296746 Tilghman Village Master Plan Final

Tilghman

VILLAGE MASTER PLAN

June 2017

Transmittal Letter

This Village Master Plan was prepared by Lardner/Klein Landscape Architects in partnership with Talbot County using Federal funds under award number NA15NOS4190165 from NOAA, U.S. Department of Commerce. The statements, findings, conclusions, and recommendations are those of the author(s) and do not necessarily reflect the views of NOAA or the U.S. Department of Commerce.

Tilghman

VILLAGE MASTER PLAN

Prepared for:
Talbot County, Maryland

June 2017

Lardner/Klein Landscape Architects

In association with:

• Heritage Strategies, LLC
• CodeWright, LLC
• Preservation Facilitation Code Development

Acknowledgments

Tilghman Citizen’s Advisory Committee

On April 26, 2016, the Talbot County Council appointed the following individuals to the Tilghman Citizen’s Advisory Committee:

• Mark Connolly - Waterman and Boat Builder
• Kelley Cox - Executive Director of Phillips Wharf Environmental Center
• Gary Crawford - Crawford’s Nautical Book Store
• Joyce Crow - Principal of Tilghman Elementary School
• Francine DeSanctis - Director of Tilghman Food Bank
• Tim Fluharty - President, Fluharty Electric, Inc. and President, Tilghman Volunteer Fire Company
• Jeff Harrison - Waterman and Member of Talbot County Parks and Recreation Advisory Committee
• Levin F. “Buddy” Harrison, IV - Harrison House Country Inn and Charter Fishing
• John Kinnamon - Boat Builder
• Mike Rickards - Lazy Jack Inn
• Mark Weist - Dead Rise Marine (Marine Repair & Contracting Business)

Thank you to the many residents and friends of Tilghman who attended public meetings, filled out the community survey, and offered other valuable insights throughout the planning process.

Maryland Department of Natural Resources Working Waterfronts Program Staff

• Kelly Collins, MDNR
• Nicole Carloza, MDNR

Talbot County Council

• Dirck K. Bartlett
• Chuck F. Callahan
• Corey W. Pack
• Laura E. Price
• Jennifer L. Williams

Talbot County Staff

• R. Andrew Hollis, County Manager
• Mary Kay Verdery, Planning Officer
• Miguel Salinas, Assistant Planning Officer
• Martin Sokolich, Senior Planner
• Elisa Deflaux, Environmental Planner
• Meagan Patrick, Floodplain Coordinator
• Michael Mertaugh, Public Works
• Mark Cohoon, GIS Manager
• Warren Edwards, Roads Department Superintendent
• Preston Peper, Director of Parks and Recreation

Contents

• Transmittal Letter, page ii
• Acknowledgments, page iv

Introduction, page 1

• Purpose, page 3
• Study Area, page 4
• Geography, page 4
• Community Context, page 13
• Existing Land Use, page 14
• Community Profile, page 18
• Community Engagement Process, page 21
• Community Planning Issues and Concerns, page 22

Community Vision And Goals, page 23

• Community Vision, page 23

Land Use and Community Character, page 27

• Issues, page 29
• Land use Strategies, page 30

Heritage and Nature-based Tourism, page 39

• Heritage and Nature Based tourism Assets, page 39
• Issues, page 39
• Strategies, page 40

Neighborhood, page 43

Community development, page 49

Implementation, page 55

• Potential Funding Sources, page 58
• ADDITIONAL PRIVATE GRANT OPPORTUNITIES, page 66
• Appendices, page 67

This page is intentionally left blank.

Introduction

The village of Tilghman (sometimes referred to as Tilghman’s Island) faces a conundrum—how to protect and maintain a viable working waterfront and functioning main street in the face of significant challenges.

In 2016, Talbot County received a Maryland Working Waterfront Enhancement Grant from the Maryland Department of Natural Resources and supported by the National Oceanic and Atmospheric Administration to support the protection and revitalization of working waterfront communities and the retention of maritime-related businesses. The program, however, also recognizes that historic waterfront uses may need to expand to acknowledge new or changing markets and environmental shifts affecting historic waterfront communities. To this end, the program provides local planning assistance to support traditional maritime uses and the protection of property for both access to public trust waters and maritime-related services. However, the program also supports the exploration of opportunities for maritime heritage tourism and recreation, natural resources conservation and hazard mitigation within the traditional culture of the historic community.

The Maryland Working Waterfront Enhancement Grant program was developed subsequent to the Maryland Working Waterfront Commission’s Final Report published in December of 2008 where it noted that Tilghman was one of the top areas in greatest need of access to working waterfronts for watermen.

Tilghman is an historic working watermens village where water-dependent businesses are supported by private and public boatyards and marinas. Tilghman is dealing with the same demographic and economic shifts that are faced by other Maryland Chesapeake Bay communities, in particular along the eastern shore, that are threatening access to working waterfronts for maritime commercial industries. Economically, the seafood industry has been in decline for decades, and the reasons for this are complex; they include depletion of the natural habitat and foreign competition leading to reduced profitability.

At the same time, Tilghman’s proximity and accessibility to the Baltimore-Washington metropolitan area, its scenic location and the appeal of its working waterfront heritage is bringing second homeowners and retirees to the village. The continued influx of newcomers can have the affect of increasing the desirability of waterfront properties for non water-dependent uses such as homes and condominiums; potentially increasing property values and real estate taxes on existing commercial waterfront properties. These two shifts are threatening: 1) the continued existence of commercial waterfront properties to provide access to public waters for water-dependent commercial businesses, 2) the water-related businesses in the village that provide supportive services to those water-dependent businesses, and 3) the overall character and culture of Tilghman as a working waterfront village.

The direct and indirect economic impacts of the Maryland Seafood Industry are well-known and documented. They contribute significantly to local economies in Tilghman with no exception. The challenge is to balance the protection, maintenance and revitalization of its working waterfront for historic and emerging water-dependent uses while preserving the character and affordability of the village as new people move into the community.

Purpose

Those who live, work or spend leisure time in Tilghman appreciate its authenticity and diversity along with its strong community values and character. However, there are often-competing interests between working watermen and tourism-dependent private marinas, or between long-time residents, newcomers, and weekend visitors. The purpose of the Tilghman Village Master Plan is to balance these interests for the betterment and long-term viability of the community as a whole.

The impetus of the plan is the goals and policies established for all of Talbot County’s villages, (Map 1) as part of the Comprehensive Plan. Some Village Plans were previously created by Village Center Board Members and other residents of their respective communities. One of those plans was created for Tilghman which has been taken into account in the development of this master plan. The Planning Commission elected to consider the plans separate from the Comprehensive Plan, and they have been appended to the 2016 Comprehensive Plan document.

The goals of the Tilghman Village Master Plan are to:

• Identify and designate parcels and areas for a Working Waterfront Overlay District (WWOD).
• Develop a strategy to expand access in existing public (or private) landings and marinas and/or develop new public facilities.
• Evaluate the potential for properties to be established as an Intensely Developed Area (IDA) under the Talbot County Critical Area Ordinance.
• Define the preferred scale and character of future development, and the compatibility and suitability of existing and proposed land uses.
• Identify priority areas and/or structures for redevelopment or rehabilitation.
• Identify potential funding sources and State and local designations to leverage and encourage appropriately-scaled development and redevelopment.
• Identify what new community infrastructure is required to accommodate compatible and suitable growth and expansion of existing businesses.

Study Area

The village master plan includes all lands and shorelines that are zoned as the Tilghman Village Center Zoning District (Map 2). Tilghman, or Tilghman’s Island as some people refer to the main part of the village, historically includes four village centers: Avalon, Bar Neck, Fairbank, and Tilghman. The Village of Avalon’s central business location, generally located along the current Tilghman Island Road from the Tilghman Elementary School to the Tilghman United Methodist Church, once included its own post office. The man-made Avalon Island, now the Tilghman on the Chesapeake Yacht Club, was the 19th-century site of the Tilghman Packing Company. Meanwhile, Tilghman’s central businesses grew along Tilghman Island Road between Gibsontown and Mission Roads. Over time, the County recognized the two adjoining villages, defined by their historic structures dating from 1830 to 1945 on typical small village lots, as Tilghman.

Geography

Tilghman, the “pearl” of the Chesapeake Bay, is rich in both the natural and cultural history. Tilghman maintains a close connection with the water, crabs, oysters, and waterfowl of the Bay as a natural resource, and as a source of seafood and productive jobs.

Land and Water

Tilghman is connected to the mainland by a bascule vertical drawbridge¹ at Knapps Narrows—a navigable channel with tightly arranged marinas, wharves, and docks at the northern end of the island. Embarking on the Tilghman Island Passage, a ten-mile route

¹ Choptank River Heritage Web site, http://www.choptankriverheritage.org/

circumnavigating the island, one encounters both the Chesapeake Bay on the west and the Choptank River and Harris Creek on the east. Resources of the Bay and the River (including fish, crabs, and oysters) supported and continue to support the working waterfront communities of Tilghman.

