Comprehensive Plan. Isle of Wight County, Virginia

Transcription

1 Comprehensive Plan Isle of Wight County, Virginia October 2008

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3 Mission Statement Isle of Wight County Our mission is to serve Isle of Wight County with the provision and enhancement of quality of life services for all citizens. Comprehensive Plan Isle of Wight County, Virginia

4 Acknowledgements Special thanks to the following members of various government departments. The individual contributions to this document represent hours of work. Had it not been for the responsible devotion of these individuals to addressing the many and complex issues, this document would not be representative of the citizens of the County. The Isle of Wight County Board of Supervisors Mr. Thomas J. Wright, III Mr. Phillip A. Bradshaw Mr. James B. Brown, Jr. Mr. Stan D. Clark Mr. Thomas R. Ivy Mr. Al Casteen The Isle of Wight County Planning Commission Mr. James P. O Briant, III Mr. James B. Brown, Jr. Ms. Leah Dempsey Mr. Lars S. Gordon Ms. Nancy Guill Mr. W. Ray Holland Mr. Rex Alphin Mr. J. C. Jenkins, Jr. Mr. Peter B. Munsell Mr. Don G. Rosie, II Mr. R. L. Walker Mr. Lee Winslett, Jr. Ms. Barbara J. Easter Mr. Bryan Babb The Isle of Wight County Staff W. Douglas Caskey E. Wayne Rountree Patrick Small Alan Nogiec Kari Sletten Karen Casey Sandon Rogers Sandy Robinson Beverly H. Walkup Amy M. Ring Geoffrey Cripe Jamie Oliver Rachel Morris Chieppa Mark W. Harrup Kim Hummel Debbie Sivertson Melinda Goodwyn Julia Simmons Herbert Finch Gina Ippolito Christy R. Phillips Comprehensive Plan Isle of Wight County, Virginia

5 Isle of Wight County, Virginia Comprehensive Plan Table of Contents Acknowledgments Mission Statement List of Tables, Figures and Maps Introduction i Chapter 1 Growth and Development Trends Regional Development Trends 1-1 The Regional Economy 1-3 County Population and Development Trends 1-5 Population Projections 1-6 Housing Characteristics and Projections 1-10 Income Characteristics 1-11 Employment Characteristics 1-12 Existing Land Use and Development Patterns 1-14 Development Trends 1-15 Summary 1-16 Chapter 2 Natural Resources and Environmental Quality Background Information 2-1 Topography 2-1 Soils 2-2 Floodplain 2-4 Water Resources 2-5 Inventory of County Shoreline Conditions 2-5 Bathymetry 2-7 Flushing Characteristics 2-8 Water Quality 2-9 Watersheds 2-11 Ragged Island Creek Exceptional Waterway Designation 2-13 Submerged Aquatic Vegetation (SAV) 2-14 Commercially and Recreationally Important Fisheries 2-14 Public Access to Waterfront Areas 2-15 Shoreline Conditions and Shore Erosion Characteristics 2-19 Wetlands 2-29 Tidal Marshes 2-30 Non-tidal Wetlands: Swamps and Pocosins 2-31

6 Groundwater Resources and Protection Issues 2-31 Land Resources 2-34 Wildlife 2-34 Forest Resources 2-34 Mineral Resources 2-35 Habitat for Birds of Special Concern 2-35 Natural Heritage Resources 2-36 The Chesapeake Bay Preservation Act 2-37 Air Quality 2-38 Goals and Objectives 2-38 Implementation 2-40 Summary 2-44 Chapter 3 Rural Character Protection and Agricultural Preservation Background Information 3-1 Farm Trends and Information 3-1 The Agriculture Industry 3-3 Agricultural Trends 3-3 Timber and Forest Land 3-6 Existing County Agricultural Preservation Efforts 3-6 Agricultural Conservation Planning Considerations and Issues 3-8 Economic Considerations 3-8 Land Use Considerations 3-10 Goals and Objectives 3-11 Implementation 3-12 Summary 3-14 Chapter 4 Growth Management and Land Use Comprehensive Plan Table of Contents Growth Management Planning Considerations 4-1 Land Consumption Implications 4-1 Cost of Public Services 4-3 Sense of Community and Rural Character 4-3 Quality of the Natural Environment 4-3 Quality of the Man-Built Environment 4-4 Dimensions of Growth Management 4-4 Conclusion 4-4 Growth Management Issues 4-6 Growth Management and Land Use Goals and Objectives 4-7 Growth Management Concept 4-8 Resource Conservation Areas 4-15 Rural Service Areas Isle of Wight County, Virginia

7 Rural/Agricultural Conservation District 4-16 Village Centers 4-19 Development Service Districts 4-27 Newport Development Service Districts 4-28 Windsor Development Service District 4-31 Camptown Development Service District 4-31 Planning for Development Service Districts 4-33 Planned Unit Development Districts 4-34 Towns of Smithfield and Windsor 4-35 Highway Corridor Districts 4-36 Summary 4-37 Chapter 5 Transportation Introduction 5-1 Background Information 5-2 Functional Classification of Highways 5-2 Traffic Volumes and Trends 5-3 Capacity Analysis 5-4 Safety 5-6 Commuter Patterns 5-7 Hurricane Evacuation Routes 5-8 Highway Improvements 5-8 Other Transportation Facilities and Services 5-9 Transportation Improvements and Studies 5-10 Issues 5-12 Transportation Goals and Objectives 5-13 Implementation 5-14 Summary 5-20 Chapter 6 Community Facilities and Services Background/Issue Identification 6-1 Sewer Facilities 6-1 Water Facilities 6-3 Schools and Educational Resources 6-6 Public Safety 6-7 Solid Waste Disposal 6-11 Administrative Facilities 6-12 Community Facilities Goals and Objectives 6-12 Implementation 6-13 Summary 6-15 Comprehensive Plan Table of Contents 3 Isle of Wight County, Virginia

8 Chapter 7 Housing and Community Development Background Information 7-1 Issues 7-3 Affordable Housing 7-3 Community Development Block Grant 7-5 Affordable Housing Strategy 7-6 Rental Housing Subsidy Programs 7-7 Housing Conditions 7-8 Housing Availability 7-9 Housing Goals and Objectives 7-10 Implementation 7-11 Summary 7-16 Chapter 8 Parks, Recreation and Open Space Background Information 8-2 Issues 8-6 Recreation Land 8-6 Recreation Facilities 8-8 Parks, Recreation and Open Space Goals and Objectives 8-13 Implementation 8-14 Summary 8-19 Chapter 9 Economic Development Background and Issues 9-1 Economic Development Initiatives 9-3 The Regional Economy 9-3 The Local Economy 9-4 Economic Development Goals and Objectives 9-10 Implementation 9-11 Summary 9-15 Chapter 10 Historic/Cultural Preservation Background Information 10-1 The Archaeological Assessment of Isle of Wight 10-4 Issues 10-5 Historic and Cultural Goals and Objectives 10-6 Implementation 10-7 Comprehensive Plan Table of Contents 4 Isle of Wight County, Virginia

