Comprehensive Economic Development Strategy

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Cape Cod Region Comprehensive Economic Development Strategy (CEDS)
2009 Five-Year Update

Cape Cod Region

Comprehensive Economic

Development Strategy

CEDS Five-year Update

Submitted To:

US Department of Commerce Economic Development Administration

Approved & Submitted By:

Cape Cod Commission, Barnstable County, Massachusetts


June 2009

This five-year update of the Comprehensive Economic Development Strategy for Barnstable County could not have been accomplished without the willing and active participation of the members of the Cape Cod Economic Development Council (EDC) and the CEDS Work Group participants. Particular thanks to the Work Group Chairs and other members of the CEDS Administrative Committee for their enthusiasm and guidance. Thank you to the focus group participants and those who provided written comments on the document for your valuable feedback and ideas. The leadership provided by the Cape Cod Commission’s Executive Director Paul Niedzwiecki has been invaluable to the creation of this strategy. Similarly, the funding support provided by the EDC has transformed the CEDS into a true regional strategy supported by economic development players across the Cape who are dedicated to its implementation and to perpetuating the collaboration and momentum created through the CEDS planning process.
Staff of the Cape Cod Commission and the EDC, particularly Leslie Richardson and Daniel Dray, have accomplished what seemed an impossible task in an impossible timeframe. Thanks to Gay Wells of Wells Consulting for acting as CEDS Coordinator and providing the calm support needed to accomplish the job. Stephanie Ostapowich and her able successor, Elizabeth Hude, have been outstanding members of the CEDS team thanks to their hard work and sense of humor. Sharon Rooney, Chief Planner at the Commission, has lent her skills at getting things done when it all seemed suddenly overwhelming. Thanks to Nancy Hossfeld for her initiative in keeping the community informed through articles on the CEDS in the Cape Cod Commission newsletter, press releases, and postings on the website. Essential editing support was provided by Andrea Adams, Marianna Sarkisyan, and Sharon Rooney. Finally, thanks to the entire Cape Cod Commission staff and the Commission members for their support throughout this intensive planning process.

Table of Contents




Executive Summary


Chapter 1: CEDS Process

The Cape Cod Region
The Legal & Philosophical Basis of the CEDS
The CEDS Planning Structure
The CEDS Regional Planning Process
The CEDS Approval Process

Chapter 2: CEDS Context

Background: Development Capacity & Sustainability
Background: Resident Attitudes about Development
Quick Facts
Description of the Cape Cod Regional Economy
Data Trends
Areas of Economic Distress

Chapter 3: CEDS Vision

The Region’s Growth Policy
The Region’s Economic Development Vision
The Region’s Economic Development Goals
The Region’s Goal for the CEDS and CEDS Process

Chapter 4: CEDS Action Plan

The Purpose of the CEDS Action Plan

The Structure of the CEDS Action Plan

Regional Priority Issues

Regional Priority Projects - Summary

Regional Priority Projects – Individual Project Forms

On-going Economic Development Programs & Planning Activities

Local Capital Projects


Chapter 5: CEDS Implementation & Performance Measures

Implementation & Evaluation

Implementation Plan

CEDS Annual Evaluation

Level 1: Overall Regional Performance Measures

Level 2: CEDS Process Performance Measures

Level 3: Regional Priority Project Performance Measures

Level 4: Ongoing Activities and Local Capital Project Performance Measures


Regional Policy Plan (excerpt)
  • Regional Planning & Regulatory Sections for Land Use and Economic Development
CEDS Leadership
  • Cape Cod Commission Members
  • Cape Cod Economic Development Council/CEDS Strategy Cmty
  • CEDS Administrative Committee
Phase 1 Materials
  • STATS Cape Cod Homepage
  • STATS Cape Cod Side-by-Side County Profile

  • Myth or Fact Briefs

  • Cape Trends
Planning Participants
  • Focus Group Participants
Work Group Kick-Off
  • Agenda
  • Overview of Five-Year Update of the CEDS

