They campaigned for months, sweating out debates, chowing down rubber-chicken dinners, canvassing crowds morning and night and surviving challenges from 15 other opponents.
And for what? To tell senior citizens that meals and transportation might no longer be provided to them? To be the embodiment of grim reapers to 600-plus county employees fearing layoffs? To defer purchasing new playground equipment for elementary school students, whose parents planned to contribute?
Carroll Commissioners Julia W. Gouge, the incumbent, and Donald I. Dell and Elmer C. Lippy, the newcomers, ascended to office one yearago shrouded by an economic gloom that hasn't dissipated.
Prior administrations received revenue growth hovering around 10 percent every year. This board witnessed a decline in income while entering its first budget process.
Prior administrations were able to start newsocial services, expand government, greatly increase public schools budgets and offer employees raises.
This board has been compelled to restrict growth in government and services, deny salary increases,ask the school system to return money, delay projects, seek assistance from private enterprise and eliminate basic expenditures.
Some who work with the commissioners on budgets and planning say they wouldn't trade places with the leaders for all the corn in Carroll.
Yet the commissioners say they welcome the challenge and have made progress despite adversity.
Here is a look at the issues the board hasfaced in its first year, the actions they've taken -- or not taken -- and evaluations from activists.
Budget
The board extended a hiring freeze and travel restrictions, deferred projects, juggled accounts and bargained with the Board of Education to balance a $6 million shortfall in fiscal 1991.
Four months after a scaled-back fiscal1992 budget took effect July 1, the commissioners trimmed $3.2 million to compensate for state cuts. They've avoided layoffs and drastic cuts in services, but make no promises as they await more state cuts.
"Not a week's gone by without some concern for the budget, eitherlast year's, current or the next," said Gouge.
Retaining county employees has been a source of pride for the commissioners, she said.
The commissioners say constantly scrutinizing spending, evaluatingprograms and seeking more efficiency has laid a base for more frugalplanning in the future.
"Not that a deficit is good, but it makesyou set priorities," said Dell.
Education
Dell and Lippy say they set as a goal mending a distrustful and adversarial relationship between the commissioners and top school officials. It's been accomplished, say Board of Education members and school administrators.
"I've been in the system for 28 years, and this is the best relationship I've observed," said Superintendent R. Edward Shilling.
The commissioners were granted power this fall by the General Assembly to make line-item cuts in the school budget and reopen negotiated contracts. But school board President John D. Myers Jr. said he is confident the commissioners will allow education officials to make the tough money decisions.
"The level of respect and trust is at an all-time high," said the nine-year board member.
School board member Cheryl McFalls said the commissioners have demonstrated more interest in education than the past administration by attending nearly every Board of Education meeting.
"It helps them have a better understanding ofour responsibilities and the system," she said.
Environment
Slow progress has been made toward developing a recycling program. County officials are starting the bidding process for a curbside program.
"I think they can do more," said Noreen Cullen, Carroll Earth Care vice chairwoman. "I don't think it's been a strong county priority."
The commissioners absorbed a loss by maintaining a $15-per-ton landfill dumping fee, the lowest in the Baltimore region. They deferred an increase and tabled a proposed residential trash collection charge while continuing work on a comprehensive waste-management plan. They've diverted money from other sources to run a waste disposal system that's supposed to be self-sufficient.
Lippy and Dell have expressed interest in building a regional waste-to-energy plant, in Carroll or elsewhere, as space diminishes at landfills. But such a project is years off, they acknowledge.
Several environmental activists say they want an environmental department re-established. The commissioners dismantled the original department in a government reorganization, splitting its functions among various agencies.
Social services
Converting space in a county-owned Westminster building into a homeless shelter in October -- in less than a month, using volunteers and donations -- to relieve a growing waiting list perhaps has been the commissioners' best accomplishment.
"I really think they've madean effort to be responsive to people's needs," said Sylvia Canon, director of Human Services Programs of Carroll County Inc.
