Stay in regional library system or build new annex? York supervisors debate pros and cons

Happy New Years Eve! Also today, we'll give you our top 10 picks for New Year's fun, and local leaders list what they see as their success in 2025 and their biggest challenges in the New Year.

Dec 31, 2025

From left: current Williamsburg downtown library, rendering of proposed replacement, and proposed James City County annex.

York County supervisors are divided on whether to remain in the Williamsburg Regional Library or build a new one for residents in the upper part of the county. But they all want to pay less for their membership.

“There is a real need for library services in the upper end of the county, and modern library services extend well beyond simply checking out books,” said 4th district Supervisor G. Stephen Roane Jr. .

“The question, then, is how we can deliver those services to our residents in the most cost-effective way. For several years, our arrangement with Williamsburg has given York County residents access to their library system. Unfortunately, the annual cost increases associated with that arrangement have become a growing concern.”

Williamsburg “is a world-class library,” District 5 Supervisor Thomas G. Shepperd Jr. told us. “We’re not going to pay for a world class service. We’re not going to do it.”

York Chair Sheila Noll was always opposed to joining the system, saying the county’s own library system is good enough. Shepperd said York spends $2.7 million on its library system — about a third of what the regional library system plans to spend next year — plus its contribution to the regional operation..

Shepperd said the only reason the county joined was because the Williamsburg library would not allow York citizens reciprocal use of its facilities.

James City County Administrator Scott Stevens, representing the regional library’s largest contributor, said the restriction was fair because “if York doesn’t pay and we just let the residents come, we would have a ton of their upper county residents come to our libraries, and our residents would never go -- rarely go -- to theirs, because they’re too far away. “

The Williamsburg Regional Library system operates two libraries in Croaker and downtown Williamsburg. James City County is planning to build a third facility as an annex to its new government center.

Both James City and York County have said they want to re-negotiate the operating contract for the library.

York Vice Chair Doug Holroyd, who represents the first district serviced by Williamsburg, says the partnership makes sense if it is “an affordable cost.”

He was not happy with the library’s proposal to raise York County’s contribution next year by 8.3%, to $964,653.

That increase still leaves York’s contribution as the smallest among the three localities in the regional library system, which are allocated based on usage.

James City County residents are by far the largest users of the system, and the county pays 72% of the library budget. Its contribution is set to increase by 3.18% to $6.5 million next year.

Williamsburg’s share is going down by 3.9 percent, to $197,000.

At their Dec. 16 meeting, the supervisors approved a $2 million placeholder to study building a library in the northern end of the county.

“What we discussed was a plan that was scuttled by a few,” said Noll. “ Right now, there are several options that we are exploring but I am not at liberty to share. Currently, the Williamsburg Library is not willing to negotiate. Regardless, the upper county residents will continue to have library service.”

Shepperd told us the county had discussed building a library annex and a satellite office for county services at the Marquis Shopping Center at one point.

“If they build a nice branch up there, I think that’s all upside,” Stevens said.

“If York desires to drive their costs down, I don’t think they can build a branch and operate it cheaper than paying us.” Stevens added. “But that’s a decision they’ve got to make.”

Building a library in the north end of the county “would give us greater autonomy over the services offered,” Roane agreed. “However, that option also comes with its own cost challenges, including constructing or leasing space, equipping the facility, and covering the ongoing expenses of staffing, operations, and maintenance.”

We asked local leaders what they see as their biggest success this year and the challenges for 2026. In their own words, here’s what they told us:

James City County Chair Jim Icenhour

Last January I wrote down my top 3 goals for 2025.

Complete a new schools contract.
Get the new County Complex started.
Complete the Strategic Plan update.

We went 3 for 3 ... so it was a good year.

For 2026 the main challenge will be the budget.

With the uncertainties about federal and/or state funding, we may have to make some very tough budget decisions.

