Lancaster County Council Passes $206.6M Budget on First Reading, Commits $6M for Harrisburg Road Fire Station

Lancaster County Council met in regular session on May 26, 2026, with Chairman Brian Carnes presiding over a meeting dominated by a lengthy first-reading review of the FY2026-27 operating budget and capital improvement plan. Council recognized the Indian Land High School Palmetto Pride Club as Volunteer Group of the Year, approved a nine-item consent agenda unanimously, and passed third reading of an easement to Lancaster County Natural Gas Authority off Harrisburg Road. Council voted 4-2 (with Steve Harper recused) to grant Century Communities Southeast LLC a fourth extension of the Shiloh Woods development agreement — pushing the deed-delivery deadline from June 30 to September 30, 2026 — over staff’s recommendation to deny. The bulk of the meeting was consumed by budget deliberations on Ordinance 2026-2036, which proposes a total all-funds budget of $206,629,755 (a 28.98% increase over the FY26 adopted budget of $160,194,556) and a General Fund of $148,145,347 (a 43.86% increase over the FY26 adopted $102,976,461). Council adopted multiple amendments at first reading: removing a proposed Council pay raise; delaying several Parks and Recreation positions to a January 1 start; eliminating $250,000 budgeted for a now-cancelled special election; accepting the staff-proposed Exhibit F reductions (including $4 million for a Development Services building, $2.04 million for an economic development spec-building site improvement, $266,800 for two mini-buses, and $72,500 for the Olde English District); declining to add $400,000 for an airport terminal addition for MUSC helicopter crew quarters; and — most significantly — allocating $6 million from fund balance to construct a new fire station at Harrisburg Road. A motion to strip $400,000 in supplemental funding for the Arrowwood Drive drainage project failed 5-2. Both the budget and the related CIP amendment passed first reading 6-1, with Stuart Graham opposed pending receipt of detailed line-item information for second reading. No executive session was held.

5. Citizens Comments

One person signed up for in-person comment. Gordon Johnson of Century Communities Southeast LLC addressed Council in advance of agenda item 8c to request a 90-day extension of the Shiloh Woods development agreement. Johnson explained that the project had encountered unforeseen delays through extended back-and-forth with SCDOT over evolving roadway improvement requirements at Shiloh Unity Road and Highway 521, as well as a complex water and sewer layout with Lancaster County Water and Sewer District, including a recent change to the alignment of the force main. He stated the project was very close to approval but that it had become clear in the past 30 days that the June 30 deadline could not be met.

Interim Administrator Steve Willis reported one electronic comment requesting installation of a caution light and/or crosswalk at the intersection of Chesterfield Road and Hampton Road. Because the location is on a state road inside the City of Lancaster, Willis indicated he would forward the request to SCDOT.

Chairman Carnes recognized former Council Member Larry Hunnicutt and his wife in the audience, and later recognized former Senator Gregory.

6a. Special Presentation — Indian Land High School Palmetto Pride Club

President Isabella Corretjer led the Palmetto Pride Club presentation alongside the full board of officers: Tinal Razer (Vice President), Natalie Turner (Secretary), Elena Valentine (Social Media Manager), Melanie Cologne (Events Coordinator), and Palmetto Pride Youth Ambassador Grace Bruski, a rising senior at Cyber Academy of South Carolina.

The students reported on a year of environmental work, including:

• An “Eco Eats” donut fundraiser that exceeded its goal, raising over $1,000 in three days
• A first cleanup partnership with Keep Lancaster County Beautiful (KLCB) on Highway 521 on April 26 that collected 27 bags of litter, 18 plastic signs, car parts, and several tires
• A tradition of monthly Highway 521 cleanups in partnership with Beta Club and NHS, with 53-plus volunteers across two cleanups producing 98 bags of trash, three tires, and three sheets of metal
• A holiday pet-supply drive with Paws for a Clause
• An educational event at Del Webb Library co-organized with youth ambassadors Grace Bruski and Hannah Dean, which included giving away 50 redbud trees and a small surrounding cleanup

The students credited club adviser Ms. Hargot, Palmetto Pride Youth Ambassador Coordinator Megan Hamilton, and KLCB affiliate Mandy Catoe. Cumulative results reported to Council: 77-plus volunteers mobilized, over $1,000 raised, and more than 125 pounds of trash collected.