9 Summary Chapter 11 Community Character and Design Community Character Goals and Objectives 11-1 The Rural Landscape 11-2 Rural Villages/Community Centers 11-3 Highway Corridors and Scenic Roadways 11-4 Development Service District Design Guidelines 11-5 Activity Centers and Suburban Residential Development 11-6 Commercial Development Design Guidelines Conservation Development Areas Summary Chapter 12 Implementation Legal Status of the Plan 12-1 Implementation Program 12-2 Summary 12-6 Appendices Appendix A: Appendix B: Appendix C: Appendix D: A Roadmap for Growth Bicycle and Pedestrian Facilities Master Plan Route 17 Corridor Master Plan Master Water and Sewer Plan Comprehensive Plan Table of Contents 5 Isle of Wight County, Virginia

10 Isle of Wight County, Virginia Comprehensive Plan List of Tables, Figures and Maps Chapter 1 Growth and Development Trends Table 1-1 Hampton Roads Population Trends 1-2 Table 1-2 Hampton Roads Population Projections 1-3 Table 1-3 Employment in Hampton Roads 1-4 Figure 1-1 Population Growth 1-6 Figure 1-2 Population and Household Projections 1-7 Figure 1-3 Alternative Population and Household Projections 1-8 Figure Housing Characteristics 1-10 Figure Housing Projections 1-11 Figure 1-6 Per Capita Income Figure 1-7 Resident Labor Force and Employment 1-13 Table 1-8 Building Permits Issued for Residential Development Chapter 2 Natural Resources and Environmental Quality Table 2-1 General Soil Characteristics 2-3 Table 2-2 Summary of Selected Shoreline Conditions 2-2 Table 2-3 Existing Public Shoreline and Water Access Points 2-17 Table 2-4 Marina Facilities 2-17 Table 2-5 Assessment of Erosion Characteristics/ James River Shoreline 2-22 Figure 2-1 Shoreline Protection 2-26 Figure 2-2 Recommended Formula for Determining Shoreline Setbacks 2-28 Table 2-6 Preferred Erosion Control Treatments for Low, Medium, and 2-30 High Rate Conditions Table 2-7 Designated Natural Heritage Areas 2-36 Chapter 3 Rural Character Protection and Agricultural Preservation Table 3-1 Agricultural Land and Farm Characteristics, Table 3-2 Trends in Number of Farms by Farm Size, Table 3-3 Changes in Cropland, Table 3-4 Characteristics of Agriculture, 1987, 1997 & Table 3-5 Market Value of Agricultural Products Sold, 1987, 1997 & Table 3-6 Farm Production Expenses, 1987, 1997 & Comprehensive Plan 1 Isle of Wight County, Virginia

11 Chapter 4 Growth Management and Land Use Table 4-1 Land Consumption Options to Satisfy Projected Population 4-2 Growth Table 4-2 Capital Costs for a Single Dwelling Unit 4-5 Table 4-3 Proposed Land Use Districts 4-10 Table 4-4 Newport Development Service District/Land Use Plan Districts 4-29 Figure 4-1 TND Design Concepts 4-33 Table 4-5 Potential Planned Unit Development Tools 4-34 Chapter 5 Transportation Table 5-1 Traffic Trends on Federal-Aid Highways for Selected 5-3 Road Sections Table 5-2 Existing Level of Service for Selected Intersections 5-5 Table 5-3 Accident Rates for Selected Primary Routes 5-7 Chapter 6 Community Facilities and Services Table 6-1 County School Enrollment September Table 6-2 Historic School Enrollment 2000 to Chapter 7 Housing and Community Development Table 7-1 Housing Status and Units per Structure 7-2 Figure 7-1 Purchasing Power in Hampton Roads Table 7-2 Recent Development Trends - Residential Building Permits 7-2 Table 7-3 Family Income (2005) 7-4 Table Market Rents by Number of Bedrooms 7-4 Table 7-5 Affordability for TANF Single Parent Families of Table 7-6 Affordable Rental Housing (Multi-Family Units) 7-8 Chapter 8 Parks, Recreation and Open Space Table 8-1 Size and Characteristics of Major County Park Facilities 8-3 Table 8-2 Park Area Standards 8-7 Table 8-3 Projected Future Demand/Need for Parkland 8-7 Table 8-4 Summary Inventory of Recreation Facilities 8-9 Table 8-5 Recreation Facility Needs, Table 8-6 NRPA Suggested Facility Development Standards, Comprehensive Plan 2 Isle of Wight County, Virginia

12 Chapter 9 Economic Development Figure 9-1 County Employment by Industry Section Table 9-1 Changes in Non-Farm Employment by Industry Table 9-2 Workforce Commuter Characteristics, Table 9-3 Per Capita Income 9-8 Chapter 10 Historic/Cultural Preservation Table 10-1 Historic Sites and Structures Inventory 10-3 Chapter 11 Community Character and Design Figure 11-1 Site Design Observing Natural Land Forms 11-6 Figure 11-2 Block Network Illustration 11-2 Figure 11-3 Street Hierarchy System 11-8 Figure 11-4 Bike Crossing Examples Figure 11-5 Building Setback Issues Figure 11-6 Build-to Line Illustration Figure 11-7 Lot Width Variations Figure 11-8 Flag Lot Illustration Figure 11-9 Recommended Lot Proportions Figure Recommended Common Open Space Design Figure Internal Open Space Illustration Figure Community Green Illustration Figure Traditional Neighborhood Design Concepts Figure Public and Semi-Public Open Space Illustration Figure Property Line Landscaping Illustration Chapter 12 Implementation Table 12-1 Recommended Schedule for Implementation 12-7 List of Maps Chapter 2 Natural Resources and Environmental Quality Follows Page 2-44 Map 2-1 Map 2-2 Map 2-3 Map 2-4 Map 2-5 Natural Development Constraints Watershed Boundary Shoreline Reaches Natural Heritage Areas Geology and Mineral Resources Comprehensive Plan 3 Isle of Wight County, Virginia