  • Phase 2 Planning & Adoption Timeline

  • Work Group Process

  • Work Group Summary Table

  • Guide for Prioritizing Projects

  • Economic & Business Development Defined

  • CEDS Quick Fact Sheet

  • Massachusetts State Sustainable Development Principles

  • EDA Fact Sheet

  • CEDS Fact Sheet

  • Presentation: Paul Niedzwiecki, Executive Director CCC

  • Presentation: Leslie Richardson, Economic Dev. Officer, CCC
Work Group Materials
  • Session 1 Agenda

  • Checklists

  • Priority Project Form
Focus Group Materials
  • Focus Group Structure

  • Priority Project Handout

  • Focus Group Results

Public Comment Period
  • Press Release

  • Comments Received

Documentation of Approval Process
MMR BRAC Economic Impact Analysis – UMass Donahue Institute
Compendium of on-going economic development activities
Compendium of local capital projects

This is the five year update of the Comprehensive Economic Development Strategy (CEDS) for the Cape Cod region prepared in accordance with U.S. Economic Development Administration (EDA) guidelines and submitted to the EDA on June 30, 2009. The forward outlines EDA’s mission, investment policy, and expectations regarding the CEDS document, planning process, and implementation.
The Economic Development Administration (EDA)
The mission of the EDA, an agency of the U.S. Department of Commerce, is to support the formulation and implementation of economic development programs that create or retain full-time permanent jobs and income for the unemployed and underemployed in areas of economic distress. The EDA supports the efforts of regions and communities to devise and implement economic development programs.
The EDA provides regions with both technical and financial assistance. Investments are focused in areas experiencing or threatened with economic stress. Projects are reviewed according to five “Investment Policy Guidelines”:

  1. Be market-based and results-driven. An investment will capitalize on a region's competitive strengths and will positively move a regional economic indicator measured on EDA's Balanced Scorecard, such as: an increased number of higher-skill, higher-wage jobs; increased tax revenue; or increased private-sector investment.

  1. Have strong organizational leadership. An investment will have strong leadership, relevant project management experience, and a significant commitment of human-resources talent to ensure a project's successful execution.

  1. Advance productivity, innovation, and entrepreneurship. An investment will embrace the principles of entrepreneurship; enhance regional industry clusters; and leverage and link technology innovators and local universities to the private sector to create the conditions for greater productivity, innovation, and job creation.

  1. Look beyond the immediate economic horizon, anticipate economic changes, and diversify the local and regional economy. An investment will be part of an overarching, long-term comprehensive economic development strategy that enhances a region's success in achieving a rising standard of living by supporting existing industry clusters, developing emerging new clusters, or attracting new regional economic drivers.

  1. Demonstrate a high degree of commitment by exhibiting:

    1. High levels of local-government or nonprofit matching funds and private-sector leverage

    2. Clear and unified leadership and support by local elected officials

    3. Strong cooperation between the business sector, relevant regional partners, and local, state, and federal governments

The Comprehensive Economic Development Strategy (CEDS)
The CEDS is a document and a process; a process of analysis, planning, and taking action to generate new economic development activity and improve community infrastructure and services. Certification of this document by the EDA will allow the region and the towns therein to qualify for funding from the various EDA grant programs. Funding may be sought from EDA for the projects identified in this document as priorities for the region.
The CEDS Planning Process: Regional Planning Authorities (RPAs) across the county are responsible for developing and implementing a CEDS for their region. The RPA for Barnstable County is the Cape Cod Commission. The CEDS process begins with the selection of a “CEDS Strategy Committee.” The Committee is responsible for convening the planning process and overseeing implementation of the plan. The Committee must be representative of the economic development community within the region including business, industry, government, service and non-profit organizations, minority populations, and training and educational entities.
The CEDS Document: There are two types of CEDS reports: the five-year update and the interim annual reports. The five-year CEDS update includes the following:

    1. CEDS Planning Process: A description of the planning process

    2. CEDS Context: An analysis of the regional economy using available data & research

    3. CEDS Vision: An expression of the region’s economic aspirations

    4. CEDS Action Plan: An account of the region’s priorities over the next five years

    5. CEDS Implementation & Performance Measures: An outline of the plan’s implementation and a method for measuring progress on specific priority projects and towards meeting the CEDS goals overall.

