, it would be logical to either (1) direct growth in areas where these services can be provided at reasonable cost or (2) require the provision of these services where growth occurs. This report strongly supports the first option.

Citizen Advisory Committee Survey

In a survey conducted by the Citizen Advisory Committee in 1985, public services were not among the top five problems identified by respondents. Police protection was seen as the 9th most important problem, although traffic congestion‑‑a related problem‑‑was ranked 4th. Fire and rescue services were not listed. This survey has not been updated.

Key Factors

Future emergency services needs will depend primarily on the age, location, and size of our future population and on changes in the road system. The effective delivery of emergency services will depend on several factors. First, close cooperation among State, County, and Municipal agencies is essential if citizens are to be provided adequate emergency services at a reasonable cost. Second, volunteerism is the backbone of Jefferson County's fire and rescue services and needs to be nurtured to ensure adequate staffing of the services. Third, State laws need to be modified so that counties have more flexibility in dealing with problems brought on by rapid development.

Emergency Services Communication

Emergency services communication in the County is provided through the Office of Emergency Services and Emergency Operating Center located at the Bardane Health Center. The Communications Center has a 100 foot antenna and is provided with auxiliary emergency power. Radiological monitoring teams are also available. All County emergency management activities are coordinated through this office. The office also has a 6 x 6 wildfire control unit and a mobile communications vehicle capable of communicating with local, State and Federal agencies and industrial and nonprofit organizations.

LOCAL, STATE, AND COUNTY LAW ENFORCEMENT

Citizens of Jefferson County are served by the municipal police forces of Charles Town, Harpers Ferry/Bolivar, Ranson, and Shepherdstown, and the county‑wide services of the State Police and the County Sheriff's Department. Depending upon the urgency of the request and the availability of the appropriate local personnel, municipal police will respond to emergencies outside their jurisdiction. Full protection for the entire County is provided through the informal cooperation of these State, County, and local police departments.

The County has a "911 Central Dispatch System," whereby all emergency calls are received by a communications center. This center was installed in 1980 and is responsible for dispatching the nearest available unit having jurisdiction.

Municipal Services

Charles Town Police Department

The Charles Town Police Department is located at 105 South George Street. The Department has nine officers, a meter maid, a secretary, and four vehicles. Equipment includes radar and a K‑9 unit. The building is in good condition. All officers are State certified.

Ranson Police Department

Located in the Town Hall, the Ranson Police Department has eight officers and four vehicles. The station is equipped with two radar units. All officers are State certified.

Shepherdstown Police Department

The Shepherdstown Police Department includes the Chief of Police, three patrolmen, and a secretary. The Chief of Police and two officers are currently certified by the State of West Virginia, and the other officer currently is attending the West Virginia Police Academy. Regular service is provided 8.5 hours on Sundays, 8 hours on Mondays, Tuesdays, and Wednesdays, and 21 hours of service on Fridays and Saturdays, when two officers are on duty from 8 pm to 3 am. An officer is on alert at all other times.

The Corporation of Shepherdstown is comparatively small, having a population of approximately 1,300. However, an additional 6,100 residents live within the Shepherdstown District.

Furthermore, Shepherd College has 3,600 students currently enrolled plus personnel. Approximately 2,600 of these students are commuters. The remaining 1,000 students live on‑campus. Local traffic is occasionally heavy because of travel to and from the horse race track and because of activities sponsored by the college.

Harpers Ferry/Bolivar Police Department

The personnel includes a Chief, a Corporal and a patrolman. All of the officers are certified by the West Virginia Governor's Committee on Crime, Delinquency and Correction. Twenty‑four hour coverage is normally provided by the department every day. Coverage until midnight is offered on Sundays, Mondays, and Tuesdays The department has two vehicles, radios, radar units, and various emergency equipment.

This police department provides services not only to the residents of Harpers Ferry and Bolivar but also to the tourists that visit the areas adjacent to Harpers Ferry National Historic Park.

Analysis of Municipal Services

Table 46 includes a summary of municipal police protection for 1993 and projects personnel and vehicle requirements for the year 2005. It should be noted that the current "level of service" indicates the number of officers or vehicles per 1,000 town residents. Requirements for the year 2005 have been developed by estimating the future County population at 46,000 and determining the number of officers and vehicles that would be needed to provide the same levels of service present in 1993.

Level of Services

Current ranges in levels of service for the towns as shown on Table 46 (2.27 ‑ 3.24 for officers and 1.28 ‑ 1.62 for vehicles) are substantially higher than those provided to the unincorporated areas. These differences are partly due to the different kinds of law enforcement services needed in urban and rural areas. They may also be related to the different structure of County and municipal governments and the ways they deal with issues related to law enforcement. In 1986 these ranges had wider spreads ‑‑ 1.67 to 3.88 for officers and 0.7 to 2.9 for vehicles.