Shoreline

The Talbot County Department of Parks and Recreation owns and manages two large public landings in Tilghman: Tongers Basin with 9 contracted boat slips, and Dogwood Harbor with 29 contracted boat slips. Currently, commercial watermen are able to rent these slips at a reduced yearly rate. However, the Maryland Working Waterfront Commission’s Final Report from 2008 identified Tilghman as among the six communities statewide in the greatest need for additional waterfront access for commercial watermen. The lack of waterfront access in Tilghman was further confirmed by the Department of Planning and Zoning in meetings and phone conversations with representatives from the Talbot Watermen Association in the Fall of 2015.

Maryland Geological Survey’s Shoreline Changes map (Map 3), illustrates changes dating back to 1847, indicating that shoreline changes have occurred along the various shores of Tilghman. Large land masses once above sea level are now presumably submerged and/or eroded. According to the 1847 shoreline mappings, the built edge of Knapps Narrows, as it is today, did not exist until 1931.

Knapps Narrows and Dogwood Harbor are lined with built features (Map 4), including bulkheads, marinas, piers, boat ramps, and riprap; natural shorelines are also present. Similarly, shorelines in Tilghman waterfront neighborhoods are predominantly characterized by riprap, piers, and bulkheads.

Flood Risk

While much of the inland neighborhoods and Tilghman Island Road are outside of the Effective FEMA Floodplain (Map 5), Knapps Narrows and Dogwood Harbor lie within the 100-year floodplain Zone AE (1% annual chance flood), and the 500-year floodplain Zone Shaded X (0.2% annual chance flood). Tilghman Island Road is prone to 100-year and 500-year flooding in the area between Tilghman Elementary School and Gibsontown Road. Both the Choptank River and the Chesapeake Bay shorelines are subject to velocity or wave flooding, VE (1% annual chance).

Flood risks are also likely to be exacerbated by the potential effects of sea level rise (Map 6). The NOAA Coastal Flood Exposure Mapper, shows sea level rise scenarios of 0 to 6 feet, which represent a rise in water above the average of the highest high tides (called mean higher high water, or MHHW) for hydrologically connected areas. Areas that are lower in elevation will be exposed to flooding from sea level rise first and are represented by the darkest red.

Changes in local, or relative, sea level have long-term implications, including increased extent and frequency of events such as storm surge, as well as permanent changes to shorelines and coastal habitats. For more details about the data shown in Map 6, visit the Sea Level Rise and Coastal Flooding Impacts Viewer.²

Tilghman is susceptible to Hurricane storm surge. Data derived from storm surge inundation maps created by the National Hurricane Center (NHC) Storm Surge Unit with the Sea, Lake, and Overland Surges from Hurricanes (SLOSH) model are noted for Category 1, 2 and 3 storms as shown on Map 7 on page 9. This map emphasizes areas with the highest degree of exposure. Therefore, areas in the Saffir-Simpson Category 1 storm surge zones are displayed in the darkest color.

Critical Areas

One of the key regulatory challenges to Tilghman’s goal of a restored working waterfront is the Critical Area designation of most of the island as a Limited Development Area (LDA). One way to maintain the viability of Tilghman as a working waterfront would be to re-designate specific properties in Tilghman as an Intensely Developed Area (IDA), defined as areas of concentrated development where residential, commercial, institutional, or industrial land uses predominate and little or no natural habitat is found (Map 8).

The key difference between land designated as LDA and land designated as IDA is that LDA lands are subject to strict lot coverage limitations. IDA lands do not have such limitations, as they are places where land has been allocated for development. IDA lands must follow other rules, which requires that pollutant runoff loads on developed sites be reduced.

A prime goal of the Critical Area legislation is to limit and steer new growth to appropriate locations over time. Since IDA lands are allowed to carry higher development intensity, each county in the

² https://coast.noaa.gov/digitalcoast/tools/slr

Critical Area program has only a small amount of IDA land that it can allocate. If Talbot County wishes to pursue IDA allocation, the first step in the process is to have a citizen input process (such as this project), which assesses citizens’ vision and goals for an area.

Through dialogue with the public, the County must define the area for which it will request IDA allocation. Several earlier attempts to establish an IDA in Tilghman were limited by a strict interpretation of state law by the Critical Area Commission that the area requested for IDA allocation must be at least 20 contiguous acres in size where commercial, residential, industrial, or institutional land uses dominate. The regulations also stipulate that the IDA should be in a location that promotes water quality and which is adjacent to other IDA or LDA lands, if possible. After the area is defined, the local jurisdiction must approve the allocation following certain procedures, then take the allocation to the Critical Area Commission for final approval and changes to the Critical Area maps.

More recently the Critical Area Commission has changed that interpretation to allow for areas that are smaller than 20 acres if property is:

1. Located in an existing village planning area
2. Currently served by public sewer
3. Consistent with the Goals and Objectives of the Comprehensive Plan
4. Has an overall economic benefit to the community

Based on an initial review of the County’s development regulations, there is at least one major hurdle to the establishment of an IDA on Tilghman—the County’s regulations stipulate that lands within an IDA must be zoned either Limited Commercial (LC), General Commercial (GC), or Limited Industrial (LI). Currently there are no areas with these zoning district designations that comprise 20 or more contiguous acres.

Other issues involved with the establishment of an IDA are discussed in Section 5, Goals and Strategies.

Community Context

Early Settlement

Tilghman Island, known for over 200 years as the “Great Choptank Island,” remained as part of the current boundaries of Talbot County when Queen Anne’s County was formed from portions of Kent and Talbot Counties in 1707. Over time, the island was usually based on its current owner at that time. Chronologically, names included Foster’s Island, Lowe’s Island, Coursey’s Island, Hawkin’s Island, Hyde’s Island, and Ward’s Island until the island was named Tilghman’s Island by Matthew Tilghman who inherited the land, improved the old bridge and main road down the island and began selling parcels.

By the late 19th century, oystermen began purchasing the land to gain access to the abundance of oysters located in prime harvesting waters surrounding Tilghman’s Island. Tilghman was responsible for the first bridge built across Knapps Narrows. In the mid-1800s, land was purchased by General Tench Tilghman who erected two steam sawmills. By the turn of the century the seafood and steamboat industries were thriving. Such success aided in the island’s reputation for good fishing and accommodations favorable to vacationers.³

Maryland Inventory of Historic Properties

A recently updated inventory of Maryland Historic Properties (MIHP) reveals the profusion of historic resources found within the Tilghman Island Survey District. Thirty-four places, not including skipjacks, make up the cadre of historic houses, churches, commercial buildings, and municipal facilities (Map 9). Included among these is the Tilghman Island Bridge that once spanned Knapps Narrows. This unique heel trunnion rolling lift bridge with a counterweight was built in 1934 and currently resides at the Chesapeake Maritime Museum’s St. Michaels Campus.⁴ The bridge is also listed on the National Register of Historic Places.

Building Profile by Year Built

According to Talbot County’s geographic information data base (Map 10), nearly half of the structures in the Village of Tilghman were erected prior to 1961 (green, yellow and orange on the Year Built map), and many were built in the 19^th century; few structures were constructed prior to 1870. Tilghman United Methodist Church on Tilghman Island Road was originally built in 1784, and the current structure was constructed in 1879. The Tilghman Island Country Store—cedar shakes now painted red—was built in 1877 and has undergone several renovations over the years. An iconic commercial building in the village, Howeth Department Store’s southern gable was built in 1892; the northern flat roof section was added in the 1920s.⁵

One vernacular style of architecture that was common in Tilghman was the “W” shape, as it was coined. It is characterized by three gables on the front of the structure. While this style was popular circa 1890, many of the buildings did not survive.⁶

Skipjacks

Fifty Historic Places are found within the Tilghman Island Survey District; sixteen of such include skipjacks. The largest fleet of working skipjacks is currently in operation at Dogwood Harbor. Among the fleet is the Rebecca T. Ruark, the oldest operating skipjack on the Chesapeake Bay. Built in 1886 in Taylor’s Island, MD, the vessel continues to be in operation, transporting oysters and tourists to and from Dogwood Harbor. Captain Wade H. Murphy rebuilt the skipjack in 1986 when oysters were scarce due to a devastating disease. By 1995 he started taking visitors out on tours, supporting his passion for oyster harvesting and the Bay. Tours are currently available for up to 49 passengers.