Mandy Catoe of the Keep Lancaster County Beautiful Board then presented the club with the KLCB Award of Excellence for Volunteer Group of the Year. Chairman Carnes presented the award personally, recounting a story from his early years on Council about a corporate prospect who turned around at the airport after seeing roadside litter along the route. A surprise recognition was also presented to Isabella Corretjer with assistance from Leslie, daughter of a founder of Keep Lancaster County Beautiful.

7. Consent Agenda

Vice Chair Billy Mosteller moved to approve consent agenda items 7a through 7i. Council Member Charlene McGriff seconded. The motion passed unanimously, approving:

• 7a — Minutes from the April 28, 2026 special meeting
• 7b — Minutes from the May 1, 2026 special meeting
• 7c — Minutes from the May 6, 2026 special meeting (budget presentation)
• 7d — Minutes from the May 11, 2026 regular meeting
• 7e — Third reading of Ordinance 2026-2030, amending the Lancaster County Code on Planning Commission workshop meeting requirements
• 7f — Third reading of Ordinance 2026-2031, disestablishing the Recreation Advisory Board
• 7g — Second reading of Ordinance 2026-2032, rezoning approximately 0.61 acres at Palmetto Kennel Lane (TM 0049-00-037.00) from Low Density Residential (LDR) to Medium Density Residential (MDR), Case RZ-2026-0409
• 7h — Second reading of Ordinance 2026-2033, rezoning approximately 0.335 acres at 1824 Steele Street (TM 0086C-0N-003.01) from Manufactured Home (MH) to Professional Business (PB), Case RZ-2026-0322
• 7i — Second reading of Ordinance 2026-2034, rezoning approximately 2.14 acres at Shelton Street (TM 0087J-0A-012.00) from General Business (GB) to Professional Business (PB), Case RZ-2026-0308

8a. Third Reading — Ordinance 2026-2026 (Harrisburg Road Easement)

Council took up third reading of an ordinance approving a temporary construction and permanent easement grant to Lancaster County Natural Gas Authority on county-owned real property off Harrisburg Road (TM 0003-00-041.00). The property is described in the ordinance as 10754 Harrisburg Road, on the northeastern side of the road. The public hearing was held with no one signed up to speak. The item had passed 7-0 at the March 23 and April 13 meetings, with the public hearing and third reading postponed from April 27. Council Member McGriff moved approval; Council Member Bryant Neal seconded. Mr. Willis reported no changes on third reading. The motion passed unanimously.

8b. Third Reading — Ordinance 2026-2021 (Poll Workers)

Council considered third reading of an ordinance adopting amended personnel policies classifying poll workers as temporary employees, in accordance with Lancaster County Code Chapter 2, Article IV. The ordinance had previously passed 6-1 at both the May 6 special meeting and the May 11 regular meeting, with Council Member Jose Luis opposed at both readings. Council Member McGriff moved approval; Council Member Steve Harper seconded. Mr. Willis noted no changes and used the moment to recognize the county’s poll workers, reporting a new record of 921 early voters that day. The ordinance passed 6-1 on third reading, with Mr. Luis again opposed.

8c. First Reading — Ordinance 2026-2035 (Century Communities/Shiloh Woods Extension)

Council Member Harper recused himself before discussion began, citing a vested interest in the matter. Vice Chair Mosteller moved to bring the item to the floor for discussion.

Interim Planning Director Shannon Catoe outlined the request: Century Communities Southeast LLC sought to extend the effective date of the Shiloh Woods development agreement from June 30, 2026 to September 30, 2026. The original development agreement was approved on December 12, 2022 under Ordinance 2022-1832 for a 398-unit single-family cluster subdivision on 169.86 acres at 500 and 516 W. Shiloh Unity Road (TMS 0049-00-004.13, 0049-00-004.16, 0049-00-005.01, and 0049-00-005.02). The agreement was amended once for a corrected agreement date (Ordinance 2023-1854) and extended twice (Ordinance 2024-1932 moving the deadline to December 31, 2025, and Ordinance 2025-1987 moving it to June 30, 2026). The currently requested action would be the fourth amendment of the agreement; the Unified Development Ordinance permits up to five extensions.