Table 46 STATE, COUNTY AND LOCAL POLICE PROTECTION

Agency, Location Existing Services (1998) Future Services

Level (2005)

Number of Service^a Projection

Of Ve Of Ve Of Ve Facility Needs

WV State Police, Health Services Center, Bardane 8 4 0.22 0.11 12 8 Larger offices are planned

Jefferson County Sheriff's Dept,

Jail Building, corner of George and Liberty St, Charles Town 8 9 0.22 0.25 28 16 More office space

Charles Town Police Dept, 105 S. George St. 9 4 2.88 1.28 10 5 Presently adequate

Ranson Police Dept, Ranson Town Hall 8 4 3.24 1.62 10 5 Interior renovation

Shepherdstown Police Dept, Shepherdstown 4 2 3.11c 1.55c d d Presently adequate

Harpers Ferry Police Dept, Corner Washington 3 2 2.27 1.5 d d Presently adequate

TOTALS 40 25

Of - Officers; Ve - Vehicles

a. the level of service is based on the number of officers and vehicles per thousand population served at present and based on 1990 census population.

b. Projections are based on a County population of 48,000 by the 2005 assuming the same level of service. Greater or lesser levels of service may be desirable based on other factors such as existing deficiencies, number of calls or level of reported crimes.

c. Does not include the 1000 students who live within the Shepherdstown corporate limits during 9 months of the year.

d. Population declines are expected to either level off or continue. Thus no increased services are projected.

Source: Adjusted per Bureau of Justice Statistics Bulletin, LEMAS Report, February 1992.

Incidence of Calls

Table 47 shows incidences of calls for police services received by 911 in Jefferson County for 1983 through 1985 and 1987 through 1992. However, when data on the number of police officers and the population of the incorporated areas are also reviewed, the different levels of police coverage needed for urban and rural areas become apparent. For example, during 1992 the City of Charles Town, with 8.7% of the population of Jefferson County, was served by a municipal police force that represents 22.5% of all officers countywide and who responded to 18.3% of all police calls in the County. On the other hand, 76% of County residents currently live outside the incorporated areas and are served only by the State and County police departments. These two departments account for 40.0% of all officers in the County and responded to 48.6% of all police calls countywide. On a per capita basis, the incorporated areas had 0.85 calls per person whereas the unincorporated area had 0.37 calls per person.

The data in Table 47 shows that there was a change in the reporting criteria in 1988 and that since that time there have not been strong trends either in increases or decreases in the number of calls. Logic suggests that the number of calls would correlate with the population size. But the fact that the number of calls per capita varies significantly between incorporated and unincorporated areas indicates that other factors such as proximity to neighbors or demographic characteristics may influence the number of police calls as strongly as population size alone. Hence, projections of need probably should be made for both incorporated and unincorporated areas.

Staffing Needs

Based on population projections alone, the unincorporated area would need a minimum increase in police officers of 28% by the year 2‑‑5. This does not account for any currently perceived shortfalls. Using the incorporated population trend between 1980 and 1990, the municipalities would need to increase their staffs by a minimum of 9%. On the other hand, using national averages, the Sheriff's department would need an increase of 375% to comply with these averages.

Over the period, 1987 to 1992, the percentage of all calls that were municipal police calls has been declining ‑‑ 58.5% to 51.4%. In 1991 the percentage was as low as 46.4%. This trend runs counter to the opinions expressed in the 1986 Comprehensive Plan which suggested that municipal police would be receiving more calls due to development of adjacent unincorporated areas, that traffic congestion and parking problems also would increase for the same reason and that the municipal police would experience a growing dependency on the State and County police departments thus placing added burdens on these departments.

Table 47 POLICE CALLS IN JEFFERSON COUNTY, 1983‑1985 1987‑1991

Agency Responding, Number of Calls

1983 1984 1985 1987 1988 1989 1990 1991 1992

Charles Town

4968 4404 5142 4290 3582 3580 3790 3644 3623

Ranson

3259 4107 4230 4209 3394 3628 3832 3120 3440

Harpers Ferry/Bolivar

2378 1500 2224 1552 990 1159 928 1212 1426

Shepherdstown

711 975 1368 1993 1046 1319 973 978 1703

SUBTOTAL

11316 11461 13064 12044 9020 9686 9523 8554 10192

58.5% 53.5% 51.8% 50.6% 46.4% 51.4%

Jefferson Co. Sheriff's Department

4564 3980 4109 5097 3861 4346 4614 4503 5141

WV State Police

4316 3908 4281 3447 3990 4642 4696 4967 4499

TOTAL

20442 19474 21561 20588 16871 18692 18833 18424 19832

Source: Jefferson County Emergency Communications Center

County‑Wide Services

State Police

The State Police Barracks is located in the District Health Services Center at Bardane. This station has eight officers (one sergeant, one corporal, one trooper 1st Class and five troopers), four patrol vehicles, and one support vehicle assigned to it. The equipment at this station includes radios, breathalizers, radar units, and riot control apparatus.