Existing Land Use

Tilghman is largely a residential community with commercial uses in clusters along the main street, Tilghman Island Road, and bordering Knapps Narrows and Dogwood Harbor. Commercial properties are limited south of Wharf Road and includes Tilghman United Methodist Church. Commercial land use

³ Talbot County Web site; Historical Society of Talbot County, http://www.talbotcountymd.gov/index.php?page=Talbot_County_History

⁴ Library of Congress Web site; http://www.loc.gov/pictures/item/md1396/

⁵ Maryland Historical Trust; https://mht.maryland.gov/secure/medusa/

⁶ Talbot County Web site; Historical Society of Talbot County, http://www.talbotcountymd.gov/index.php?page=Talbot_County_History

working watermens’ marine and boat repair shop, and Fairbank Tackle are two important water-related businesses that remain. Tilghman residents have pointed out that very few new retail businesses have been established in Tilghman in decades. All of these closures correspond with the decline in the seafood industry. Continuation of this trend threatens public access to the waterfront for recreational, commercial, research and educational-oriented businesses and Tilghman’s heritage as a historic working waterfront will only be remembered through historical markers and museums. . Tilghman was once a thriving waterfront village with water-dependent and water-related businesses. However, the Tilghman economy today is showing serious decline. Although Tilghman currently has boatyards, charter fishing businesses, marinas, inns, and other tourism-related enterprises.

Community Engagement Process

This plan is based upon direct community involvement through the efforts of a Citizen Advisory Committee (CAC), three public meetings, a community survey, and additional small group and individual meetings.

The CAC represented a broad range of interests in Tilghman and was appointed by the County Council to identify issues and opportunities and to help vet and refine the plan’s recommendations.

Community Meetings

Three public meetings were conducted. The first community meeting in August of 2016 served as a visioning session to identify potential future land uses for working waterfront and supporting commercial uses. The second community meeting was conducted as a set of meetings over two days (October 21 and 22, 2016) to look at the resulting proposed working waterfront and supporting commercial land uses and refine those uses based upon public input. Additional workshop sessions were held during the day on October 21 to talk in more detail about the potential of establishing a Working Waterfront Overlay District and/or changing a portion of the Limited Development Area to Intensely Developed Area through the Critical Areas Program (see results of this discussion in the section, “Land use Strategies” on page 30). A third public meeting was held in May of 2017, after the posting of a public draft of the village master plan, to solicit further comments prior to the development of a final draft.

Community Survey

Throughout July and August of 2016, the Department of Planning and Zoning conducted a survey of residents in the Village of Tilghman regarding their most pressing concerns and recommendations for improvement in the Village. One hundred twenty eight (128) residents of Tilghman participated in the community survey. The results and recommendations are documented in Appendix 1 and are incorporated directly into the recommendations for the plan.

Additional Stakeholder Outreach

Throughout the planning process, County staff and consultants reached out to meet with and discuss specific issues and concerns, including meetings with the Talbot Watermen Association and key stakeholders to discuss specific questions and issues beyond what was discussed at the CAC meetings.

Community Planning Issues and Concerns

Based upon the results of the community survey, the August 2016 visioning meeting and the additional stakeholder outreach activities, the following key issues were identified as part of the planning process:

Working Waterfront Issues

• Continuing need for business and community support to sustain the watermen way of life
• Limited availability and capacity of working space in existing marinas
• Dredging Knapps Narrows and its associated marinas, including Tongers, as well as Dogwood Harbor, is vital to the economic viability of Tilghman
• Enhance commercial seafood/boatyard and other water-related businesses opportunities
• Competition for specific waterfront needs between recreation, residential/tourism, and working watermen

“Main Street” Issues

• Limited market opportunities and lack of business friendly regulations inhibiting business development
• Lack of signage directing the public to businesses
• Pedestrian, bicycle and vehicular safety on Tilghman Island Road/Black Walnut Point Road
• Stormwater issues and ditches; flooding
• Parking limited by critical area requirements and lack of on-street parking opportunities
• Speeding

Tilghman Neighborhoods (Traditional)

• Preservation of the neighborhood character and maintenance of housing stock
• Lack of affordable housing for the Tilghman workforce
• Physical and regulatory constraints for infill development of housing on vacant lots
• County repair of side roads

New Tilghman Neighborhoods

• Concern about the scale and potential impact of condominiums and real estate value of newer housing on the affordability of traditional housing in the Village
• Along with new retirees and part-time residents purchasing homes in traditional Tilghman, new residential neighborhoods attracting a social and economic demographic with different needs, wants, and values

Community Vision and Goals

The vision, goals and strategies outlined in this section are based upon input provided through the Citizen Advisory Committee meetings, through three public meetings, and the community survey.

Public input provided during the Community Visioning Meeting held on August 24, 2016 and through the community survey identified the primary challenges facing Tilghman: how to balance the desire for a viable working waterfront and a functioning maritime commercial/retail street as the heart of the working waterfront village, with the desire to preserve the village’s more traditional character and appearance and ensuring that the strategies employed two address this challenge complies with state law regarding environmental protection.

Based upon the input from the August community meeting, a second set of public workshops were held in October to gain community consensus as to the need and potential boundary for a Working Waterfront Overlay District (WWOD) and for a state designation of portions of the Village as an Intensely Developed Area (IDA). More specifically, the second set of public workshops sought community consensus on:

• The need and potential boundary for the establishment of a “Working Waterfront Overlay District” that simplifies the development approval process for desirable maritime commercial uses and identifies the desirable uses that the community would want to encourage in the district;
• The need and potential boundary for a state designation of portions of the Village as an Intensely Developed Area (IDA); and
• The best ways to maintain existing and encourage new retail and service business opportunities and access along Tilghman Island Road in a manner that is compatible with village qualities.

The following vision statement is built upon previous village planning efforts, the results of the community survey (Appendix 1) and the community conversation that has taken place throughout the planning process.

A Vision for Tilghman

Moving forward, Tilghman’s current residents have worked hard to make their way of life accessible to future generations. They have passed on the Tilghman way of life - it’s institutions, its rich maritime heritage, and its small town sensibilities. Tilghman Island envisions a future as a lively village that meets the needs of all of its citizens, young and old, new and long-time. As the times and environmental conditions change in the world at large, residents must adapt, carefully, both to encourage new growth and to conserve what they now enjoy.

Community Vision

Shared values: The island’s community grew in response to opportunities associated with the Chesapeake Bay’s resources and beauty. The working waterfront is integral not only to Tilghman Island’s heritage but also to its ongoing community character and culture, now and in the future.

Residents enjoy peace and quiet and a sense of village self-sufficiency. The community’s identity is fostered by both distance from urbanized areas and the presence of independent businesses. Residents also value visual and physical access to the waters of the Chesapeake Bay. Tilghman has always been a place where volunteerism is an important part of residents’ way of life. Residents welcome visitors and newcomers, but also expect them to contribute to the community’s quality of life—not to overwhelm or change it.

Taking action: The Tilghman Village Master Plan reflects these values and presents ideas for enhancements that will foster their continuation. Work on this plan has offered Tilghman residents an opportunity to recommit to continuous learning about their needs and opportunities and communicating them to community leaders, both elected and organizational. To fulfill the ideas, they must work to share information, create opportunities for dialogue and decision-making, and support gatherings and fun events that offer many ways to connect with one another through working together.

Hopes for change: Tilghman envisions a future as a lively village that meets the needs of all of its citizens, young and old, new and multi-generational. As the times and environmental conditions change, residents must determine how to balance new growth while conserving what they now enjoy. The working waterfront is a preferred use of the lands adjacent to Knapps Narrows and Harris Creek, in order to sustain the village’s independent businesses and intrinsic connections to the water.

Tilghman residents define a thriving village, in part, by maintaining a population of sufficient size and diversity to support its local public school and its businesses and services. It is possible to develop at a scale that supports families, good jobs, small businesses, entrepreneurship and a new generation of community leaders while still preserving the sense of community life and village character. While this direction may lead to some added residential growth, the master plan focuses on finding opportunities to support some level of commercial development. Such development should serve the existing population and visitor base, enhance current economic pursuits, and make the most of the village’s limited land area while ensuring that new construction and redevelopment protect the Chesapeake Bay and the village’s traditional character.

As Tilghman grows and changes, residents and leaders must meet the considerable challenge of ensuring the safety of pedestrians and drivers, and encouraging healthy lifestyles. This includes enhancing the physical connections among businesses and waterfronts in a village built prior to the automobile. Concerns for safety also include the need to build more resiliency and adaptability into island infrastructure and other structures, as the unpredictability of weather and rising water levels raise fears of more frequent flooding and storm damage.

Excerpt from Visioning Meetings

What to Keep?