13 \ Chapter 3 Rural Character Protection and Agricultural Preservation Follows Page 3-15 Map 3-1 Map 3-2 Agricultural Districts PACE Target Areas Chapter 4 Growth Management and Land Use Follows Page 4-39 Map 4-1 Map 4-2 Map 4-3 Map 4-4 Map 4-5 Map 4-6 Map 4-7 Map 4-8 Map 4-9 Map 4-10 Map 4-11 Land Use Concept Plan Map Battery Park Village Center and Community Boundary Central Hill Village Center and Community Boundary Isle of Wight Courthouse Village Center and Community Boundary Rescue Village Center and Community Boundary Rushmere Village Center and Community Boundary Walters Village Center and Community Boundary Zuni Village Center and Community Boundary Newport Development Service District Windsor Development Service District Camptown Development Service District Chapter 5 Transportation Follows Page 5-20 Map 5-1 Map 5-2 Map 5-3 Map 5-4 Existing Functional Road Classification Average Daily Traffic Counts for Primary Highways Highway Deficiencies Transportation Plan Chapter 6 Community Facilities and Services Follows Page 6-16 Map 6-1 Map 6-2 Map 6-3 Map 6-4 Sewer Service Areas Water Service Areas Existing Educational Facilities Public Safety Facilities Chapter 8 Parks, Recreation and Open Space Follows Page 8-19 Map 8-1 Parks, Recreation and Open Space Chapter 10 Historic/Cultural Preservation Follows Page Map 10-1 Historic Sites and Structures Comprehensive Plan 4 Isle of Wight County, Virginia

14 Introduction Isle of Wight County is one of the nation's oldest settlements, dating back to The area was originally known as Warrosquoyacke, after the Indian tribe living there at the time of the first English settlement. Throughout most of the County's past, growth has been gradual and slow and the County has remained predominantly rural in character. In recent decades development within Isle of Wight has been increasing in response to the development and expansion of the Hampton Roads region. As the County grows and changes over the next 20 years, this Comprehensive Plan will serve as a guide for making public and private decisions regarding the character of Isle of Wight's growth and development. The Plan is a culmination of a cooperative effort, pulling together the knowledge and skills of diverse citizens and staff. This Plan represents a future vision of Isle of Wight in 2020 along with recommendations for achieving that vision. The ideas of the Plan are a distillation of the community's many desires, tempered by what seems necessary, feasible, and reasonable. This Plan is not intended to be a static document. It should be reviewed and updated periodically to reflect new development trends, shifts in the economy, or changes in the community's goals and objectives. Isle of Wight County is a special place with a unique character, culture and history that distinguishes this community from thousands of counties across America. This Comprehensive Plan particularly addresses the preservation and enhancement of these special qualities and that distinctive personality felt by the citizens who live and work here. This sense of uniqueness and pride of place are the guiding forces and strongest motivation for those who have contributed to the realization of this document. Definitions and Purpose The Comprehensive Plan is an official public document adopted by the County Planning Commission and Board of Supervisors. The Plan is a general, long-range, policy and implementation guide for decisions concerning the overall growth and development of the County. The Plan is comprehensive because the elements cover the entire range of development and preservation issues which can be influenced significantly by the County Board of Supervisors and other governing authorities and agencies. The Plan is general because the recommendations are broad. The plan is long-range because consideration is given to the problems and opportunities which may arise over the next twenty years. The Plan is dynamic because there will be amendments to adapt to new situations and meet new challenges over time. Although adopted as an official public document, the Comprehensive Plan is not a development and preservation ordinance. This plan serves as a catalyst and guide to the establishment of, or revisions to, other ordinances or planning tools. These include the zoning and subdivision Comprehensive Plan 1 Isle of Wight County, Virginia

15 ordinances, the capital improvements program, and area plans for various sections of the County. The Growth Management Plan Map, included in this plan, serves to illustrate how and where the Plan's policies and recommendations will be carried out. This mapped information is general in nature and not appropriate for determining the suitability of specific sites for any specific use. The The main Overall goal of Goal the of Comprehensive this Plan Plan is the is following: to: Maintain and enhance the quality and character of Isle of Wight's natural and man-made environments by promoting the efficient use and conservation of the County's land and natural resources in order to effectively meet the social and economic needs of present and future citizens. Legal Basis for Comprehensive Planning The preparation of a comprehensive plan is the legal responsibility of the County Planning Commission under Virginia Planning Enabling Legislation, Title 15.1, Article 4, of the Code of Virginia, 1950, as amended. Any ordinance pertaining to the use of land or the growth and development of the County should conform to the goals, objectives, and policies as they are presented in this Plan. Past Comprehensive Planning Efforts The Isle of Wight Planning Commission was established in Adoption of the first Comprehensive Plan occurred in The Plan was updated in 1977 and adopted again in In 1981 and 1985, work was begun to partially update the Comprehensive Plan, but these revisions were never officially adopted. In 1989 through 1991, the County undertook development of a new Comprehensive Plan based on a substantial public participation effort. The Plan was adopted in The 1991 Comprehensive Plan was updated and revised again in The County undertook its latest Comprehensive Plan revision beginning in 2006 which represents the seventh major effort to establish a set of goals and objectives to guide County growth and development. Isle of Wight County adopted its first subdivision ordinance in Zoning was first adopted in 1970, subsequent to adoption of the first Comprehensive Plan. Since initial adoption of these development ordinances, amendments have been adopted incrementally over ensuing years. A full-time Zoning Administrator was first appointed in Isle of Wight in The position of Planning Director was first established in Currently, planning and zoning functions are administered under the County Department of Planning and Zoning. The Department consists of a Director, Assistant Director, two Senior Planners, three Planners, an Environmental Planner, a Planning Services Coordinator, Code Enforcement Officer, a Planning and Zoning Technician and an Administrative Assistant. Comprehensive Plan 2 Isle of Wight County, Virginia