Williamsburg Mayor Douglas G. Pons:

I’m incredibly proud of the city’s achievements over the past year. While many individual projects stand out, our real success lies in executing a plan and strategy for progress. We’ve taken steps to modernize infrastructure, such as recent conversations about the downtown library, the imminent completion of the police station, and the ongoing evaluation of renovated Public Works support facilities.

At the same time, we’ve taken steps toward improved resiliency and sustainability, investing in much-needed and past-due upgrades to water and sewer systems, investing in upgraded hardware and software at the Water Treatment Plant, and securing greater access to emergency water at a vastly lower rate through a historic partnership with Newport News Waterworks.

Finally, we can’t forget the tremendous collaborative efforts of the City of Williamsburg, James City County, and W-JCC School Board to invest in a new, modernized joint school division contract in which student performance data is a fundamental driver for the division’s budget requests.

When we step back and consider the breadth of that work, you can see that the City’s last year has been focused on the future and creating opportunities for all to thrive.

Biggest Opportunity Next Year

With construction ahead of schedule, the opening of the Greater Williamsburg Sports and Events Center creates opportunities not only for the City but also for the Greater Williamsburg region. As the first recreational facility on the land adjacent to the Visitor Center, it marks the beginning of future possibilities for additional amenities in that area, such as a live performance venue or other sports facility. The indoor sports center positions Williamsburg as an even more attractive sports tourism destination, enhancing our offerings beyond history and amusement parks to the millions of people who visit the region every year. We are giving people more reasons to extend their vacations and spend more time in our hotels, shops, and restaurants.

What Challenges Lie Ahead

While the City has taken great steps in recent years to solidify its position as one of the most financially stable localities in the Commonwealth, we are, of course, mindful of the current economic uncertainty at both the national and state levels.

York County Chair Sheila Noll:

One of our most significant accomplishments this year was the completion of a comprehensive compensation study for York County employees. The study helped us better understand our position within the regional market and highlighted opportunities to strengthen our compensation structure. By acting on these findings, we are reinforcing our commitment to attracting, retaining, and supporting a high-quality workforce that serves our community every day.

Looking ahead, one of our biggest opportunities lies in rethinking our Capital Improvement Plan (CIP). We’re exploring a longer planning horizon, which would allow us to better anticipate needs, align resources, and make more strategic investments in infrastructure and services. This shift could greatly enhance our ability to serve residents effectively and sustainably.

Of course, challenges remain—and most of them tie back to funding. We have big dreams for York County, from expanding services to improving facilities, but the reality is that financial constraints often dictate what’s possible. Balancing ambition with fiscal responsibility will continue to be a central focus as we move forward.”

Williamsburg – James City County Schools Superintendent Daniel Keever:

As 2025 ends, the year represents one of opportunity for W-JCC Schools. The affirmation of our shared purpose through the restated joint agreement is an accomplishment for W-JCC Schools, the City of Williamsburg, and James City County. Stakeholder engagement throughout 2025 provides a united purpose that is a catalyst for continued growth in 2026.

In the year ahead, in many ways, the concepts that may challenge us most are also opportunities for growth: Our transition report outlines work over the next 12-24 months to strategically align resources to create stronger outcomes for students. The initial conversation this week on the FY27 budget outlines investments in our students – opportunities we can create – with the ever-present demand, or challenge, of fiscal responsibility. The opening of our Bright Beginnings pre-k centers (albeit in fall 2027) will provide our youngest learners with an environment tailor-made for their needs and will cause the community in 2026 to consider the best path forward for attendance zones in the school division. While redistricting can be a challenging community conversation, it can present opportunities we have not yet realized. And above all else, while we celebrate students’ academic growth and proficiency, I reiterate my belief that a standardized test score alone does not reflect the success of one student, one teacher, one school, or one division. I look forward to propelling academic growth while ensuring each student has a meaningful connection to their school community, each student can demonstrate key skills and attributes of a successful learner, and each student has an actionable post-graduation plan.