• Honesty (authenticity, working the water)
• Village character – a feeling more than architectural; we take up for each other; pitch in when needed
• Watermen are free to work the water
• Security to continue working traditions from one generation to the next
• Good for people of all ages – a family feeling
• A welcoming community for those that want to join in
• Beautiful drive from Tilghman to St. Michaels – landscape (and distance) totally transforms sense of community
• Library and activity associated with school – community library now at post office

• Dredging Knapps Narrows and its associated marinas along with Dogwood Harbor is vital to the maritime economy
• Enhance commercial seafood/boatyard and other water-related businesses opportunities

• Transitions between maritime commercial and residential neighborhoods - the greatest concern for expanding working waterfront uses and opportunities was around the edges of adjoining residential uses. Issues of compatibility were mentioned extensively throughout the various outreach efforts: noise, odor, light/glare, and traffic were the most often mentioned compatibility issues.
• New opportunities for aquaculture and appropriately scaled heritage and nature-based tourism - committee members and participants spoke frequently about new opportunities for aquaculture (through the efforts of the Phillips Wharf Environmental Center) and for expanding efforts to attract more cultural heritage travelers who appreciate Tilghman as it is (a small maritime community with a high quality of life).

Land Use Strategies

The following strategies are recommended to address the issues noted above and to help increase opportunities to sustain and grow the local economy through the preservation and expansion of Tilghman’s water-dependent businesses and the services that support them.

1.1 Identify and adopt an official land use map that designates areas for working waterfront maritime commercial and maritime support commercial uses.

Map 13 is a community-generated land use map illustrating the desired locations of Maritime Commercial (purple) and Maritime Support Commercial (Orange) land uses. Refinements were proposed that reduced the footprint of both types of commercial uses near residential areas around the south side of Dogwood Harbor, and extended the Maritime Support Commercial uses to the north of Knapps Narrows (the triangular area east of Tilghman Island Road). The adoption of the map will assist in the development and the identification of the boundaries for a Working Waterfront Overlay District.

1.2 Identify specific and desirable maritime commercial business uses and maritime support commercial uses.

A range of uses are possible under existing Village Center zoning, but research should be conducted to identify any trending or emerging uses in the market related to maritime and maritime support industries, including aquaculture and heritage-based tourism (see strategy 1.5 below and the heritage tourism strategy 2.1 on page 40).

1.3 Use a “Working Waterfront Overlay District” to encourage desirable maritime commercial and maritime support commercial uses and simplify the development approval process for those desired uses.

An “overlay district” is an additional zoning district designation that is added on top of an existing base zoning district designation. An overlay district is used to address development-related concerns for specific places such as a community entrance corridor, a floodplain or for specific uses such as infill residential. The County currently has 7 overlay districts for Easton airport, gateways, historic areas, etc.

In the case of Tilghman, the Working Waterfront Overlay District (WWOD) would be overlaid on top of the Village Center Zoning District to encourage the kind of maritime dependent and maritime related uses that are desired. The WWOD would create incentives for preferred or desired uses by:

• Establishing a more efficient and predictable, or less expensive review procedure for areas within the boundary of the overlay district by removing the special exception requirement for certain uses
• Providing relief from otherwise applicable development standards (like parking or screening) under certain circumstances

The language incorporated into the WWOD would help to ensure compatibility with adjoining uses by allowing for greater precision in the regulation of development through:

• Use-specific standards to address particular conditions or desired outcomes
• Location-based standards or criteria tied to particular locations

Three specific WWOD areas were identified based upon the proposed land use map developed by the CAC for working waterfront maritime commercial and maritime support commercial uses. These areas are shown on Map 14 on page 33.

Area 1 incorporates the existing working waterfront along Knapps Narrows. Area 1 includes some parcels whose existing land use is classified as residential. However, these residential parcels have waterfront access and are located between or adjacent to existing working waterfront uses (e.g. Severn Marine or Maryland Department of Environmental Services).

Area 2 incorporates Tilghman Island Road north of Camper Circle to just south of Phillips and Wharf Road. The parcels are a mix of residential and commercial uses, including uses that have been identified by the community as maritime support.

Area 3 includes lands adjacent to Dogwood Harbor including the larger parcels that connect Dogwood Harbor with Tilghman Island Road. Existing residential uses along Dogwood Harbor are included, with the exception of residential parcels along Wharf Road that front along the south side of Dogwood Harbor due to their historic and residential qualities.

1.4 Identify the boundary for the establishment of an IDA to encourage maritime commercial and maritime support businesses and support expansion of existing businesses.

Designation of an Intensely Developed Area (IDA) is a tool to use to achieve the land use and related goals identified in the Tilghman Village Master Plan. As described on page 8, IDAs are defined as “areas of concentrated development where residential, commercial, institutional or industrial land uses predominate and little or no natural habitat is found”. As per statewide allocation applied to Talbot County, not more than 128 acres of the Critical Area, including land within incorporated towns, shall be rezoned from a zoning district classified as LDA to a zoning district classified as IDA. Of the 128 acres, 24 acres are reserved for the Town of Easton, 44 acres for the Town of Oxford, and 24 acres for the Town of St. Michaels for growth allocation within the town limits or for annexations. The remaining 36 acres are reserved for county-wide growth allocation outside of towns.

The biggest benefit of reclassifying parcels from LDA to IDA is the elimination of the defined lot coverage limitation that exists in the former. Designation as an IDA will result in a change in the lot coverage requirements, which is one of the primary constraints for either expanding an existing commercial use or establishing a new use.

A property classified as RCA or LDA is constrained by limits on the amount of total lot coverage permitted on a parcel. Generally, lot coverage in the LDA is limited to no more than 15% of the total land area of the lot. There are some exceptions.

IDAs are not subject to lot coverage limitations, although these properties must still meet site plan and landscape requirements and address stormwater runoff. “Best management practices (BMPs)” help mitigate potential water quality impacts associated with stormwater runoff. These practices should be capable of removing pollutant loads generated from the development site.

Even though the County has only 36 acres of growth allocation left for the establishment of an IDA within the critical area, IDA boundaries that are coterminous with the boundaries of the overlay district should be discussed and considered. Tilghman’s working waterfront assets and opportunities, along with its continuous use for water-based businesses since its founding in the 1840s, make for a strong case for IDA designation. Past efforts have been stymied by the mix of maritime commercial and residential uses. The master plan, developed with extensive community input, provides the rationale for the IDA designation.

The IDA designation is another tool in the toolbox to use in order to reduce the barriers to allowing greater flexibility of property owners to maintain or expand their businesses, or to adaptively reuse all or a portion of their homes if a homeowner should choose to do so, to provide maritime-based and maritime-support uses. The inclusion of a land use map and WWOD boundary options in the village master plan would also align with the criteria the CAC could use in reviewing the request for IDA designation. It’s important to note that an IDA designation can greatly benefit commercial and residential owners of smaller parcels that want to expand their footprint or provide more impermeable surface, but are constrained by their current size.

The actual boundaries for IDA designation would be determined during implementation of the master plan. It’s important to note that including an IDA designation that coincides with the overlay boundary would be larger in size than the remaining growth allocation for all of Talbot County. However, Tilghman’s working waterfront assets and opportunities, along with its continuous use for water-based businesses since its founding in the 1840s, make for a strong case for IDA designation. The master plan, developed with extensive community input, provides the rationale for the IDA designation.

Based upon the results of the community meetings and other stakeholder outreach, there is well-supported interest in reclassifying maritime commercial and maritime support areas from LDA to IDA.

1.5 Identify maritime commercial and maritime support uses that maintain and sustain the viability of water-dependent businesses such as aquaculture, boat repair, heritage tourism, etc.

Consideration should be given in the establishment of the Working Waterfront Overlay District for expanding the range of uses that support the heritage tourism goals of the plan. For the most part, these uses include dining, hospitality (bed and breakfast or small inn), specialty retail (less than 10,000 square feet), as well as support facilities for recreational and commercial maritime uses.

Within the existing Village Center (VC) zoning district, most of these uses appear to be allowed only by special exception.

• General retail is allowed by special exception and “shall be within 300 feet of a general retail use or post office existing as of the effective date of this chapter [and] shall not exceed 2,000 square feet of gross floor area.”
• Bed and Breakfast is allowed as an accessory use in the VC zone but must have direct access to a state highway (Tilghman Island Road) and have a two-acre minimum lot size

Strategies

• Concern about expanding pressure for hotel and motel rooms beyond the scale and capacity that is compatible with the community.

Businesses centered on heritage and nature-based tourism, whether for recreation, education or leisure, can have a lower impact on Tilghman’s constrained infrastructure and capacity. These types of businesses and organizations can Tilghman’s heritage tourism assets and can be compatible with the village’s existing marine-based and marine-supportive businesses. The following strategies are recommended to address the issues noted above and to help attract more cultural heritage travelers (including nature-based tourism audiences).