Under Section 5.19 of the agreement, if the County Administrator does not receive clocked-in copies of the recorded deeds conveying the property to the developer by 5:00 p.m. on June 30, 2026, the agreement automatically terminates without further action. Catoe reported that the applicant had submitted plans on March 30, 2026 and that not-approved comments were returned to the developer on April 15, 2026, with the project still outstanding with Lancaster County Water and Sewer.

In her May 15, 2026 memo to Council, Catoe wrote: “Based on the overall timeline of the project, the multiple extensions previously granted, and the remaining review and coordination items still identified by the applicant, staff cannot support an additional extension request at this time.” Catoe also noted that “other Development Agreements generally progressed forward under the original term of the agreement while Shiloh Woods has required extensions related to the agreement requirements and implementation timeline.”

Applicant representative Gordon Johnson returned to the podium to walk Council through the delays in detail. He explained that SCDOT had reversed course twice on improvements at the Shiloh Unity Road / Highway 521 intersection — first asking for signal improvements and cameras in lieu of lane widening, then returning to a lane-widening approach with different requirements that triggered new right-of-way and easement needs. On the utility side, Lancaster County Water and Sewer had recently requested a change to the force main alignment that set off a cascade of surveyor, wetland consultant, and engineering work, plus additional off-site easement discussions.

Council Member Luis indicated he was a firm no, observing the project had been dragging for a very long time and the applicant had returned for yet another extension after a prior commitment. Council Member McGriff said she would support a 90-day extension but stated for the record that this would be her last vote for an extension. Council Member Mosteller echoed McGriff’s position, supporting 90 days but noting it would be his last vote on the matter as well. Council Member Graham raised concerns about the applicant continuing to invest time and resources if the September 30 deadline was also unlikely to be met.

After discussion, the motion was clarified to be a motion to bring the item to the floor for approval. The amendment to the motion passed 4-2. The main motion to approve first reading then passed 4-2, with Mr. Harper recused.

8d. First Reading — Ordinance 2026-2036 (FY2026-27 Operating Budget)

Council Member McGriff moved to bring the budget ordinance to the floor; Council Member Stuart Graham seconded. Mr. Willis opened with a high-level framing, noting that the budget reflects Council’s strategic-plan priority on public safety.

Budget at a glance

The first-reading budget proposes a total all-funds appropriation of $206,629,755 across 19 funds, a 28.98% increase over the FY26 adopted budget of $160,194,556. The General Fund alone is $148,145,347, a 43.86% increase over the $102,976,461 adopted in FY26. The Indian Land Consolidated Fire Protection District Fund (Fund 52, supported primarily by rooftop fees) is budgeted at $7,932,316, the Capital Project Sales Tax 3 Fund at $29,114,162, the Capital Replacement Fund at $4,936,069, and the County Debt Fund at $3,554,137.

Proposed millage rates

The total proposed county millage of 99.50 represents a net 2.3-mill increase over FY26’s 97.20. The certified value of one mill rose from $599,976 (FY26) to $674,794 (FY27) based on the May 19, 2026 certification from the County Auditor. Mr. Willis emphasized in his comments that on a $100,000 house, the 2.3-mill net increase amounts to approximately $28 in additional county property tax.

New positions requested and recommended

Of 91 new positions requested by departments at a total cost of $9,921,762, the Administrator’s final recommendation funds 58.5 positions at $5,594,138 — including 10 Indian Land Consolidated Fire Service District positions (3 Firefighter I, 3 Captain, 3 Engineer Driver, and 1 Logistics Officer, all starting January 1, 2027) at $618,921 paid from Fund 52. The 48.5 General Fund positions cost $4,975,217. Public safety drives the recommendation: 36 of the 48.5 General Fund positions are public safety roles, including 1 at the Coroner’s Office, 15 at EMS, 4 at the Fire Department, and 16 at the Sheriff’s Office. Notable individual line items include 8 Corrections Officers and 4 Non-Sworn Booking Clerks ($284,580) for the Detention Center, a Real-Time Crime Center Manager ($111,415) and a Staff Attorney with vehicle starting January 1, 2027 ($166,408) at the Sheriff’s Office, and the conversion of 2 part-time Recreation Associates to 2 full-time positions ($125,238). Two Recreation Facility Manager positions for Buford and Andrew Jackson totaling $195,826 are funded for the full year in the staff recommendation but were delayed to a half-year start by Council amendment.