16 Process for Plan Development and Adoption Preparation of this Comprehensive Plan revision is the culmination of over two years of dialogue and analysis that has included a wide array of participants including the Board of Supervisors, the Planning Commission, County staff and the community at large. The first community meeting was held on November 21, 2005, to gather input on community issues and concerns with the current Comprehensive Plan. Planning and Zoning held several community meetings in October 2006 to present the final draft of the Comprehensive Plan revisions to the public for review and comment. The Planning Commission held public hearings on the draft Comprehensive Plan on November 28, 2006, June 26, 2007, and September 23, 2008, and recommended approval of the final draft on September 23, 2008, to the Board of Supervisors. The Board of Supervisors held a public hearing on the final draft Comprehensive Plan revisions on October 16, 2008, and adopted the latest Comprehensive Plan revisions on October 16, Organization of the Document The Comprehensive Plan is organized into twelve chapters. These chapters deal with a wide range of topics that influence or are influenced by growth and development in the County. Each chapter includes an assessment of existing conditions and provides goals, objectives, and implementation recommendations pertaining to the topic area or plan element that is the subject of the chapter. Following this introduction, Chapter one highlights past growth and development trends and future projections of population, housing and employment. Chapter two examines the environmental features and characteristics of the County and presents approaches for maintaining environmental quality. Chapter three discusses rural character and agricultural preservation. Chapter four presents the Growth Management Plan, which designates how, when, and where growth should occur. Chapters five and six discuss transportation and community facilities and services, respectively. Chapter seven addresses housing and community development. Chapter eight discusses parks, recreation and open space needs. Chapter nine describes the County s economic development goals. Chapters ten and eleven cover historic and cultural preservation and development design. Chapter twelve includes implementation recommendations and a tentative implementation schedule. The implementation recommendations identify necessary actions and policies to support the County s efforts to achieve the goals and objectives of the Plan. Reconciling Conflict in the Planning Documents Master Plans and Area Plans for various sections of the County serve as a more detailed plan for guiding the future form of development. In the event there is a conflict in the Master or Area Plan and the Comprehensive Plan, the Master Plan or Area Plan prevails. However, the most Comprehensive Plan 4 Isle of Wight County, Virginia

17 recent land use plan map shall prevail where there is a conflict between the Master or Area Plan and the Comprehensive Plan. Comprehensive Plan 4 Isle of Wight County, Virginia

18 Chapter One Growth and Development Trends This chapter briefly reviews recent trends and projections in demographic, economic, and land use variables that characterize Isle of Wight County. This summary analysis of existing conditions and trends provides background information and rationale for other Plan chapters that follow. In order to effectively develop a plan or vision for the future of Isle of Wight it is important to understand where the County has been in the past, where it is now, and most importantly, where it is headed. Regional Development Trends Planning for Isle of Wight County s future cannot be done in a vacuum. The County is part of the larger Hampton Roads Planning District; a region with an estimated 2004 population count of 1,615,500 persons. The Planning District is among the largest in the state, with more localities and population than any other except Northern Virginia. The region presently ranks 31 st in size among metropolitan statistical areas in the United States. The region also contains six of the state s eight largest cities, including Virginia Beach, whose 425,257 residents make it the state s largest city. The region s five other sizable cities include Norfolk, Chesapeake, Newport News, Hampton, and Portsmouth. The Hampton Roads Planning District includes the cities of Chesapeake, Norfolk, Portsmouth, Suffolk, Virginia Beach, Franklin, Hampton, Newport News, Poquoson, and Williamsburg, as well as York, James City, Gloucester, Isle of Wight, Southampton, and Surry Counties. In 1980, the Hampton Roads region was home to a population of 1,213,999. Between 1980 and 1990, the population for the entire region increased substantially by 240,184 residents; an increase of slightly less than 20 percent through the decade. The 2000 U.S. Census population count in the Hampton Roads area was 1,575,348; which represents an eight percent increase over the 1990 population count of 1,454,183. From 1990 to 2000, population growth within the region leveled off at a rate of approximately one percent per year. However, the Cities of Chesapeake and Suffolk, adjacent to Isle of Wight County, sustained higher rates of growth of 31 percent and 22 percent respectively over the period. The growth rate for Isle of Wight was 18.7 percent for the same time period. Comprehensive Plan 1-1 Isle of Wight County, Virginia

19 Table 1-1 Hampton Roads Population Trends Location Peninsula Gloucester County 20,107 30,131 34,780 Hampton 122, , ,437 James City County 22,339 34,859 48,102 Newport News 144, , ,697 Poquoson 8,726 11,005 11,566 Williamsburg 10,294 11,530 11,998 York County 35,463 42,422 56,297 Southeastern Virginia Chesapeake 114, , ,184 Franklin 7,308 7,864 8,346 Isle of Wight County 21,603 25,053 29,728 Norfolk 266, , ,403 Southampton County 18,731 17,550 17,482 Portsmouth 104, , ,565 Suffolk 47,621 52,143 63,677 Virginia Beach 262, , ,257 Surry County 6,046 6,145 6,829 Hampton Roads 1,213,999 1,454,183 1,575,348 Source: US Census, Weldon Cooper Center for Public Service, University of Virginia and Hampton Roads Planning District Commission The University of Virginia s Weldon Cooper Center for Public Service at the University of Virginia projects Hampton Roads will have just under 1.6 million residents by 2010 and over 1.8 million by 2030 (Table 1-2). The Center anticipates a large residential increases for James City County, York County and the City of Suffolk. Current forecasts show Suffolk housing over 97,800 residents by Isle of Wight s projected 2000 to 2030 growth rate of nearly 40 percent would make it the fourth fastest growing locality in Hampton Roads behind James City County, York County and the City of Suffolk. Virginia Beach will remain the most populated community in 2030 with a projected population of 477,000. Comprehensive Plan 1-2 Isle of Wight County, Virginia

20 The Regional Economy Table 1-2 Regional Population Projections Location Chesapeake 230, , ,000 Franklin 8,400 8,400 8,400 Gloucester County 38,900 42,700 46,199 Hampton 149, , ,600 Isle of Wight 33,800 37,500 41,500 County James City County 63,000 77,500 92,000 Newport News 184, , ,100 Norfolk 228, , ,300 Poquoson 12,000 12,300 12,600 Portsmouth 97,400 95,900 94,400 Southampton 18,100 18,900 19,900 County Suffolk 77,800 87,800 97,800 Surry County 7,100 7,400 7,700 Virginia Beach 444, , ,000 Williamsburg 13,100 13,500 13,900 York County 68,800 80,000 91,000 Hampton Roads 1,675,200 1,765,800 1,856,399 Source: Weldon Cooper Center for Public Service, University of Virginia. The moderate job growth sustained in Hampton Roads is also projected to continue in the coming years. The area economy has weathered national cuts in military jobs. In 2005, about 30 percent of the region s workers were employed by the Department of Defense or area shipyards, which is a significant drop from the 45 percent of jobs the military once provided some 30 years ago. Even as the military has tightened its belt and eliminated bases throughout the country, Hampton Roads has managed to benefit from several operations consolidating in the region. Previous Department of Defense Base Relocation and Closure actions brought about the relocation of two major Coast Guard Commands to Portsmouth and Norfolk from New York, and the Navy consolidated its F-14 Tomcat fighter pilot training facilities at Oceana Naval Air Station. Although the military, shipbuilding and port facilities remain important elements of the region s economy, substantial growth in construction, services and trade sectors of the economy reflect the region s growing economic diversification. Much of this growth is attributable to new jobs Comprehensive Plan 1-3 Isle of Wight County, Virginia