State Police officers stationed within Jefferson County provide protection for the whole County, including the municipalities. In general, these services include patrolling state and interstate highways and responding to emergency calls on an as‑needed basis. The State Police and Sheriff's office are on duty in the County after midnight.

According to State Police officials, an additional five patrolmen and five vehicles will be needed in the next 5 years. A larger office will be built at the Bardane Industrial Park within the next five years. The land has been obtained for this expansion.

County Sheriff's Department

The County Sheriff's Law Enforcement department is located in the old jail on the corner of George and Liberty Street in Charles Town. The department has 12 officers (a Sheriff, 2 bailiffs, and 9 deputies) and 10 vehicles. Equipment at the station includes radar units, breathalizer, video camera, 33mm camera, and surveillance equipment.

The County Sheriff's office shares with the State Police the responsibility of providing protective and investigative services throughout the County. In addition, the Sheriff's Deputies provide support services to the County court system, including serving subpoenas, writs, warrants, and transporting prisoners and juveniles. Staff at the Sheriff's Office Tax Department are responsible for issuing motor vehicle registrations and collecting taxes.

According to Sheriff Department officials, the office space is inadequate for the current staff. In addition, the burden to the Department of providing such a wide variety of services is likely to increase as more people move into the unincorporated areas.

Two other County‑wide law enforcement groups, constables and justices of the peace, were abolished by the State in 1977 and their duties delegated to County officials.

Analysis of County Wide Services

Most growth in the County is expected to take place in the unincorporated areas. Thus, the State and County police forces, who have jurisdiction outside the corporate limits, will bear the burden of providing police services in the future. Continued close cooperation between the State and County police departments will be essential as the demand for their services increases.

Projections and Needs

Table 46 includes a summary of State and County police protection for 1993 and projects personnel and vehicle requirements for the year 2005. Unlike the estimates for local police protection, the current "level of service" indicates the number of officers or vehicles per 1,000 County residents. Population increases within the municipalities are included in this number since towns receive State and County police services. Requirements for the year 2005 have been developed by conservatively estimating the future population at 46,000 and determining the number of officers and vehicles that would be needed to provide the same levels of service present in 1993.

The data on State and County police services, like those for local police services, are not predictive. Many factors could change the desired levels of service, including changes in State funding for the State Police force and redefinition of the services performed by the County Sheriff's Department.

As shown in Table 46, current levels of service for State Police officers and vehicles (0.22 and 0.11) and for the County Sheriff's personnel and vehicles (0.22 and 0.25) are substantially below those for the municipalities (2.27 to 3.24 for officers and 1.28 to 1.62 for vehicles). However, the needs and size of the rural population must also be evaluated to determine if the current level of service is adequate. As noted earlier, 76% of County residents currently live outside the incorporated areas and are served only by the State and County police departments; these two departments account for 40% of all officers in the County and they responded to 48.6% of all police calls countywide. The rural sections of Jefferson County currently appear to need less police service per 1,000 residents than does the rest of the County.

If population growth alone is used to project law enforcement needs for the year 2005, the State Police would need 25% more officers and 7 more vehicles and the County sheriff would need 7 more officers and 5 more vehicles just to maintain the current levels of service. That is, the number of State and County officers and vehicles would have to double to provide the current levels of service to the unincorporated areas of the County while the number of officers and vehicles within the municipalities would increase slightly. However, the data in Table 47 suggest that the need for police services outside of the municipalities will increase substantially faster than the population because of the additional needs brought on by population density.

Residential developments outside the municipalities have already begun to experience law enforcement problems that are likely to grow as private roads and recreational areas proliferate. Heavy traffic and speeding on private roads are frequent concerns of property owners' associations in Jefferson County. Furthermore, the lack of public recreational areas in the County has encouraged nonresidents to use (and abuse) private recreational facilities. State and County police are being called increasingly for problems such as trespassing, littering, domestic situations, intoxication, and disturbing the peace in residential developments. At present, police patrol private subdivisions on a limited basis due to a lack of personnel unless a major crime has been committed.