Compensation discussion

Council heard three minimum-wage scenarios for the county’s 372 non-sworn employees:

The current pay distribution among non-sworn staff: 240 below $17/hour (Tier I), 74 between $17 and $19/hour (Tier II), and 58 between $19.01 and $21.50/hour (Tier III). Option 1 — including a 5% compression adjustment for Tier II staff and a 3% compression adjustment for Tier III staff — was the Administrator’s recommendation. Council Members McGriff and Neal voiced support for Option 1, while Council Member Luis pushed back, noting that the minimum hourly rate has moved roughly 31% over two years (from approximately $13 to a proposed $17) and questioning whether constituents below the poverty line could absorb the corresponding tax impact.

Other compensation items presented as part of the budget recommendation but not separately voted on at first reading included: a 2% across-the-board salary increase for all non-sworn full-time and part-time staff; a 6% across-the-board salary increase for all sworn staff (approximately $1,078,000 at the Sheriff’s Office, including range); a revision of the EMS staffing model from 24/48 hours to 24/72 hours (excluding 12-hour drivers); an increase in travel per-diem rates from $30/$40 to $51/$68; and funding for a Compensation & Classification Study (rough cost estimate $125,000-$225,000). The budget ordinance also includes Christmas pay supplements of $1,000 for 747 permanent full-time employees and $500 for 227 permanent part-time employees who started on or before July 1, 2026, totaling $860,500. The Sheriff testified that his office operates at 1.34 officers per thousand population, the lowest among comparably-sized counties such as Florence, Pickens, and Sumter.

External agencies

The total external agencies allocation rises from $2,304,535 (FY26) to $3,316,546 (FY27), a $1,012,011 increase. Notable line items in the first-reading proposal: Olde English District at $72,500 (later proposed for removal by Council and ultimately included in the Exhibit F reductions); Public Defender at $787,220 (up $164,274); Solicitor at $1,526,670 (up $219,932); Solicitor Capital Project at $430,000 (a new line for completion of the third-floor courthouse renovation suite); Lancaster Soil and Water Conservation at $228,221 (up $88,741); Lancaster County 250 Committee at $20,200 (new); and Historical Commission at $22,812 (up $14,242). Per S.C. Code Section 6-4-10, Council also designated the Olde English District ($30,000) and Lancaster County 250 Committee ($30,000) as joint recipients of the 30% state accommodations tax allocation totaling $60,000.

Fund balance appropriations

The first-reading budget proposed using $36,264,388 from unassigned General Fund balance for one-time expenditures. The largest items are the $18,747,966 fire apparatus replacement (covering 24 vehicles ranging from a 1985 Hazmat unit at $1.6 million to multiple 1998 KME/Ford tankers at $575,000 each), $4,000,000 for a new Development Services building, $2,950,000 in Public Safety Communications upgrades (12-position radio console replacement at $1.9 million, $750,000 for Fire Dispatch CAD Integration, and $300,000 for a generator replacement), $2,041,675 for an economic-development spec-building site improvement and one vehicle, $1,539,151 for ongoing ERP system implementation (year 2 of 3), $1,533,339 in Parks and Recreation projects (turf at Walnut Creek soccer fields, Flat Creek improvements, Country Club Park playground, and 2 mini-buses), $1,375,000 in road maintenance projects (including $400,000 for Arrowwood drainage), $1,053,878 for 15 replacement deputy vehicles plus a vehicle for the new Staff Attorney, $860,500 for the Christmas pay supplement, and $850,000 to complete the Coroner’s new facility (partially ARPA-funded). After these appropriations, the estimated remaining unassigned General Fund balance is $33,970,173, which staff calculate falls within 28-32% of the General Fund operating budget.

Revenue projections

Staff project $6,398,575 in new revenue growth for FY27, broken down as: Ad Valorem $3,763,526, Vehicle Tax $1,239,917, 1% Local Option Revenue $671,014, Road Improvement Fees $346,140, State Aid to Subdivisions $238,935, and Fee in Lieu of Taxation $139,043. Building permit revenue was forecast lower for FY27 at $4,570,000 reflecting the residential development moratorium adopted by Council in November 2025 (Ordinance 2025-1992); current FY26 actual through May 22 was $4,344,040.

The Finance Department presented three scenarios for balancing the General Fund: no millage increase (76.50 mills) would require an additional $7,161,517 in cuts; the recommended millage of 83.50 leaves a $2,532,431 gap; and a fully balancing scenario at 87.50 mills.