2.1 Expand opportunities to diversify the local economy through heritage and nature-based tourism consistent with the existing scale and character of Tilghman.

The capacity that Tilghman needs to build in order to attract and retain travelers with an interest in its rich natural and cultural heritage, is the same capacity that the community needs to achieve its community development goals. Cultural travelers are usually most interested in supporting local businesses, not national chains. This includes lodging, dining, and retail opportunities. The following actions are recommended:

A. Define an area(s) along Tilghman Island Road that is suitable and desirable to encourage business opportunities for heritage and nature-based tourism related businesses. Consider including these areas within an overlay that addresses issues that constrain those business (e.g. setback, height and bulk requirements, parking requirements, lot coverage, etc.), to determine if modifications can be made within the constraints of an LDA.

B. Consider adding an area(s) along Tilghman Island Road as part of an IDA package if coverage requirements prove to be the most constraining factor.

C. Seek funding through USDA rural economic development and other similar programs to provide business development and marketing assistance for hospitality-oriented businesses targeted towards heritage- or nature-based tourism.

2.2 Position Tilghman to support and appropriately promote heritage- and nature-based tourism assets that build upon the historic watermen culture of Tilghman and its abundant natural resources for the next generation of travelers.

The very nature of the way in which people travel and visit an area is changing dramatically. The next generation of travelers are looking for ways to actively experience a place. More often than not, they may visit a place once or twice to experience what it has to offer and then move to other destinations. In that respect, investments in second homes or boats for recreation and leisure are declining. Yet, that same second home or boat can continue to serve the next generation of travelers through the sharing economy—to be used by many different people—who are often unfamiliar with an area, but still looking for that one of a kind experience.

Tilghman, as a community, should work with its potential heritage tourism partners (Talbot County Department of Economic Development and Tourism, along with the Stories of the Chesapeake Heritage Area, the Maryland Heritage Areas Authority, and the Maryland Office of Tourism Development) to position its marketing and branding to create a brand unique to Talbot County that focuses on the next generation of cultural heritage travelers (including nature-based tourism activities.) This requires a shift towards an experience-based marketing and away from place-based marketing. Experienced-based marketing emphasizes opportunities to make connections:

• Connect with community and culture - especially connecting with people and the feeling and atmosphere of a place
• Connect with nature - for a community like Tilghman, that means the Bay, Harris Creek and the Choptank River
• Connect with action - people want to experience the community as an active participant, as if they lived there

The following actions are recommended to change the way that Tilghman currently works with its heritage tourism partners and its place-based marketing (e.g. brochures about a specific destination) to experience-based marketing.

A. Refocus marketing to answer the questions of “why come here” and “why stay longer” instead of a broad list of things to do. Use photographs that convey the Tilghman experience to connect visitors with the place—the setting can be in the background (e.g. show the fun of sailing or fishing with people, not just a passive view of the beautiful Chesapeake Bay).

B. Reconnect with and attempt to revive the Waterman Heritage Tourism Training Program for Watermen originally run through Chesapeake College and the Chesapeake Conservancy (www.watermenheritagetours.org)

C. Facilitate and encourage the active engagement of charter businesses, rental companies, and other providers of experience-based activities (maritime heritage tours, sea kayak trails, birding opportunities, bicycling, etc.) by dedicating dock space at existing public or publicly accessible landings and/or seasonal rental spaces for land-side support (equipment rental, parking, provisions, support retail, etc.)

D. Explore the feasibility, potentially in partnership with the Phillips Wharf Environmental Center, a regular environmental camp and/or conference center.

2.3 Consider the development of a continuous and interpretive walking trail between Dogwood Harbor and Knapps Narrows as a priority, and an Island Loop trail as a long-term goal.

Responses to the community survey and conversations at public meetings raised the idea of a walking trail that both links together some of Tilghman’s key heritage tourism assets and provides an opportunity for safe and enjoyable walking. Implementing this idea involves several challenges, including the option of voluntary easements on private property. The following actions are recommended:

A. Work with property owners to identify links between side streets to the waterfront, but respect the privacy of property owners.

B. Develop a preliminary route map showing the connections that would provide an alternative walking route.

C. Identify opportunities for placement and content of interpretive signage and viewing/sitting areas.

2.4 Support efforts of Phillips Wharf Environmental Center to expand educational opportunities (focused on aquaculture) by packaging overnight lodging, hospitality and educational travel.

Educational and experiential tourism is another aspect of heritage- and nature-based tourism that is already occurring as part of the Phillips Wharf Environmental Center. Expanding the range of hospitality offerings will expand the capacity of PWEC to offer educational programs as part of extended stays.

Neighborhood

Goal 3: Preserve, maintain and enhance existing residential structures in a manner that is compatible with the existing neighborhood scale and character

Tilghman is comprised of two eras of distinctly different residential neighborhoods. The traditional Tilghman neighborhoods, outlined in yellow on Map 12, include some of the earliest residential homes. These are located on the east side of the island between Dogwood Harbor and Knapps Narrows and along Wharf Road. Some of the traditional homes are also found on the west side of Tilghman Island Road along Coopertown and Sinclair Roads. The majority of the newer, post 1960 homes are built on the south end of town, including a planned residential community, “Tilghman-on-Chesapeake.” Newer homes were also built on the west side of the island facing the Chesapeake Bay, and on some infill lots in traditional neighborhoods, especially facing Harris Creek.

A common issue from the community outreach efforts and at the community meetings was how to preserve neighborhood character through the maintenance, restoration and rehabilitation of existing housing while maintaining the affordability of homes for Tilghman residents. There was a high degree of concern about scale and compatibility - especially if an overlay and/or IDA is implemented, facilitating new development pressures. A third group of issues reflected the concern and challenge of how to build on vacant lots (given coverage limitations of the LDA) and renovate and modernize older homes to current building codes.

County roads and streets (primarily the side streets in the older neighborhoods) are also in need of constant repair and upkeep.

Finally, the social fabric of the community is sometimes stressed as the newer homes have attracted a different social and economic demographic; oftentimes with different needs, wants, and values. Both longtime residents and relative newcomers are concerned about the future of Tilghman. While these two groups of people agree on many things, they come from different backgrounds and experiences. This was evident during the outreach process when the topic of sidewalk and lighting improvements were discussed. The multi-generational Tilghman residents appreciate the low key and semi-rural way of life they have built over time. They see no need for sidewalks and lighting and feel safe walking because they know everyone driving by adheres to the rule of sharing the road. Newer residents have expressed a preference for a dedicated and safe place to walk, somewhat buffered from the vehicles that pass them by. The County is working to address this issue through a Bicycle and Pedestrian Priority Area (BPPA) grant in partnership with the Maryland State Highway Administration (SHA). The Maryland General Assembly created the BPPA designation as a tool to facilitate the coordination and planning of bicycle and pedestrian facilities in areas with a high potential for bicycling and walking. The SHA is taking the lead on the project and will offer design suggestions for future bicycle and pedestrian treatments that can align local and state planning goals. SHA’s work is expected to be completed in May of 2017. The project area is one-mile of State Highway 33 from Back Creek Park to the Tilghman United Methodist Church. Due to the very limited state right-of-way, pedestrian and bicycle facility treatments as well as roadway design that includes sidewalks or trails, curb and gutter and bicycle lanes will be difficult to achieve. However, improvements with limited impacts to the geometry of the roadway and roadside may be suggested such as gateway enhancements and additional signage.

Strategies

The following strategies are recommended to address issues noted above, to preserve and maintain the quality of life of existing Tilghman neighborhoods, and to expand more affordable housing opportunities.

3.1 Increase housing opportunity and affordability by encouraging infill development on existing vacant lots while retaining the scale and character of homes within the street and block.

The character defining features of Tilghman’s older neighborhoods are reflective of the residents’ desire to retain the scale and proportion of existing homes when building new residential. This includes the orientation of homes facing the street and the relationship of homes to each other reflecting a system of lots and blocks that has been in place for many years. Encouraging infill within the older, traditional neighborhoods can be done while retaining these character defining features. The update to the County’s Zoning, Subdivision, and Land Development regulations could consider the following:

A. Identify specific boundaries for infill / redevelopment and set clear standards for evaluating and approving development within these areas.

B. Establish expedited permit review and/or lower development fees to encourage infill development within the designated areas.

C. Provide incentives to rehabilitate existing structures.

D. Continue to support and adopt incentives for accessory dwelling units in the zoning ordinance.

E. Identify additional incentives that would discourage the practice of combining lots and tearing down existing structures for larger homes that can meet coverage requirements of the LDA.

Maintaining and possibly expanding the current inventory of slips and bulkhead access for priority use by working watermen is critical to the commercial success of Tilghman’s water dependent businesses. The following actions are recommended:

1. Acknowledge the importance of informal relationships that support working watermen.
2. Provide technical and business assistance to existing water-dependent businesses that seek to expand, or new water-dependent business, including the potential for retaining maritime commercial uses when maritime commercial properties are put up for sale.