During the interim years, the annual reports track progress toward meeting the region’s economic development goals and completing the priority projects in the CEDS. The annual report documents any changes in regional conditions or priorities. The following elements must be addressed in the annual reports:

  1. Adjustment to the CEDS: Changes in the planning process, structure, or strategy

  2. Activities Evaluation: Quantitative and qualitative progress on priority projects

  3. Goals Evaluation: Overall progress toward meeting regional goals

  4. Implementation Schedule: Timeline of the activities for the upcoming year

Executive Summary
The following five-year update of the Barnstable County Comprehensive Economic Development Strategy (CEDS) represents a new era of collaboration around economic development. Over one hundred people actively participated in the development of this strategy through an exhaustive and invigorating public process. The participants are vested in seeing this strategy implemented and will remain engaged in the annual CEDS evaluation process. Participating organizations have already begun working together on the regional priority projects; in some cases grant requests to EDA are also under development. This level of coordination around a set of sixteen regional priority projects is unprecedented on Cape Cod.

Summary by Chapter

CEDS Regional Planning Process: Chapter 1 describes the organizational structure and planning process used to develop the CEDS. Barnstable County encompasses the 15 towns known as Cape Cod, a unique glacial spit of land jutting off the southeast coast of Massachusetts. The Cape Cod Commission, the regional planning and regulatory authority, leads the CEDS process and adopts the plan on behalf of Barnstable County. The Cape Cod Economic Development Council (EDC) acts as the CEDS Strategy Committee for the Commission; together they include representatives of all the groups required under the EDA guidelines. The legal and philosophical basis of the CEDS is established in the Cape Cod Commission Act, passed by the Massachusetts Legislature in 1990, and the Cape Cod Regional Policy Plan.
The Commission designed an innovative and intensive public process to identify a set of regional priority projects for implementation over the next five years. Regional organizations important to economic development on the Cape were asked to participate on a Work Group charged with selecting priority projects most likely to prepare the region for long-term economic growth. Five Work Groups were established representing the different aspects of economic development: infrastructure, workforce, industry clusters, direct business assistance, and overall business climate. During the month of April, each Work Group met three times for a total of nine hours each to successfully select three priority projects. An additional priority project was adopted due to its universal support by all Work Groups, for a total of 16 priority projects. There was remarkable consensus around the priorities, and participants found the action-oriented format and compressed timeframe invigorating.
Once identified, the priority projects were then vetted using Focus Groups. Three Focus Groups were convened: one of small and large business owners or executive officers; another of municipal staff; and the third of elected officials ranging from the town to the federal level. Each group was asked the same set of four questions drafted to reflect EDA priorities. Each participant was given the opportunity to respond to each question twice. The sessions were lively, and confirmed the priorities identified by the Work Groups but with some useful surprises. The Focus Groups honed in on a number of specific projects that were representative of the infrastructure limitations confronting the Cape.
The third public participation element was the two-week public comment period. The public had the opportunity to comment on the planning process as well as the priority projects. The draft report, along with materials distributed throughout the planning process, was posted on the Commission’s website. A press release announcing the public comment period on the draft report was sent to Cape Cod media outlets, municipalities, and to all economic stakeholders that participated or were invited to participate in the planning process. The public comments received are included in this document in Appendix 8. Revisions to the draft document based on public comment were made accordingly. The completed document was then endorsed in public meeting by the Cape Cod Economic Development Council and adopted by the Cape Cod Commission, also in a posted public meeting.