Amendments adopted at first reading

1. Council pay raise removed. Mr. Willis confirmed for the record that the proposed $18,000 base for Council salaries was based on Association of Counties data for comparable Tier 2 counties and was not requested by any Council member. After extended debate over the propriety of Council voting on its own compensation, Mr. Harper moved to strike the pay raise from the budget; Mr. Graham seconded. The amendment passed unanimously.
2. Comprehensive Mosteller amendment. Vice Chair Mosteller moved a single amendment covering several items: delay the Buford and Andrew Jackson recreation facility manager positions to a January 1 start; delay the conversion of two part-time recreation associates to full-time to January 1; incorporate all proposed reductions shown on Exhibit F — including removal of the $4 million Development Services building, the $2.04 million economic development spec-building site improvement, the $266,800 for two mini-buses, the $72,500 Olde English District allocation, and the $250,000 budgeted for a special August election (which the State Senate had killed earlier that day); and exclude the proposed airport terminal addition for MUSC helicopter crew quarters pending evaluation by the incoming administrator. Council Member Luis seconded. The amendment passed unanimously.
3. Arrowwood Drive drainage — motion to remove failed. Mr. Graham moved to remove the additional $400,000 supplemental appropriation for the Arrowwood Drive drainage project, stating that $800,000 total for a project affecting eight property owners was difficult to justify. Public Works Director Jeff Catoe explained that the existing $400,000 was insufficient to complete the work, that the road currently overtops in heavy rain, and that without the additional funding the project would not move forward, with continued erosion likely to wash out the county-maintained road. Mr. Catoe noted the county could pursue a small RIA grant in September but would still need matching funds. The motion to remove the $400,000 failed 5-2.
4. $6 million Harrisburg Road fire station. Vice Chair Mosteller moved to allocate $6 million from fund balance to construct a new fire station on Harrisburg Road. Chairman Carnes argued the project had been discussed for years and the county was “one fire away” from a serious incident. Council Member Luis questioned whether the project could be done for $4 million and asked for definite numbers. Chief Greg Nicholson testified that current design-build estimates run $450 to $650 per square foot, with the actual station coming in around $7 to $7.5 million before furniture and contingency. Nicholson confirmed that allocating $6 million now would commit the county and that any savings would return to the county. The motion passed 6-1, with Mr. Luis opposed.

Council also discussed but did not vote on a separate Edgewater fire station, with consensus that the new administrator and a new Fire/EMS director should evaluate that project before allocation.

The amended budget passed first reading 6-1, with Mr. Graham opposed pending receipt of detailed line-item information requested for second reading. Council requested that the revised line-item budget and salary-adjustment scenarios be provided the week before second reading.

8e. Public Hearing and First Reading — Ordinance 2026-2037 (Capital Improvement Plan)

The public hearing was held with no one signed up to speak. Council Member McGriff moved approval; Mr. Graham seconded.

Budget Analyst Josiah Parke walked Council through the proposed FY27 amendments to the 10-year Capital Improvement Plan adopted in July 2021 (Ordinance 2021-1726). The Planning Commission conducted its own public hearing in April 2026 and voted 6-0 to recommend the revision. Of 24 capital project requests submitted, 9 met the $100,000 threshold for inclusion. Combined with 21 in-progress projects requiring FY27 revisions, the CIP includes 30 projects totaling roughly $45.3 million as initially presented. Parke reminded Council that the CIP is a planning tool only and does not commit funding sources.

Mr. Harper moved to amend the CIP to incorporate all changes Council had just made to the operating budget — removing the mini-buses, adjusting the 12-position radio console replacement, removing the $4 million development services spec building and the $2.04 million economic development site preparation, and adding the $6 million Indian Land (Harrisburg Road) fire station. Mr. Luis seconded. The amendment passed 6-1.

The main motion to adopt the amended CIP ordinance on first reading then passed 6-1.

Parke reminded Council that the second reading of the budget and CIP, along with the operating-budget public hearing, is scheduled for June 8; a Council special meeting is set for Wednesday, June 10; and third reading and adoption are scheduled for June 22.

9. Discussion and Action Items — Appointments

Clerk to Council Sherrie Simpson reported no new applications had been received for board or commission vacancies; the items were presented for information only.

11–13. Executive Session and Adjournment

No executive session was held. Council voted to adjourn.