4.2 Reduce the risk of flood exposure to existing infrastructural assets from the impacts of sea-level rise.

According to the State of Maryland Climate Change and Coast Smart Construction Infrastructure Siting and Design Guidelines (dnr.maryland.gov/climate change) prepared in response to directives outlined in State of Maryland, Gubernatorial Executive Order 01.01.2012.29:

“The State should employ Coast Smart practices when constructing all new State structures, reconstructing or rehabilitating substantially damaged State structures, or making other major infrastructure improvements in Maryland’s coastal zone, such as roads, bridges, sewer and water systems, drainage systems and essential public utilities. Similar measures should be applied to non-State structure or infrastructure projects if partially or fully funded by State agencies; and, to non-State projects located on State-owned lands.”

As a working waterfront community where many of its businesses and much of its livelihood is dependent upon access to water, Tilghman is not generally in a position to avoid or minimize the impacts of coastal flooding or sea level rise. Instead, Tilghman will need to look for ways to increase resiliency when it comes to existing facilities and infrastructural assets, especially its marine and transportation infrastructure. The Coast Smart guidelines go on to state that exceptions to the Siting Guidelines, may be considered for the following project types, provided that it can be demonstrated that projects have been designed to increase resiliency to future impacts:

1. Water-dependent uses. Projects that require continued direct access to the water as an integral part of the use, or facilities that directly support water dependent uses.
2. Existing transportation system assets. Projects that support the continued function of existing transportation system assets.
3. Passive public access. Projects that provide either recreational or scenic access to water bodies or shoreline areas, which need to be within a flood zone for their purpose.

Map 6 describes the physical effects of varying increases in sea level on Tilghman Island. Although it is not until sea levels rise to five feet above current MHHW that Tilghman Island Road becomes inundated on both sides of Knapps Narrows (as well as near Sherwood), lower levels could affect much of the landward areas identified as important working waterfront assets.

The 2011 Talbot County Flood Hazard Mitigation Report (http://www.talbotdes.org/uploads/file/2011_Talbot_hazard_Mitigation_Plan.pdf?AspxAutoDetectCookieSupport=1) points out some of the potential hazards associated with sea level rise but does not provide specific actions that can be taken by coastal communities such as Tilghman.

A more comprehensive countywide assessment is needed with specific actions modeled after the Kent County assessment. Kent County recently completed an assessment of Climate Change and Sea Level Rise Adaptation (http://www.kentcounty.com/images/pdf/planning/Kent_Co_Climate_Change_Adaptation_Report_Sept_2016.pdf) that may be worth emulating. Of particular importance for Tilghman are the following key steps:

1. Education, Information, and Outreach - working with residents to confirm past flood history as a means of initiating a conversation about sea level rise, and then to identify projected flood risks under varying scenarios.
2. Emergency Management - update emergency management procedures including the updating of flood warning systems and potential evacuation protocols.
3. Infrastructure and Maintenance - working with SHA and Talbot County, update maintenance practices for roadside ditches to reduce the risk of nuisance flooding
4. Land Use and Land Management - adopt updated standards for both wet and dry flood protection for new and renovating structures and determine priorities for adapting existing structures.

4.3 Develop a management plan to formalize maintenance of working waterfront assets (navigable channels, shorelines, docks and piers, bulkhead, marine repair and services, etc.)

The primary source of funding for maintenance of working waterfront assets (piers, wharves, and ramps and bulkheads) is through the Waterway Improvement Fund, established in 1966 (Annotated Code of Maryland Sec. 8-707 of the State Boat Act) for the purpose of funding projects that improve and promote the recreational and commercial capabilities, conditions and safety of Maryland’s waterways for the benefit of the general boating public. Revenues for this fund are primarily obtained from the one time 5% excise tax that is paid to the State of Maryland when a boat is purchased and titled in the state.

Where costs exceed $100,000, there is a 50% matching requirement, further emphasizing the need to coordinate applications for these funds with Talbot County priorities and with other related programs that might provide a source for the matching fund requirements.

In addition to general maintenance and repair, ongoing efforts are needed to increase the resiliency of the harbor in response to issues related to sea-level rise and the impacts of storm surge discussed in the previous section.

The following actions are recommended:

1. Use the master plan to help advance the four projects on the Countywide maintenance improvement plan:
   • Dogwood Harbor - Maintenance Repairs (currently in design phase)
   • Dogwood Harbor - Dredging/Materials Placement Site (currently seeking state funding)
   • Tongers Basin - Maintenance Repairs (currently in the planning phase)
   • Knapps Narrows and Dogwood Harbor Dredging - Dredging/Materials Placement Site (Federal/State Funding not yet identified). Build into dredging plans potential opportunities for private marinas, including Tilghman Island Marina, Severn Marina and Knapps Narrows Marina to utilize economies of scale by “tagging on” to dredging plans in Knapps Narrows and Dogwood Harbor
2. Incorporate efforts to address sea level rise. As maintenance and repair projects are considered, efforts should include relevant recommendations from Coast Smart siting guidelines and/or using Kent County’s Climate Change and Sea Level Rise Adaptation Report as a guide.
3. Seek funding in support of a Knapps Narrows/Dogwood Harbor management plan to:
   • Identify maintenance needs and develop an annual maintenance statement of needs and responsibilities; and
   • Use statement to seek additional funding and resources to implement maintenance programs.

4.4 Work with State Highway Administration to develop and adopt a desired cross section and desired character for Tilghman Island Road.

No other issue discussed during the planning process evoked as much anxiety and concern as the discussion of sidewalks. Some participants clearly stated that they did not think it was safe to walk down Tilghman’s main street, Tilghman Island Road. Others said that the only people that drive down Tilghman Island Road are people that live here or people visiting those that live here—both groups who know to slow down through town and to watch out for pedestrians—the unwritten rule of Tilghman.

Retaining the character defining features of Tilghman Island Road requires that first, the desired character be defined. Increasing pedestrian safety along Tilghman Island Road can be accomplished without affecting the character defining features if it is done carefully and if the exceptions can be achieved from typical state standards. The following actions are recommended:

1. Determine ways to accommodate parking without detracting from the desired character of Tilghman Island Road (e.g. on street, side yard, alley, etc.)
2. Determine ways to increase opportunities for safe pedestrian and bicycle travel without detracting from the desired character of Tilghman Island Road (e.g. remove barriers for pedestrian and bicycles through minor modifications to the roadway surface, shoulders, drainage, connecting footpath system, etc.).

4.5 Create a Tilghman Maritime Heritage Alliance or similar group or coalition to speak out for and advocate on behalf of Tilghman’s working waterfront assets (including maintenance and dredging of channels, maintenance and repair of slips, piers, and bulkhead) and to assist with the implementation of master plan strategies.

Interest in forming an organization has emerged out of this planning process. If interest continues, the group will need to first determine its mission, purpose and goals. Once determined, an organizational structure would then be identified that reflects the mission and goals. If advocacy is the primary purpose then it may be possible to retain a more informal organizational structure. If the mission is to raise money in support of implementing the plan, then the structure would benefit from incorporating as a 501c3 as a public charity. Talbot County is home to many retirees, some of which are likely to have extensive experience working with non-profit organizations. Reaching out for this type of assistance is a worthwhile initiative.

Implementation

The following table summarizes the coordination needs and funding sources for each of the recommended strategies in the plan. A detailed list of potential funding sources follows the table.

Potential Funding Sources

The following more fully describes the potential funding sources listed in the implementation table. Note that many of the federal programs listed may change based on future federal budgets and priorities.

Waterway Improvement Grants

According to the DNR website:

“The Waterway Improvement Fund was established in 1966 (Annotated Code of Maryland Sec. 8-707 of the State Boat Act) for the purpose of funding projects which improve and promote the recreational and commercial capabilities, conditions and safety of Maryland’s waterways for the benefit of the general boating public.”

The Fund provides financial support in the form of grants and/or loans for capital projects and services that serve the boating public including the following selected project types directly relevant to Tilghman:

• Marking of channels and harbors and establishing aids to navigation.
• Clearing of debris and obstructions from navigable waters of the state.
• Dredging channels and harbors, and constructing jetties and breakwaters,including those projects in cooperation with the U.S. Army Corps of Engineers.
• Construction of marine facilities beneficial to the general boating public.
• Installation of marine sewage pump-out stations.
• Evaluation of water oriented recreation needs and capacities of Maryland waterways and the development of comprehensive plans for waterway improvement projects.
• Boating information and education.

Construction of marine facilities for marine firefighting, police, first aid and medical assistance, and communications for promoting safety of life and property and general service to the boating public.