The CEDS Regional Analysis: Chapter 2 of the five-year update highlights trends that make the Cape Cod region unique from an economic development perspective. Since the mid-twentieth century, Cape Cod has been best known as a tourist and retirement destination. Residential and commercial development has occurred at high rates over a short period of time within a limited, and environmentally sensitive, geographic area. Industries that typically serve local markets – retail and food services – are larger on Cape Cod in order to serve tourists, second home owners, and day-trippers to the area. On the Cape, therefore, these industries are both local and traded clusters of business activity. Yet their benefit as export industries is limited by the low wages and seasonal employment they offer. Emerging traded clusters include analytical instruments, education and knowledge services, renewable energy technology and generation, and marine science and technology. Major employers exist in health service, plastics, information technology, and marine-related education and research. A higher than average percentage of employment is in the form of sole proprietorships.
Until this decade, the population of Barnstable County had grown three times as fast as the state and nearly half again as fast as the nation since 1980. Current population estimates indicate that there has been no net growth in population since the 2000 Census. A higher proportion of the population living on Cape Cod is of retirement age and the percentage of homes occupied by year-round residents is steadily rising. The number of homes on Cape Cod has doubled since 1970, and until the recent economic crisis, construction continued at a higher rate than in the rest of the state.
Meanwhile, the cost of housing, while consistent with Massachusetts, is significantly higher than in the rest of the nation. This remains primarily true even in today’s economic recession except for pockets such as Hyannis, which have had a high foreclosure rate. While median household income continues to increase and poverty to decline in the county, housing affordability measures indicate a broadening bifurcation of the population between those with a great deal of wealth and those among the middle and lower classes struggling to maintain their standard of living on Cape Cod. Variations between towns and income groups are apparent in housing costs and income statistics. Data on population estimates and commuting patterns are also included in this section.
The CEDS Vision: Chapter 3 outlines what the region hopes to accomplish in the long-term; it includes the economic development vision, goals, and objectives. Barnstable County adopts through county ordinance a Regional Policy Plan (RPP) with which local and other regional plans, including the CEDS, must be consistent. The RPP is updated at least every five-years; after a rigorous public review the most recent update was adopted in early 2009. The regional growth policy and set of four economic development goals in the RPP are the foundation of the CEDS. In addition, the CEDS outlines a long-term vision for economic development and a specific goal relating to the CEDS process itself.
The CEDS Regional Action Plan: Chapter 4 is the actual economic development strategy for Cape Cod over the coming five-year period. The regional priority projects are the central element of this strategy. Each regional priority project is described in detail using a standard “Priority Project Summary” form. The description includes the project goal, expected benefits including job creation, measures of success, expected cost and duration, and the organizations collaborating to complete the project. Also included in this chapter are on-going economic development programs, planning projects, and local capital projects to provide a complete picture of where we are going as a region. In the past, the Cape Cod CEDS has focused on on-going activities rather than specific projects in need of funding support from EDA. This CEDS shifts that focus to highlight sixteen capital, planning, and technical assistance projects selected for their potential to improve the foundations of our economy. The participating organizations are vested in seeing these projects implemented and in participating actively in that implementation through both funding and staff effort.
CEDS Implementation & Performance Measures: Chapter 5 outlines the plan for implementation and for annual evaluation of progress on specific projects and the CEDS as a whole. Quantitative and qualitative measures have been identified for each priority project. The measures have focused on outcomes as much as possible; however some process measures of short-term progress have been included as well.
In summary, Cape Cod is fortunate to be a uniquely attractive place to live and work, as well as visit. With historic villages intact, long expanses of publicly accessible beaches, and an interesting heritage of fishing and art that persist today, Cape Cod residents are aware that the health of this rare environment and the health of their economy are inextricable. This awareness was strongly reinforced through the Work Group and Focus Group discussions and the priority projects that were selected. Cape Codders want to retain and improve our traditional sectors such as fishing and tourism, retain our historic architecture and cultural traditions, and move forward into expanding industry sectors such as renewable energy and marine sciences.
Chapter 1: CEDS Planning Process

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