Accomplishments

Since the 1986 Comprehensive Plan, the following things have been accomplished:

o Monthly tri‑state meetings of law enforcement agencies are held to improve coordination.

o A Special Operations Response Team (SORT) has been created in Jefferson County to deal with hostage situations, drug searches and other specialties. This is a cooperative effort between the law enforcement agencies.

o The Neighborhood Watch program is active and growing.

o The volunteer police reserve is soon to be fully implemented.

FIRE AND RESCUE SERVICES

Fire Companies

Background

Jefferson County has five fire companies and one substation. They are operated by volunteers. Map 6 shows the location and service area of each station. Fire and rescue calls are dispatched through the "911 Central Dispatch System."

Each fire department receives approximately $7,500 per year from the Jefferson County Commission. Shepherdstown receives an additional $1,000 for radio maintenance because they are not participating in the county radio maintenance program. All other funding of the fire companies is from voluntary contributions and the West Virginia Fire Commission. The municipalities within the County regularly make donations to their local fire companies. The remainder of the money is raised through private donations and fund‑raising activities.

Although each company has a designated service area, many locations along the boundaries of the service areas are covered jointly by two or more departments. The fire stations are located in population centers. All companies have rescue as well as fire‑fighting equipment. At present, representatives of the five companies believe their equipment is adequate. However, due to age some equipment needs to be replaced. Current replacement needs are as follows:

Ambu- Brush

Company Tanker Engine Attack lance Unit

Blue Ridge 2 1 ‑ ‑ ‑

Citizen's ‑ 1 1 ‑ ‑

Friendship ‑ ‑ ‑ 1 1

Independent ‑ 1 ‑ 1 ‑

Friendship Fire Company, Inc. (Company One)

The Friendship Fire Company is located on Washington Street (adjacent to the new Post Office in Harpers Ferry) and serves Harpers Ferry, Bolivar, and the neighboring areas. The 21‑year‑old fire station is in good condition. Equipment includes 2 engines, 1 tanker, 2 ambulances, 1 mini‑pumper, and a boat and motor. The Friendship Fire Company has 40 active members, a number that is barely adequate for current needs. In 1992, Company One responded to 668 calls, including 507 ambulance and 161 fire calls.

Citizens' Fire Company, Inc. (Company Two)

Located on North West Street in Charles Town, the Citizens' Fire Company serves the southwest portion of Jefferson County jointly with Company Four. The fire station, built in 1958, is in good condition, but is not adequate for present needs. The equipment includes 2 engines, an 105‑foot ladder truck, a rescue squad, a mini‑pumper, and a boat. The company has 60 active members, which is not an adequate number at present. Company Two responded to 401 calls in 1992. Company Two also houses the County Air Cascade System.

Shepherdstown Fire Company, Inc. (Company Three)

The Shepherdstown Fire Company is located in a new building on Route 45, west of Shepherdstown. This company serves the northern section of Jefferson County. The complement of 50 active members is barely adequate to meet current needs. The equipment includes 2 engines, 1 tanker, 1 rescue, 2 ambulances, an 85 foot ladder, 1 boat and 1 engine in reserve. In 1992, Company Three had 165 fire calls and 505 ambulance calls, a total of 670.

Independent Fire Company, Inc. (Company Four)

The Independent Fire Company is located in a refurbished building on Route 9 in Ranson and serves the southwestern portion of Jefferson County jointly with Company Two. Equipment includes 2 engines, a tanker, a rescue unit, 2 ambulances, 2 boats, one motor and heavy extrication equipment. The 55 active members are barely adequate for present needs. In 1992, Company Four responded to 385 fire calls and 1351 ambulance calls.

Blue Ridge Mountain Volunteer Fire Company, Inc. (Company Five)

The main station of this fire company is located on Keyes Ferry Road, is 18 years old and is being replaced. A substation is located on Mission Road. It is approximately 15 years old. Both stations are new brick structures in excellent condition. Together they serve all the area of Jefferson County east of the Shenandoah River. The equipment at both locations includes two engines, two tankers, two brush units, a rescue unit, 1 boat and a motor. Company Five's 25 active members were barely adequate to handle the 163 calls received in 1992.

Fire Marshal

The Fire Marshal has the responsibility for enforcing all State laws relating to fire safety, use of combustible materials, fire exits, fire suppression equipment, and the suppression of arson. The fire code, in general, applies to buildings used by the public and dwellings or rental units of three or more. There is little in the fire code or in the routine activities of the Fire Marshall that pertains to single family residences.

Fire and Ambulance Calls

Table 48 shows the actual numbers of calls and call locations for fire and ambulance for the years 1987 through 1992. Ambulance call data show an increasing trend, whereas the figures for fire calls do not.