Recreational Trails Program (SHA)

A federally funded program assisting development and maintenance of smaller scale motorized and non-motorized trail, trailhead and restoration projects. Examples of trail uses include hiking, bicycling, in-line skating, equestrian use, canoeing, kayaking, cross-country skiing, snowmobiling, off-road motorcycling, all-terrain vehicle riding, four-wheel driving, or using other off-road motorized vehicles. Recreational Trails is now a part of the larger Transportation Alternatives Program due to the latest federal transportation law, but has retained dedicated funding for the following eligible activities:

• Construction of new trails;
• Maintenance and restoration of existing trails;
• Development/rehabilitation of trailside facilities and linkages;
• Purchase/lease of trail construction equipment;
• Trail/corridor easement and property acquisition; and
• Interpretive/educational Programs, signage and maps related to recreational trails use.

Funding source: Federal. Grant awards cannot exceed $40,000 for new construction and $30,000 for other projects; Local match: 20 percent of total project cost as a cash match.

Maryland Heritage Areas Financial Assistance Programs (MHT)

The Maryland Heritage Areas Program provides dollar-for-dollar matching grants to nonprofit organizations and government entities for capital and non-capital projects located within a Maryland Certified Heritage Area (CHA). Talbot County is located within the Stories of the Chesapeake Heritage Area. Grants can support projects involving historical, cultural or natural resources, sites, events or facilities. Eligible projects must have a heritage tourism component.

Non-Capital. Grants of up to $50,000 are available for non-capital projects, which can include Planning (research, field investigation, data recovery, feasibility and planning studies, design documents and other planning activities that support the heritage area); Interpretation (exhibits, signage, pedestrian wayfinding signage, interpretive brochures, educational programs and materials, other interpretive activities that support the heritage area); and Programming (seminars, conferences, performances, reenactments, commemorations, festivals).

Capital. Grants of up to $100,000 are available for Acquisition (fee title of real property, interest other than fee title (i.e. easement) of real property); Development (repair or alteration of an existing building, structure or site, new construction for heritage tourism purposes) among other purposes. For more information:

Jen.Ruffner@maryland.gov, Program Assistant Administrator
410-514-7612

Maryland Agricultural Education and Rural Development Assistance Fund (MAERDAF) and Rural Maryland Prosperity Investment Fund (RMPIF)

According to its website, the Maryland Agricultural Education and Rural Development Assistance Fund (MAERDAF) “offers financial support to rural-serving nonprofit organizations that promote statewide and regional planning, economic and community development, and agricultural and forestry education efforts. The Fund also provides targeted financial assistance to community colleges that support small and agricultural businesses through enhanced training and technical assistance offerings.

The Rural Maryland Prosperity Investment Fund (RMPIF) supports the Rural Maryland Council’s activities and the Maryland Agricultural Education and Rural Development Assistance Fund (MAERDAF), which provides capacity-building funds to rural nonprofit service providers. It also supports the states’ five regional councils, regional infrastructure projects, rural entrepreneurship development, rural community development, and rural health care organizations.

Grant applications were due in July and August of 2016, respectively for FY 2017 funding. For more information visit http://rural.maryland.gov/maerdaf/

USDA Rural Business Development Grants

Most Recent Application Deadline: March 31, 2017

RBDG is a competitive grant designed to support targeted technical assistance, training and other activities leading to the development or expansion of small and emerging private businesses in rural areas that have fewer than 50 employees and less than $1 million in gross revenues. Programmatic activities are separated into enterprise or opportunity type grant activities.

https://www.rd.usda.gov/programs-services/rural-business-development-grants/md

According to USDA’s web site there is no maximum grant amount for enterprise or opportunity type grants; however, smaller requests are given higher priority. Generally, grants range from $10,000 up to $500,000. There is no cost-sharing requirement. Opportunity type grant funding is limited statutorily to up to 10% of the total RBDG annual funding.

Enterprise type grant funds must be used on projects to benefit small and emerging businesses in rural areas as specified in the grant application. Uses may include:

• Training and technical assistance, such as project planning, business counseling/training, market research, feasibility studies, professional/technical reports, or product/service improvements
• Acquisition or development of land, easements, or rights of way; construction, conversion, renovation, of buildings, plants, machinery, equipment, access streets and roads, parking areas, utilities
• Pollution control and abatement
• Capitalization of revolving loan funds including funds that will make loans for start-ups and working capital
• Distance adult learning for job training and advancement
• Rural transportation improvement
• Community economic development
• Technology-based economic development
• Feasibility studies and business plans
• Leadership and entrepreneur training
• Rural business incubators
• Long-term business strategic planning

Opportunity type grant funding must be used for projects in rural areas and they can be used for:

• Community economic development
• Technology-based economic development
• Feasibility studies and business plans
• Leadership and entrepreneur training
• Rural business incubators
• Long-term business strategic planning

*** Applicants should contact Business and Cooperative Programs Department at 302.857.3628 to discuss proposed projects with a Program Specialist prior to submitting an application.

Maryland Program Contact: Letitia Nichols, Business and Cooperative Program Director 302-857-3628

Green Streets, Green Jobs, Green Towns

The Chesapeake Bay Green Streets-Green Jobs-Green Towns (G3) Grant Program funded by the United States Environmental Protection Agency, Region III (EPA), Chesapeake Bay Trust (Trust), and the City of Baltimore Office of Sustainability with support from the Maryland Department of Natural Resources, was created to support design projects, financing strategies, and/or implementation of green street projects. The goal of the is to help communities develop and implement plans that reduce stormwater runoff, increase the number and amount of green spaces in urban areas, improve the health of local streams and the Chesapeake Bay, and enhance quality of life and community livability. This collaborative effort supports implementation of the and serves as a key component of EPA’s Green Streets, Green Jobs, Green Towns (G3) Partnership. The G3 Partnership provides support for local, grassroots-level greening efforts to reduce stormwater runoff from towns and communities in urbanized watersheds.

Up to $30,000 may be awarded for design projects. Up to $75,000 for implementation projects.

Deadline: March 17, 2017 at 5:00 pm.

Transportation Alternatives Program (SHA)

The program provides funding for projects that enhance the cultural, aesthetic, historic, and environmental aspects of the intermodal transportation system.

• Planning and design of bike/pedestrian facilities and safe routes for non-drivers;
• Construction of bike/pedestrian facilities;
• Construction of safe routes for non-drivers; and
• Conversion of abandoned rail to bike/pedestrian trails.

All TAP projects must meet the following criteria:

• Funding source: Federal. All TAP projects must comply with ADA, NEPA, Davis-Bacon wage rates, Buy America, and other applicable state and federal regulations;
• Local match: 20 percent of total eligible project costs as a cash match. A TAP grant can cover up to 80 percent of the design and/or construction costs. Prior project work and right-of-way acquisition and in-kind services match cannot be counted toward the 20 percent match requirement. In-kind services can be approved on a case by case basis;
• Open to the public and benefit all Marylanders, not a specific group or individual;
• Serve a transportation purpose, connecting two destinations (TAP projects cannot be solely recreational in purpose, but may be phased as long as each phase continues to serve transportation destinations);
• Unrelated to planned or existing highway projects, routine highway improvements, or required mitigation for a planned or existing highway project; and

Located on publicly owned right-of-way or on right-of-way encumbered with a permanent easement held by a state agency or the government agency sponsoring or co-sponsoring the project.

Contact: Transportation Alternatives Program Manager, SHA Regional & Intermodal Planning, 410-545-5659, http://www.sha.maryland.gov/Index.aspx?PageId=144.

Maryland Bikeways Program (MDOT)

The program supports projects that maximize bicycle access and fill missing links in the state’s bicycle system, focusing on connecting shared-use paths and roads and enhancing last-mile connections to work, school, shopping and transit. The following projects are eligible for funding:

• Feasibility assessments, design and engineering;
• Construction of shared use paths, cycletracks and bicycle lanes;
• Shared lane and other pavement markings;
• Bicycle route signage and wayfinding;
• Bicycle capital equipment (e.g. parking);
• Other minor retrofits to support bicycle routes; and
• Education materials to support bikeway projects.

Requirements:

• Funding source: State;
• Local match: Zero percent for Priority Minor Retrofit projects, 20 percent for other Priority Projects, and 50 percent for non-priority projects. Match may include cash or in-kind services contributing to the project, including expenditures up to 24 months prior to a Bikeways project award;
• All Bikeways Projects must meet at least one of the following criteria; and
• Located substantially within a Priority Funding Area, within 3 miles of a rail transit station or major bus transit hub;
• Provide or enhance bicycle access along any gap identified in the Statewide Trails Plan; and
• Identified as a transportation priority in the County’s most recent annual priority letter submitted to MDOT.