21 created by growth of companies already established in the region. These include facility expansions by employers such as AMERIGROUP Corporation and Stihl Incorporated. New employers that have moved to the region include FLEXA Furniture Incorporated USA, Target Corporation, TDS US and Maersk Incorporated. From 2002 to 2004, Hampton Roads announced 101 new and expanding companies, which in turn added nearly 7,000 jobs to the region s economy. In 2001, Cost Plus located a 500,000 square foot distribution center in Isle of Wight which created 160 new jobs. In 2004, the facility was doubled in size and added 30 jobs for a total of 190. In 2005, Smithfield Foods, the County s largest employer, experienced a changeover that affected approximately 570 of the company s 4,000 employees in Southeastern Virginia. Based on expansion plans and current attrition, the company set out to rehire all affected employees at one of its four Virginia operations within nine months of the changeover. Recognizing that the County is part of the Hampton Roads Region, the County has actively participated in the Hampton Roads Planning District Commission (HRPDC). In addition, the County is a member of the Hampton Roads Partnership and the Hampton Economic Development Alliance which both function to promote the region. Finally, the County is an active stakeholder in a variety of regional projects including the Eastern Virginia Transport Study, which has evaluated a new regional airport facility, and the High Speed Rail Study, which is exploring high-speed rail service along the Route 460 corridor. Currently, Hampton Roads is the largest labor market in Virginia outside the Washington D.C. metropolitan area. Employment in Hampton Roads has expanded considerably in recent years. As shown in Table 1-3, regional employment (including the military) is projected to increase from 870,688 jobs in 1990 to 1,220,000 in Table 1-3 Employment Trends in Hampton Roads , ,321 1,077,040 1,231,500 1,220,000 Source: Hampton Roads 2020 Economic Projections, HRPDC, 1998 and HRPDC 2030 Regional Forecast, Because the region s population is projected to increase at 1.1 percent per year from 1970 to 2020, and the region s employment is expected to expand by a faster 1.7 percent annually, the region is expected to increase its employment to population ratio over the period. Regional employment as a percent of regional population is projected to increase from 59.9 percent in 1990 to 65.2 percent by the year According to the HRPDC, this growth trend will reverse itself from 2020 to This is due to the region s aging population that is expected to leave the workforce in large numbers. In that decade, the projected population is expected to increase, while the 2030 employment projection is expected to decrease. Due to the County's strategic location, Isle of Wight County can expect growth pressure from both the Southern Hampton Roads and Peninsula areas of Hampton Roads. One area of the County where the greatest development pressures can be expected is the northeast portion of the County due to its location adjacent to Newport News via the James River Bridge and the City of Suffolk via Routes 17 and 10/32 corridors. Development pressures can also be expected in the central portion of the County east of the Town of Windsor due to growth extending from the City of Suffolk along the Route 460 corridor. It is evident that Isle of Wight is, and will continue to be, directly influenced by the recent and Comprehensive Plan 1-4 Isle of Wight County, Virginia

22 projected growth of Hampton Roads. Nevertheless, the County remains a rural County, with a 2000 population of 29,728 residents within a land area of 319 square miles. The 2000 population density of 93 people per square mile is typical of a rural county. County Population and Development Trends Isle of Wight County experienced only moderate population growth between 1960 and 1980; from 17,200 people in 1960 to 21,603 people in This reflected an average rate of growth of about 1.28 percent per year. By 1990, the County population grew to 25,053 representing an increase of some 3,450 residents from the 1980 population. Between 1980 and 1990, the population of the County grew an average of 1.6 percent annually. With a 2000 population of 29,728, the County s annual growth rate increased to 1.87 percent. This more recent 10 year growth rate is significantly higher than the rate of growth evident in each of the two previous decades (Figure 1-1). Comprehensive Plan 1-5 Isle of Wight County, Virginia

23 Figure 1-1 Population Growth Isle of Wight County, VA 35,000 Population 30,000 25,000 20,000 15,000 10,000 17,200 19,500 21,603 25,053 29,728 5, Year Source: U.S. Census Bureau Isle of Wight s population is generally dispersed; however, there is a significant concentration located in the northeastern section of the County. In 2000, over 73 percent of the County's population, or 17,149 residents, were located in this area (Census tract 2801) which included the incorporated Town of Smithfield (population of 6,133). The remainder of the County's population is nearly evenly dispersed between Census tracts 2802, 2803, and The 2000 population of the incorporated Town of Windsor was 916. Since 1980 the majority of population growth in Isle of Wight County has occurred in the unincorporated area of Census tract Due to this area's proximity to the growing Peninsula jurisdictions and rapidly developing portions of northern Suffolk, the greatest pressures for future growth are expected to continue to occur in this area. The major limiting factor for population growth in this area has traditionally been the absence of public sewer and water facilities. Agreements between the County and the Hampton Roads Sanitation District (HRSD) provide access to regional wastewater treatment facilities. The Western Tidewater Water Authority, which includes the County and the City of Suffolk, enhances opportunities to provide future public water supplies to accommodate development within this area which was defined as a Development Service District (DSD) in the County s 1991 Comprehensive Plan. Population Projections During the development of this Plan several alternative population projections were considered for Isle of Wight. Projections are estimates of the population for future dates. They illustrate plausible courses of future population change based on assumptions about future births, deaths, and migration of residents both in and out of the County. Population projections established by the Weldon Cooper Center for Public Service at the Comprehensive Plan 1-6 Isle of Wight County, Virginia