Table 48 EMERGENCY OPERATIONS 1987 to 1991

1987 1988 1989 1990 1991 1992

*No. of Fire Company Calls

1,007 1,193 1,213 1,118 1,190 1,297

No. of Fire Call Locations

647 759 764 706 743 852

No. of Ambulance Co. Calls

N.D. 1,964 2,322 2,244 2,512 2,452

No. of Ambulance Call Locations

N.D. 1,857 N.D. 2,081 2,572 2,513

ND = No Data

*The Independent and Citizens' companies respond to same calls a majority of the time. Hence, this number includes double counting. The ratio of company calls to call location is 1.5:1.

Analysis of Fire Services

Growing Demand

A summary of current fire services appears in Table 48. At present, two fire companies, Citizens' in Charles town and Independent in Ranson, serve primarily the southern and western portions of the County. The availability of sewer and water services, the Charles Town Bypass and any future upgrading of Route 9 will influence the pattern of growth such that by the year 2005 an increase of approximately 7,000 residents can be expected to occur in the north, east, and central portions of the County. Requests for fire services in the areas now served by the Friendship, Blue Ridge and Shepherdstown Departments would be expected to grow substantially and the number of personnel and equipment needed to provide these services would proportionally increase. Additional demands for services would also be placed on other fire departments, primarily on the two located in Charles Town.

Problem Factors

The increase in residential development and the influx of new residents has created other problems for both the fire departments and the police and rescue personnel. First, accurate and current maps of the county are not available and the names of many streets or developments are similar. Since new residents are often not familiar with their surroundings, fire, police, and rescue units can lose precious time trying to locate people who need help. Second, road conditions in the County affect not only the time it takes units to respond to calls but also the safety of the personnel answering a call. Roads with sharp curves, steep grades, limited visibility, and restricted access all decrease the ability of emergency service units to respond promptly. Poor maintenance or inadequate snow removal on some private roads also affect response time and the safety of both residents and emergency services personnel. Third, County residents living more than 6 miles from an accredited fire station must pay higher insurance premiums for their fire insurance and insurance carriers could refuse coverage on these homes if they determined the risk of fire was too great. Thus, many persons in Jefferson County are paying increased insurance premiums to cover the cost of losing their property when that money could more constructively be used to provide increased fire protection.

In addition, the lack of uniform local standards for fire hydrants has led to the use of various sizes of hydrants and fire hose threads, even within municipalities. Because of this situation, fire companies must carry additional equipment on their calls and precious time can be lost hooking up hoses. Furthermore, some of the subdivisions with fire hydrants may not have enough water capacity to accommodate fire‑fighting equipment. Other areas in the County have virtually no water available to use in extinguishing fires.

Restrictions of State Law

The present State fire code is not responsive to the fire safety problems encountered in single family residences situated in rural or semi‑rural areas. Since the activities of the County fire departments are circumscribed by State regulations, the County is currently unable to institute many policies that would protect life and property. Life and property‑saving measures currently beyond the authority of the State and County include mandatory periodic inspection of wood burning stoves and chimneys and required installation of smoke detectors and fire extinguishers.

Although some fire safety problems could be solved by instituting a building code, the County is once again hampered by State law, which specifies the exact code the County needs to use. This creates a problem in terms of why might work better in Jefferson County.

Decline in Volunteerism

Volunteerism is generally on the decline in rural areas experiencing growth. Jefferson County is totally dependent on volunteers to provide fire, ambulance, and rescue services. These volunteers not only provide their services free of charge but also pay for their own personal protective gear. As more people choose to live in the County and work elsewhere, the number of residents available for emergency volunteer services decreases. When this phenomenon is coupled with a lack of business opportunities within the area, bedroom communities develop that are incapable of providing their own volunteer emergency services. This situation currently exists in several areas of the County and is likely to continue unless the local impact of each new development is carefully evaluated.

Training

The Jefferson County Volunteer Fire and Rescue Association also maintains a fire and rescue service training center on Leetown Road. This group also coordinates county‑wide standards for fire and rescue.

EMERGENCY MEDICAL SERVICES

Emergency medical services are provided through four of the five fire departments. These include two ambulances at Friendship Fire Company, two ambulances at Shepherdstown Fire Company, two ambulances at the Independent Fire Company and first response EMT's from the Blue Ridge Company. These companies provide medical assistance at the scene of an emergency and transport persons to hospitals, and from nursing homes and residences.

To provide emergency medical care and ride in the back of an ambulance as an attendant in the patient compartment, fire company personnel must be Emergency Medical Technicians (EMT's ). In addition, the County has approximately 15 paramedics trained through Shepherd College.