The commissioners also supported creation of Carroll Circle of Caring, a coalition of charitable organizations helping government provide assistance to the needy.
"They've done extremely well on human services," said Department of Citizen Services Director Jolene G. Sullivan. "Theyput back money wherever they could."
The commissioners restored some state cuts to senior citizen programs and youth services.
Sullivan also commended the creation of Citizen Services.
Development/planning
Several ongoing projects will have an im
pact on how the county develops. Among them are:
* The mineral mining plan, which will protect natural resources and nearby residences.
* The Gillis Falls Reservoir project, a planned water source for South Carroll. It has been shelved temporarily, despite the commissioners' lobbying of state and federal officials, because of environmental conflicts.
* An adequate facilities ordinance, which will provide a mechanism for halting growth when roads, schools or water supplies become overburdened.
The trio voted unanimously against a 360-acre rezoning petition, which would have paved the way for a 108-luxury home subdivision and golf course on a farm in Berrett. The commissioners orderedplanners to re-evaluate zoning for southwest Carroll to provide a basis for future land-use decisions.
Economic development
Severalbusiness leaders aren't sure where the commissioners stand, except that Gouge appears to be the most interested.
"We've heard very little from the commissioners," said Lloyd Thomas, chairman of the Economic Development Commission. "We need to get clear on their goals and policies."
EDC Vice Chairman David Roush said the commissioners must equip scattered raw industrial sites with water, sewer and roads to attract industry and ease the tax burden on residents.
Dell and Lippy have expressed some dissatisfaction with the Office of EconomicDevelopment, saying it is difficult to correlate its efforts with business development. They have hinted at changes.
"I don't think they pay enough attention to economic development," said Helen C. Utz, Chamber of Commerce director.
Gouge has advocated increasing economic development efforts during tough economic times.
Housing
The commissioners have done an admirable job addressing emergency needs, said Carroll Housing Coalition spokeswoman Karen Blandford. But they haven't taken meaningful action on affordable housing issues, she said.
"They've gotten stuck," said Blandford. "It's time for their leadership to get unstuck."
An affordable housing committee's recommendations to make zoning changes and allow zoning exceptions to create more affordable units have not been adopted.
The county lacks housing for blue-collar workers, said Gary B. Blucher, former Carrollchapter president of the Home Builders Association of Maryland. Government regulations must be modified if affordable housing is to be a realistic goal, he said.
"I don't foresee Carroll County taking the lead to do it," he said.
County planners are working on new subdivision regulations that could reduce construction costs, provide a wider variety of housing types and densities, conserve open space and produce more attractive developments.
Human relations
The Community Relations Commission has not been supported financially or philosophically by the commissioners, said Chairwoman Shelley Sarsfield. The commission was created in 1990 to mediate county discrimination disputes.
Sarsfield said the commissioners told her that discrimination is not a problem.
"I know there is discrimination," she said. "I think it's a long, hard battle in this county.
"They're not responsive to new problems brought about by new, different people. Not all Carroll countians are farmers anymore."
DAYS SPENT ON COMMISSIONERBUSINESS
Commissioners collect $12 per diem and are credited for a day in office, regardless of the number of hours, when they log in.They are required to meet twice per week, but the current board meets three times. Outside meetings can include service on committees, attendance at receptions or other events where they officially represent the county.
CURRENT COMMISSIONERS
12/90-11/91.. ..In.. ..Out.. ..Total
Dell.. .. .. ..229.. .. 47.. .. .276
Gouge.. .. .. .171.. .. 84.. .. .255
Lippy.. .. .. .236.. .. 63.. .. .299
PREVIOUS BOARD OF COMMISSIONERS
1987-1990*. .. .In.. ..Out.. ..Total
Armacost.. .. .199.. .. 33.. .. .232
Gouge.. .. .. .179.. .. 82.... .261
Griffith.. .. ..96.. .. 80.. .. .176
*4-year average
In
In office on business; Out
Out of office on business