Priority Projects are defined as any of the following:

• Enhance bicycle access within 3 miles of a rail transit station;
• Provide or enhance bicycle access along a missing link identified in the Statewide Trails Plan; and
• Enhance bicycle circulation within or access to a Sustainable Community, Designated Maryland Main Street, census tract at or below 60% of area median income, major university, central business district, or important tourist or heritage attraction.

Contact:

Marty Baker, MDOT Planning and Capital Programming, 410-865-1294, mbaker1@mdot.state.md.us, http://www.mdot.maryland.gov/newMDOT/Planning/Bike/Bikeways.html.

Program Open Space (DNR)

The program consists of two components, a local grant component often called Local side POS and a component that funds acquisition and recreation facility development by the State. The local side component provides financial and technical assistance to local subdivisions for the planning, acquisition, and/or development of recreation land or open space areas. Note that in order to be considered for this program, projects need to be referenced in the Kent County Land Preservation, Parks and Recreation Plan (last updated in 2012 and due for an update in the near future).

Contact:

Program Open Space Local Support Staff contacts can be found at http://dnr2.maryland.gov/land/Pages/ProgramOpenSpace/home.aspx

Community Parks and Playgrounds (DNR)

The program provides funding to restore existing parks and create new park and green space systems in Maryland’s cities and towns. Flexible grants are provided to local governments, which help them rehabilitate, expand or improve existing parks. Funding can help develop environmentally oriented parks and recreation projects, create new parks, or purchase and install playground equipment in older neighborhoods and intensely developed areas throughout the state.

Contact:

Community Parks and Playgrounds Local Support Staff contacts can be found at http://dnr2.maryland.gov/land/Pages/ProgramOpenSpace/cpp-Intro.aspx

Wildlife & Sport Fish Restoration Program, Region 5

Boating Infrastructure Grant Program - Overview

The Boating Infrastructure Grant Program (BIG) provides grant funds to the states, the District of Columbia and insular areas to construct, renovate, and maintain tie-up facilities with features for transient boaters in vessels 26 feet or more in length, and to produce and distribute information and educational materials about the program.

The BIG Program includes two funding tiers, Tier One (non-competitive) and Tier Two (nationally competitive). Under Tier One each state, the D.C. and insular area may receive funding for eligible projects up to $200,000 annually. Tier Two funds are made available through a nationally competitive process. Tier Two proposals received are reviewed, evaluated and ranked by a national panel with the final decision for funding made by the Director of the U.S. Fish and Wildlife Service. The ranking criteria, eligible projects and regulations are listed in 50 CFR 86.

Colleen Sculley, Chief, Division of Wildlife & Sport Fish Restoration Phone: 413 253-8501 Colleen_Sculley@fws.gov

Q2 - In your opinion, what are the three most important things you enjoy about living and/or visiting the Village of Tilghman?

Q3 - In your opinion, what are three things you would like to see to make the Village of Tilghman a better community?

Q4 - In your opinion, what are the greatest threats to your quality of life in the Village of Tilghman (Please list up to three and explain)?

• commercial development; residential development (large scale)
• overdevelopment - we don’t need more housing development; overdevelopment - we don’t need additional retail development; lack of access to services - law enforcement, public health, activities
• Lack of law enforcement. Drugs have caused a problem with theft.; Imposed changes of Tilghman. Too many people move in and change our heritage; No interest to tourists. There is nothing to bring visitors to this area that is unique or appealing to promote business growth.
• Drug abuse by the youth; New comers who want to change Tilghman to be more like where they came from originally
• Broken down houses; Beach Erosion; No cell service
• need for more drainage; worry it will become too commercial; trash left at recycle area
• Closing the school; our school brings the community together w/ volunteers and functions around our youth; Less tourism - bringing visitors to Tilghman makes it less safe for children because a) of predators and b) cars driving TOO fast
• Outdoor music - sound carries on water! Enforce current rules and limit exceptions
• over-development housing and retail; law enforcement coverage; access to health care services
• increased traffic; increased retail space; not having a master plan for entire island
• load exhaust trucks; VHF radios on all night; drug problem
• the decline of watermen; decrease in young families; destruction of nature and waterfront by wealthy and influential
• use of drugs - brings on vandalism and stealing; more commercialism - who needs McDonald’s, etc.; more residential development - want this to be a waterman’s community
• excessive commercialism and tourism traffic; drug crimes (theft, public behavior); politicians helping fix things not broken
• drugs; part-time residents outnumbering locals because of cost of property; growth of business that develops waterfront so watermen lose docking and places to store/work on equipment
• cell phone tower
• lack of facilities for the youth to keep them out of trouble
• Possible failure of Harrison’s - help them with the following: management, property master plan, clean up, visual upgrades
• Development...too many expensive houses being built; Noisey tourists drinking and partying; Too many yachts taking over the knarrows
• Lack of sanitary sewers for all properties, which endangers the ecosystem; Lack of adequate cell phone coverage, which could be dangerous in an emergency situation; Illegal drug usage, which causes an increase in crime
• Calling Tilghman Island the awful ‘Tilghman Village.’ Cut it out!; Citizen Advisory Committees; New businesses and new development
• Drugs on the Island; Speeding on road through town down to Black Walnut Point; Residents don’t support local businesses enough
• Wetlands erosion; Open culverts on Main Street; Lack of opportunities for young adults
• Drugs and prostitution on the Island - I see drugs being sold out in the open; Part/vacation rental houses in residential blocks; Lack of docking slips for watermen
• The willingness of many to let the community drift; little direction; Ongoing tension between “come-heres” and “been-heres”; If Harrison’s continues to deteriorate as a destination
• More development; Part-time residents and visitors who don’t contribute to community life and don’t have any idea what its really like to be here; Short-term rentals
• The loss of Tilghman’s historic character; Managing tourist traffic
• Development - There is no capacity for lots of traffic or public services; Poverty - Many families need support services they are not recieving; Youth programs - Too many teens with nothing to do
• Apathy towards drugs and alcohol and its direct impact on family unity and core family values
• Folks moving in trying to change it; Folks not cleaning up after themselves; Trash on playgrounds/parks
• Single lane road; Drug dealers; Hookers
• Drug abuse; Unkept and abandoned houses and empty lots where houses once stood; Overtime, the Island gains more retirees that displace the local people necessary to maintain a village
• Drug abuse; Unkept and abandoned houses; Improve successful cafes and restaurants
• More tourism; Overbuilding/overdevelopment
• Too much change; Too many committees; The watermen leaving
• Newcomers that want to keep it as it is, but modify it to match their idea of what they perceived it to be.
• Watermen moving out and giving up life on water; In-migration of the “DC crowd”
• Commercialism; Multi-story condos/apartments; Too many zoning laws
• Drug abuse among Island residents and the crime this abuse causes; Lack of public water access; Dangerous walking or riding bikes through town on Route 33
• Sidewalks and/or bicycle lanes; Housing Developments (especially concerns area outside the village such as Grey Goose Farm); Short-term rentals
• Widening of roads; Addition of sidewalks
• Greatest threat is new people coming here and trying to change it! If they want to be like St. Michaels than move there!
• Overpopulation; Too many large homes; Drug situation
• knapps to shallow needs dredge; better bulkheads; development of open land
• Removing the historical name of the village of Avalon with the village; Altering the historical aspects of Avalon buildings with modern offices and stores.
• Lack of good jobs for young people, who leave, resulting in an aging population on the Island.; Global warming resulting in flooded roads and continued erosion of the Island, and nothing being done to address it.; Resistance to change on the part of the “from heres” which handicaps their own ability for future success.
• lack of a year-round economy on the island; proposed inconsistent land uses e.g. turning a corn field into town houses; Too much runoff and usage of plant fertilizers that pollute the bays
• Property development restrictions; Farmland developments; Business closures or failure
• Neighbor who built 7 rental dwellings next door damaging street and increasing traffic, trash and trucks driving on my property because of poor access to her property.
• TOC-type development; Increased tourism; Increased traffic
• Drug use and trafficking - There are known hotspots that need to be addressed; Watermen way of life - It is not always financially supporting the community as it has in years past. Is there a way that extraordinary wealth of knowledge can be used to help residents?
• Knapps Narrows shoaling keeping visitors away and hurting business; lawless attitude of some residents; too much development

Things you would like to see to make the Village of Tilghman a better community

The greatest threats to your quality of life in Tilghman

Q5 - In your opinion, are there any specific improvements or amenities that would help to maintain or enhance your quality of life in the Village of Tilghman?

Please rank the following from 1 to 9 (1 being the most important):

Specific improvements that would enhance your quality of life

Q8: Do you have any other suggestions or comments as to how to protect and enhance the traditional working waterfront in Tilghman, or to improve the overall quality of life in the village? (Please explain)

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