For the purposes of dispatching ambulances, the County is divided into three response areas. Dispatching is done through the 911 center, and the nearest available ambulance is dispatched. Persons suffering from an illness are transported to the hospital according to regional EMS protocol. Medical facilities regularly serviced by County ambulances include Jefferson Memorial Hospital (Ranson), City Hospital (Martinsburg), VA Center (Martinsburg), and Winchester Memorial Hospital (Winchester, Va.).

Emergency management services in the County are also provided through the Office of Emergency Services and Emergency Operating Center located at the Bardane Public Health Center. The Communications Center has a 100 foot antenna and is provided with auxiliary emergency power. Radiological monitoring teams are also available. All County emergency management activities are coordinated through this office.

The Jefferson County Volunteer Fireman's Association also maintains a fire and rescue service training center on Leetown Road.

Analysis of Emergency Medical Services

A summary of ambulance services is presented in Table 48. In 1992, County ambulances responded to approximately 2,513 calls. Of these, 1,351 were answered by the Independent Fire Company of Ranson. The rest of the calls were almost equally divided between the Shepherdstown and Friendship Companies. At present, the number of ambulances and trained personnel are not adequate to meet the County's needs. The all‑volunteer system has occasionally proved to be insufficient and volunteerism in general may decline as people from urban areas move into the County.

If the growth pattern discussed under fire services occurs, then a substantial burden will be placed on the ambulance services provided by the Friendship and Shepherdstown Fire Companies. In addition, the general level of need for ambulance services is likely to increase as the general population becomes older. Because each service district provides backup service for the other two, a long‑term increase in the need for ambulances in any one area will be felt throughout the County.

RECOMMENDATIONS

Law Enforcement

Municipal Services

The following recommendations are carried over from the 1986 Comprehensive Plan.

o The resources and needs of local police departments should be an integral part of a County‑wide, comprehensive plan for law enforcement services.

o Since traffic control is a major aspect of law enforcement within the municipalities, towns should have a major role in the development of County, State, and Federal highway plans that affect traffic patterns and density in the incorporated areas.

In addition, the Eastern Regional Corrections Authority has stated that the development of a "criminal justice system that meets nationally and state accepted standards" should be an overall goal for all police departments operating within Jefferson County. Other goals include:

o Develop standards for equipping and training police departments.

o Develop ways to allow municipalities to retain personnel who have been trained.

o Placing increased emphasis on the collection and publication of data on crimes committed, traffic density, and traffic‑related problems so that trends can be examined and policies evaluated.

County‑Wide Services

At present, State law limits the ways in which Jefferson County can deal with many law enforcement problems. Thus, one of the initial tasks undertaken by County officials should be a thorough investigation of the actual limitations imposed by State law and of ways in which the following recommendations can be implemented under existing conditions. At the same time, citizens and County officials should urge legislators to modify the appropriate laws so that counties have more flexibility in dealing with local problems.

A full‑scale plan of law‑enforcement services is beyond the scope of the present study. However, the services of a professional law enforcement planner should be obtained and a comprehensive plan for law enforcement services in the County should be prepared. The following recommendation need to be considered as part of such a comprehensive plan, although they can also be developed and implemented independently while more general guidelines are being formulated.

o Increased emphasis should be placed on collecting and publishing data on crimes committed, traffic density, and traffic‑related problems so that trends can be examined and policies evaluated.

o The state should be encouraged to evaluate the basis upon which state police personnel are assigned to the county. Such criteria should include such factors as size of resident population, level of crime, volume of traffic on state roads and level of tourism in the county.

o The state should be encouraged to explore methods of improving the effectiveness and speed of the judicial system.

o Every effort should be made to encourage the expansion of the juvenile detention center in Berkeley County.

Fire Services

o Fire hydrants and fire hose threads should be standardized throughout the County.

o All areas outside of the municipalities should be included in a County‑wide identification system.

Insurance companies and lending institutions should be encouraged to formulate policies that ensure adequate fire protection for new residential and commercial developments.

o Incentives should be offered to County residents to join volunteer fire companies.

o Alternative sources of revenue to support existing and future fire protection services, such as fire fees, should be investigated. Such alternative sources should be carefully evaluated prior to adoption to insure that the revenues obtained exceed the present funding methods of donations and fund drives.

o Funding for the training of fire personnel needs to be provided.

o Existing and future land development regulations should be evaluated to insure that they promote rather than discourage the installation of fire hydrants.

o The County should ask the legislature for more flexibility with respect to the Building Code which might be better suited for Jefferson County.