24 University of Virginia are those most recently developed for the County. As shown in Figure 1-2, they indicate that the County can expect a population of 37,500 by the year Figure 1-2 Population and Household Projections Isle of Wight County 40,000 41,500 Population and Households 35,000 30,000 25,000 20,000 15,000 10,000 25,053 9,030 29,728 11,319 33,800 12,900 37,500 14,478 16,023 5, Year Population Households Source: Weldon Cooper Center for Public Service, University of Virginia (2030 household figures based on projected 2.59 persons per household). Given a 2000 Census population of 29,728, this represents an increase of some 7,772 new residents. The County sustained an 18.7 percent increase over the 1990 census count. On the average, the County population is projected to grow at a rate of approximately 10 percent per decade through the period 2000 and The projected 2030 population is formulated to be 41,500. For comparison purposes, the 2005 population estimate for the County produced by the US Census Bureau is 33,417 persons. This represents an increase of 3,689 persons since 2000, or an increase of 12.4 percent. This equates to an annual increase of 1.24% over the last five years, which is a decrease from the 1.87% annual growth rate between 1990 and Since the Weldon Cooper Center projections anticipate a reduction in the future rate of population growth, alternative growth forecasts were developed assuming that the rate of growth evident over the past three decades was sustained in future years through the period and continuing to As shown in Figure 1-3, these alternative projections suggest that if future rates of growth reflect past trends the County population might be substantially higher by the year 2030 and could exceed 48,776 residents. Comprehensive Plan 1-7 Isle of Wight County, Virginia

25 Figure 1-3 Population and Household Projections Isle of Wight County 60,000 Population and Households 50,000 40,000 30,000 20,000 10,000 25,053 9,030 29,728 11,319 35,239 13,450 41,476 16,014 48,776 18, Population Population Households Source: Redman/Johnston Associates, Ltd. (2030 data based on projected 2.59 persons per household). In reality, no single projection can be considered reliable when peering 20 years into the future. Nevertheless, it is likely that actual population and household growth in future years will likely fall somewhere between the projections reflected in Figures 1-2 and 1-3. As population increases in Isle of Wight, the number of households created will increase at an even greater rate due to the national trend of decreasing average household sizes. A household is typically defined as all persons, related or not, occupying a housing unit. Average household size decreased from 2.79 persons per household in 1990 to 2.61 in It is projected to be 2.62 persons per household in 2010 and 2.59 persons per household in The Hampton Roads region has sustained substantial in-migration by new residents of pre-retirement and retirement age. If such in-migration continues to represent a substantial component of the County s growth, even greater reductions in the average household size should be anticipated. This trend has implications for future housing demand in the County as more residential units will be needed not only to serve population growth, but also to accommodate smaller households and a growing percentage of the total population represented by older residents. In light of recent population and development activity within the region and the County, these population projections, particularly those identified in Figure 1-2 appear to be somewhat conservative. Population growth in the County between 1990 and 2000 reflected an 18.7 percent Comprehensive Plan 1-8 Isle of Wight County, Virginia

26 rate for the decade. Current estimates of growth expected from 2000 to 2010 suggest the 10 year period will manifest a rate of growth approximating 18.5 percent for the period. These rates of growth are substantially higher than the rates of growth projected in Figure 1-2 which are 10 percent per decade for the forecast period It should be noted that Isle of Wight's population growth has traditionally been primarily driven by in-migration of new residents from the more urbanized jurisdictions within the Hampton Roads region. As infrastructure improvements are made in other jurisdictions throughout the region, demands for growth in other jurisdictions will compete with growth demands in Isle of Wight County. For example, the completion of the I-664 Bridge/Tunnel has rather dramatically improved access between the Peninsula and the City of Suffolk, thereby strengthening the demand for growth in Suffolk. As of September 2004, Suffolk had approximately 5,292 approved lots and units on the books, which are not yet developed. On the opposite end of the Hampton Roads region, Gloucester County is expected to grow at a rate comparable to that of Isle of Wight and past construction of Hampton Roads Sanitation District (HRSD) sewer lines into that County is expected to generate additional growth demand. While the Hampton Roads region is projected to continue to grow, there are many places in the region other than Isle of Wight for growth to occur. Infill development in urban localities and development in other fringe jurisdictions will all accommodate portions of the future regional growth. Whether Isle of Wight County's population grows at levels identified in either Figure 1-2 or 1-3 or somewhere in between depends on several factors, including: the health of the national and regional economy; the provisions for growth provided by other jurisdictions within the region; the commitment of the County to proactively manage its growth through land use controls including zoning and subdivision regulations, and development standards; and the level of investment made by the County to enhance the capacity of infrastructure necessary to sustain population growth. Clearly, County actions and policies can and will influence the rate of projected population increase. Given the influence that growth in other jurisdictions in the Hampton Roads region may have on actual population increases in the County over the next 20 years, the projections identified in Figures 1-2 and 1-3 should be considered only a general guide and used to prepare the County for the potential population increase it may or may not actually realize over the next 20 years. Population projections are inherently subject to many external and unforeseeable forces. The projections presented in this Plan should be updated on a periodic basis to reflect changing trends and circumstances as they develop. Although the projections are adequate for this Plan, more detailed projections should be developed to support the design and construction of a variety of specific capital improvements which the County will necessarily undertake through the planning period. Such projects should be carefully evaluated in the context of the specific location in which they are proposed as well as the specific needs they are intended to meet when judged in the context of their respective cost to present and future County residents. Comprehensive Plan 1-9 Isle of Wight County, Virginia

27 Housing Characteristics and Projections Between 1990 and 2000, year-round housing units in Isle of Wight County increased by 1,583 units from 9,736 in 1990 to 11,319 in 2000, or 16 percent. Of this increase, 1,003 units or 63.4 percent were single-family dwellings, 146 units, or 9.2 percent, were multi-family units, and 434 units or 27.4 percent were manufactured homes (Figure 1-4). Figure 1-4 Housing Characteristics ,000 10,000 8,000 6,000 6,234 7,763 8,479 10,394 4,000 2, ,902 2,238 1,468 1, , Single Family Multi Family Manufactured Home Source: U.S. Census Bureau In 2000, single-family dwellings comprised 77.4 percent of the total Isle of Wight housing stock. Multi-family units and manufactured homes made up 5.7 and 16.9 percent of the housing stock, respectively. Clearly, the predominant form of housing in Isle of Wight is the single-family home. In response to the need for affordable housing and the desire to live in single-family homes, the number of approved manufactured homes increased 29 percent during the period, from 1,468 in 1990 to 1,902 in Housing unit projections for Isle of Wight are based on the population and household projections earlier presented. Figure 1-5 shows two alternative housing unit projections, which correspond to the alternative population and household projections identified in Figures 1-2 (Scenario 1) and 1-3 (Scenario 2). Both scenarios assume future housing vacancy rates will be consistent with 2000 Census vacancy rates of 6.1 percent. One method to project total future housing units uses percent of the projected number of households in the County. With this assumption, the total projected increase in housing is expected to range between 2,355 and 8,643 new residential units over the 30 year period shown. Comprehensive Plan 1-10 Isle of Wight County, Virginia