Emergency Medical Services

o All ambulances should be replaced when they are 7 years old or have an odometer reading of 70,000 miles. These figures are based on requirements developed by the State of West Virginia.

o A county‑wide emergency plan should be devised which includes all hospitals, emergency equipment, and emergency physicians within the area.

o County residents should be encouraged to receive training in CPR, lifesaving, and first‑aid techniques.

o Emergency Medical Services for the Blue Ridge area of the county should be developed.

o Alternate sources of revenues and other funding need to be sought to provide paid EMS personnel.

o The County should participate in the development of Enhanced 911.

EDUCATION

INTRODUCTION

Maintaining and improving Jefferson County's education system is one of the most important and urgent challenges we will face during the implementation of a comprehensive plan. Although educating Jefferson County residents is a responsibility that must be shared by all of us, the ultimate responsibility for implementing and adminstering educational programs rests with the Jefferson County Board of Education. In the area of facility planning, the basic goal of the Board is to develop schools that will provide a thorough and efficient system of education and educational opportunities for its public school students and also be in compliance with the MASTER PLAN FOR PUBLIC EDUCATION, WEST VIRGINIA BOARD OF EDUCATION POLICY 2510, and the CRITERIA FOR EXCELLENCE.

Elements of the System

Board of Education

The school system administered by the Board of Education includes twelve school buildings and approximately 200 acres of land which are listed in Table 49 (Page III‑70) and shown on Map 7 and Map 8. In addition to the public facilities within Jefferson County, the James Rumsey Vocational Technical School serves Jefferson, Bekreley, and Morgan counties and offers 18 vocational programs for high school students. The total 1993‑94 student enrollment in Jefferson County was 6,509. The school budget for the 1992 school year was approximately $25 million.

The "6‑3‑3" organization of grades in the elementary, junior high, and high schools was implemented when Jefferson High School was opened in 1972. It has been the historical intent of the Board of Education to comply with the "Facilities Plan Guidelines" developed by the State Department of Education which limits enrollment per school to 500 students at the elementary level and 1,500 students at the high school level.

At present, most schools are located in or near high density areas. Four schools are located within 2 miles of Charles Town, two within 2 miles of Harpers Ferry, and two within 2 miles of Shepherdstown. The other schools are located along roadways that serve other areas within the County. Approximately 490,000 miles were logged transporting students to and from schools.

Private Schools

There are two private schools in Jefferson County, Country Day School and Claymont Children's School. Jefferson County is also served by Shepherd College and West Virginia University, both state‑supported schools.

Shepherd College is located in historic Shepherdstown. Shepherd College is profiled in Barron's 300 Best Buys in College Education. Only the top 10 percent of America's colleges and universities achieve that distinction. For the ninth year, Shepherd had been the only West Virginia college included in Peterson's Guide to Competitive Colleges.

Faculty members come to Shepherd from some of the country's most prestigious institutions. Most of them hold the most advanced degrees in their fields. Staff members are also available to help students.

Shepherd's close proximity to the Washington‑Baltimore area allows students to combine educational opportunities and internships with cultural and social resources.

Shepherd offers more than 70 programs of study, including bachelor's degree programs, pre‑professional studies and associate's degree programs and as such is a community resource of great value.

Problems and Issues

As the following pages will show, funding reductions, state‑mandated regulations, inadequate planning of current schools, and scattered residential growth have all combined to produce a crisis in our schools. Problems with such a variety of complex causes do not have simple solutions. Several fundamental problems have been identified in other sections of this Comprehensive Plan and need to be faced when education is discussed.

o Our past and current inability to solve the problems in our educational system is due, in part, to restrictions placed upon county governments by the state constitution and state code. Although these kinds of state controls and restrictions may be appropriate in counties with stable or declining populations and a need for minimal public services, they serve as major roadblocks to managing growth in Jefferson County‑‑an area with an increasing population and most public services stretched to their capacity.

o These state‑imposed restrictions also limit the ways in which we can raise the money needed to improve our current schools, build new ones, and encourage our good teachers to continue teaching. Education currently accounts for more than 80% of the County's total tax revenues. As the largest proportion of these local revenues, our problems of raising money will be felt first in the area of education.

o Historically, county governments and school boards in West Virginia have had to look to the state to solve their problems due to the limited powers at the county level. Some of the solutions to our problems may be available in the state code or in judicial decisions‑‑if we make the effort to look. Other solutions will be found only after much research, discussion, and debate; if we don't do this work no one else will.

Finally, as we discuss dollars and numbers of students, we need to remember that education can easily become an emotional issue because it concerns the future of our children and grandchildren. Accurate planning does require facts and figures, and planning the educational future of our children requires clear thinking.

ANALYSIS OF PROBLEMS

Overcrowding

The school population in Jefferson County has increased very little (3.8%) during the last 10 years, yet there has been a perception by some that virtually all of the schools are "overcrowded." In some cases, the overcrowding appears to have been caused by the introduction of new state‑mandated programs and building requirements. In others, scattered and unplanned growth has added to the problem. During the 1980's, school population increased approximately one child per every twenty persons increase in total population.

The term "overcrowded" has taken on a variety of meanings in discussions of our educational system, and it needs to be closely examined if we are to identify specific problems and find solutions. It has been used to mean that (1) The schools do not have enough places to accept more children; (2) The required ratios of students to teachers have been exceeded; (3) Schools do not have enough room to accommodate all of the classes they are supposed to teach (e.g., music and art); and (4) Schools have insufficient nonclassroom space (i.e., hallways, cafeterias, teachers' rooms, guidance counselors rooms, parking lots).

Comparing the design capacity of a school, which is the number of students for which the school was originally planned to accommodate, with the number of children it actually holds, is one of the criteria used to determine if a school is overcrowded. When the number of children in a school equals the design capacity, the school does not have enough physical space to efficiently accommodate more children. In most cases, it also means that efforts to provide more classrooms within the existing school building have been stretched to the limit. Schools where student enrollments have not reached the design capacity may still be seriously "overcrowded."

Student‑teacher ratios are also used to determine if a classroom is "overcrowded." In theory, students' opportunities for learning within the classroom increase as the number of students per teacher decreases. Student‑teacher ratios are partly mandated by the State and are currently set at 20:1 for kindergarten and 25:1 for elementary grades. Class sizes at the secondary level vary, but basic classes are limited to 20 students. Recommended student‑teacher ratios have dropped during the past 10 years, forcing educators to find more teachers and classroom space to remain in compliance with requirements. Although decreasing student‑teacher ratios may be desirable, it has caused other types of overcrowding in our school system.

During the past 10 years, the State has required schools to offer additional types of classes and offer students new types of services. These new requirements, plus the reductions in student‑teacher ratios, have forced educators to add more classrooms to existing school buildings. The ability of Jefferson County schools to expand by adding classrooms is limited by the amount of usable ground available for expansion and the ability of each school's physical plant to handle the increased requirements for heat, ventilation, electricity, water, and sanitation. At present, Jefferson High School is the only school that may have usable space and physical plant facilities to handle new construction.

Since most of our schools cannot add new classes by expanding beyond the current size of their building, educators have had to change the ways space within their buildings is used. School personnel have been forced to conduct classes in inappropriate areas (Table 38) [[actually Table 49]]. For example, schools now use areas for a variety of uses even though they were originally designed for a specific use (e.g., lunchrooms, gymnasiums, music rooms, teachers' workrooms, offices, storage closets, libraries, and art rooms). Virtually no space is available for support staff (such as psychologists, speech and gifted teachers), and many of these support activities have to be held in hallways, cafeterias, and even storage closets. According to surveys by the Board of Education, individual teachers, and the School Board's Citizen Advisory Committee, every school in the County lacks the space to accommodate all of the required classes or services.

Table 49 PUBLIC SCHOOL FACILITIES IN JEFFERSON COUNTY, WEST VIRGINIA

Student Enrollment Adjusted²

81 82 83 84 85 86 87 88 89 90 91 92 93 Design

Name Grades -82 -83 -84 -85 -86 -87 -88 -89 -90 -91 -92 -93 -94 Capacity

Elementary

Page Jackson K-3 546 554 559 519 548 593 603 615 592 588 558 459 492 576

Wright Denny 4-6 442 431 436 433 414 440 453 440 395 446 461 429 399 450

North Jefferson K-6 482 462 472 440 489 485 471 477 484 440 453 338 316 383

Blue Ridge K-6 469 460 435 415 434 434 451 476 503 540 554 440 423 428

South Jefferson K-6 427 390 373 369 385 390 380 390 375 366 363 371 370 405

C W Shipley K-6 345 359 353 348 332 336 340 341 339 343 380 350 364 405

Shepherdstown K-6 463 436 432 430 415 428 454 475 488 494 509 410 417 495

Ranson K-6 394 407 411 407 430 402 413 431 436 416 439 433 434 450

T A Lowery K-6 - 468 530 450

B D Center

/Alternative 8-12 - 11 13 15

Junior Highs

Shepherdstown 7-9 375 364 406 412 420 405 374 361 374 388 421 423 446 468

Charles Town 7-9 716 759 755 770 753 731 716 695 691 730 734 742 722 743

Harpers Ferry 7-9 360 354 317 345 362 349 330 324 332 356 341 352 367 383

Jefferson High 10-12 1171 1188 1197 1166 1197 1232 1304 1245 1226 1236 1191 1170 1216 1215

Total 6190 6164 6146 6054 6179 6225 6289 6270 6235 6343 6404 6396 6509 6866