28 Figure 1-5 Housing Projections Scenario 1 Scenario 2 25,000 # of Housing Units 20,000 15,000 10,000 11,319 11,319 14,257 13,674 16,974 15,374 19,962 16,984 5, Year Source: Redman/Johnston Associates, Ltd. 1999, and US Census Bureau, October According to the US Census Bureau, the County added 1,915 single-family dwellings, 228 multifamily units and 336 manufactured homes since By the end of 2005, the County had a total of 13,798 residential units. Income Characteristics Per capita income in Isle of Wight increased at a faster rate than the Hampton Roads region between 1992 and 2004 but at approximately the same rate as the State for the same period (Figure 1-6). Per capita income increased from $17,858 in 1992 to $30,692 in Per capita income increased between 1992 and 2004 for both the County and the State by a rate of 42%. In comparison, the region s per capita income grew 36% during the same time period. In 1996, for the first time, per capita income in Isle of Wight County exceeded the average per capita incomes for the region. Comprehensive Plan 1-11 Isle of Wight County, Virginia

29 Figure 1-6 Per Capita Income ,000 Isle of Wight 36,160 Per Capita Income in Dollars 35,000 30,000 25,000 20,000 15,000 10,000 Hampton Roads Planning District Virginia 25,255 20,909 21,466 21,333 19,342 17,858 27,837 26,288 31,087 30,692 30,317 5, Year Source: Virginia s Local Economies, 1998 Edition, Weldon Cooper Center for Public Service and U.S. Department of Commerce, Bureau of Economic Analysis. Incomes in the County over the past 12 years have been only slightly below the national average. In 2004, the County ranked fifth among sixteen jurisdictions in the region in per capita income. Personal income in the County grew by an average annual rate of 5 percent through the period 1992 to 2004 which exceeded the 4 percent rate of increase in personal incomes for the region for the same period. In 1996, the County s average weekly wages ranked second among all jurisdictions in the Hampton Roads region. This was due in part to the strong manufacturing employment base within the County which typically pays higher wages than other economic sectors such as retail and service businesses. By 2000, the County had dropped to sixth due to an increase in the number of retail and service jobs. As the County continues to grow and develop, it is projected that average income levels within Isle of Wight will continue to increase. Employment Characteristics Labor force is typically defined as those persons 16 years of age or older, both civilian and noncivilian, who are classified as either being employed or unemployed. The actual size of the civilian labor force varies from year to year in Isle of Wight, but by 2002, it had grown to over 16,000 persons. Levels of employment have also risen steadily in the past 14 years from 10,496 residents employed in 1988 to 15,690 in 2002 (Figure 1-7). The average annual employment growth rate in the County for the period was 2.8 percent and exceeded the 1.3 percent growth rate for jobs region-wide. Over the same time period, the rate of unemployment in the County has fluctuated between 2.2 and 7.2 percent annually. In 2000, the unemployment Comprehensive Plan 1-12 Isle of Wight County, Virginia

30 rate in the County reached an all-time low of 2.2 percent; the lowest level over the past 14 years. Figure 1-7 Resident Labor Force and Employment Isle of Wight County 18,000 16,000 14,000 12,000 16,201 15,061 15,237 15,690 13,843 13,893 14,315 14,263 14,908 12,995 13,595 12,804 13,043 12,334 11,039 10,496 10,000 8,000 6,000 4,000 2, Labor Force Employed Source: Virginia s Local Economies, 1998 Edition, Weldon Cooper Center for Public Service and Virginia Employment Commission. Recent trends indicate the County economy has diversified somewhat in the last 20 years. In 1988, manufacturing jobs represented roughly 59 percent of all jobs in the County but by 2000, represented just over 25 percent of all jobs. The decline in manufacturing jobs as a percent of all jobs was due to the decline of the manufacturing sector and substantial increases in other sectors. Growth in the health services sector employment was greatest during the 14-year period with 3,472 new jobs, followed by substantial job gains in the areas of professional and related services and entertainment and recreation sectors of the economy. Overall, from 1986 to 2002, the County sustained a 59 percent increase in total employment. While having a relative balance in the aggregate supply and demand for jobs, Isle of Wight County has been characterized as having a high rate of commuting by County residents to work locations in other jurisdictions in the region. According to the Virginia Employment Commission in 2000, approximately 43 percent of the jobs in Isle of Wight were filled by County residents. The remaining 57 percent are filled by commuters from surrounding jurisdictions. Similarly, over half of the County's resident labor force commutes out of the County each day for employment. Major out-of-county work destinations include Newport News and Suffolk, or roughly 18 percent and 9 percent of the County labor force, respectively. The labor sheds (areas from which employers derive their supply of workers) for the County's two largest employers, International Paper Corporation and Smithfield Foods, extend far into nearby jurisdictions, so that Isle of Wight residents must compete with them for jobs. Because Comprehensive Plan 1-13 Isle of Wight County, Virginia

31 these labor sheds are off-center, they provide a more limited range of job opportunities than may be suspected, and many residents must commute beyond the County's borders to find employment. Unless measures are taken to provide a better dispersal of job opportunities in the County, this pattern of commuting will persist as the County adds new residents. As the County sustains projected increases in population, efforts to increase and diversify the County job base will be required to maintain a sustainable job/housing balance. Current projections for future employment in the County developed in 1998 by HRPDC suggest that County employment levels may increase by as many as 9,130 jobs through the period Existing Land Use and Development Patterns The development pattern of Isle of Wight is characteristic of a rural County on the fringe of an expanding metropolitan area. The 1991 Comprehensive Plan designated three areas as development services districts (DSDs) strategically located along major corridors in the northern, central and southern parts of the County. Residential and commercial growth is being focused to the DSDs in order to protect and preserve the rural character of the County s remaining lands. Development within the County is also concentrated within and around the incorporated towns of Smithfield and Windsor, and east of the City of Franklin in the Jamestown/Camptown community which is consistent with the designated DSD areas. Outside of these concentrations, development has generally occurred in a random fashion along highways throughout the County. Most of this development is single-family detached housing and manufactured homes. Generally, the majority of the County is characterized by cropland, forests, and a scattering of farm, single-family, and manufactured home residences and is designated Rural Agricultural Conservation District. Crossroad communities of various sizes and development mixes are located throughout the County. In 2002, the County completed the Village Center Boundary Delineation Project designating these crossroad communities within the Rural Agricultural Conservation District as Village Centers. Village Centers are existing settlements which developed around the central focus of agricultural activities, railroads or a civic use, such as a church, post office or fire station. Each Village Center has a unique character, but they also have similarities. They are confined to a small area, are residential in nature and have a higher density than the surrounding area. The basic needs of the surrounding rural population are fulfilled within the village center. These Village Centers are Battery Park, Central Hill, Isle Of Wight Courthouse, Rescue, Rushmere, Walters and Zuni. In recent years, the County experienced significant residential subdivision development, particularly in the northern third of the County and the area around Windsor. This development activity has primarily taken the form of detached single-family home subdivisions. Major singlefamily subdivisions in the County are located primarily around Smithfield and areas north and east of the town. The larger manufactured home parks are located near Smithfield and Windsor. The majority of the County's commercial development is concentrated in and around the towns of Smithfield and Windsor, along U.S. Highway 58 near the City of Franklin, and along Routes 10, 32, and 17. Other commercial activity is scattered throughout the County in rural communities and at rural highway intersections. The majority of this rural commercial activity is limited to general convenience stores, service stations, and farm supply and equipment operations. Major industrial land uses are currently confined to four general areas of the County: the meat packing plants located in Smithfield, the International Paper mill east of Franklin, warehouse and distribution centers in Windsor and agricultural operations in Zuni along the Route 460 corridor. Comprehensive Plan 1-14 Isle of Wight County, Virginia

32 Public uses are located throughout the County and tend to be located in the County s population centers. Chapter 6 of the Comprehensive Plan includes analysis of the County s community facilities. Numerous semi-public uses such as churches, civic buildings and cemeteries are scattered throughout the County. Development Trends Residential development has been predominant in the County in recent years and is expected to continue to be the major form of development in coming years. As of 2006, there are approximately 2,240 residential lots/units within the County which are presently under various stages of review, approval, or construction. Approximately 1,930 of these residential lots/units are single-family and 310 are multi-family. The majority of recent development and projected future residential development is expected to occur in the northern third of the County, primarily due to this area's proximity and accessibility to employment centers on the Peninsula and in northern Suffolk. Table 1-8 Building Permits Issued for Residential Development Building Total Permit Type Single Family ,341 Residence Multi Family Residence Manufactured Homes* Total ,394 *Figures shown for Manufactured Homes do not include replacement homes. Demolition numbers are not included. Source: Isle of Wight County Department of Inspections and Department of Planning and Zoning Past studies have shown that the County has a significant deficit of retail development to serve local needs. In the past, Isle of Wight has not had the critical mass of population necessary for sizable commercial expansion. However, the number of approved building permits for commercial developments has been steadily increasing. With the County s increased population, further analysis is needed to gauge how much large scale retail development is necessary to meet the needs of the larger population. As residential and industrial development increases within the County, it is expected that additional commercial (retail, service businesses and office) development will follow. Future commercial development demand will be strongest in the northern third of the County in response to increased residential development in this area. Of the twelve commercial development projects currently under review, approval or construction in Isle of Wight, nearly all are located in the northern third of the County along Routes 258, 10, 32, and 17. Isle of Wight has traditionally had a strong industrial base with the presence of International Paper s facilities near Franklin and the meat packing facilities in Smithfield. Major constraints Comprehensive Plan 1-15 Isle of Wight County, Virginia

33 to additional industrial development in the County have been lack of infrastructure (water and sewer) and limitations on the size of the available labor force. As County population grows and infrastructure improvements are made, Isle of Wight is expected to attract additional industrial development. There is a significant amount of acreage zoned for industrial use along Route 58 and the rail lines in the vicinity of International Paper. East of Windsor, adjacent to and along the Route 460 rail corridor, large tracts of land are available for future industrial growth. In the spring of 2006, a commercial developer began construction of a speculative warehouse facility. This facility is a 329,000 square foot warehouse/distribution center at the Shirley T. Holland Commerce Park, just outside of Windsor. Summary The economic, social, and land use changes necessitated by growth make planning for the future a difficult, yet important challenge. The statistics, trends, and projections presented in this chapter are intended to provide a tool to support the development of the objectives and policies contained in this plan. Comprehensive Plan 1-16 Isle of Wight County, Virginia

34 Chapter Two Natural Resources and Environmental Quality The impacts of future growth and development on environmental quality in Isle of Wight is an issue of increasing public concern. The effects of increased population and the new homes, job centers and shopping facilities that accompany population growth manifest themselves on the natural environment in many ways, including: Clearing of trees and natural vegetation; loss of plant and wildlife habitat; Loss of valuable wetlands and aquatic habitat; groundwater contamination and saltwater intrusion; Degradation of surface water quality in streams and rivers; Disruption of natural water drainage systems; air pollution; Increased amounts of solid wastes; Loss of scenic natural views; and Increased litter deposited along roadways. The development of new homes, businesses, industries, schools, and roads necessary to accommodate a growing population should occur without unduly threatening the County's environmental quality, if steps are taken to ensure new development is designed and built in an environmentally-sensitive manner. Certain areas of Isle of Wight are much more susceptible to environmental degradation than others due to the presence of sensitive natural features. Future development should be directed away from sensitive areas and guided to areas of the County where environmental impacts will be less detrimental. Regardless of location, all future development should at least meet minimum performance standards for environmental protection and preservation of all natural resources, and where at all possible, strive for maximum performance standards for environmental protection. Background Information Characteristics of the natural environment affect development. While some natural features encourage and enhance development, others should limit certain land uses and the intensity of development. Analysis of the County's natural features provides a means for determining the development capabilities of the land. Map 2-1 (Natural Development Constraints) depicts the County's major natural growth determinants. These include: wetlands and floodplains; areas with steep slopes of 15 percent or greater; and areas where soils are generally unsuitable for septic systems or have shrink/swell characteristics that influence construction. Topography The land in Isle of Wight County is mostly level to gently sloping. Some areas near the drainageways slope steeply up to gently sloping well-drained land. The central area of the County between the Blackwater River and James River watersheds is flat upland containing poorly drained upland swamps called pocosins. The eastern edge of the County contains poorly-drained clay upland flats below the Suffolk Scarp. Elevations range from sea level at the James River on the northern edge of the County, where there are extensive tidal marshes, to about 100 feet at the Surry County line. The Suffolk Scarp ranges from about 35 to 75 feet high. Limited areas of steep slopes are located along streams and rivers in the County. Comprehensive Plan 2-1 Isle of Wight County, Virginia

35 Soils Soil is a complex mixture of organic and inorganic particles combined with variable amounts of air and water. Generally arranged in layers of different compositions, called horizons, the aggregate formation is termed the soil type or classification. A detailed soil survey for Isle of Wight County was updated by the USDA Soil Conservation Service, after performing major fieldwork, in This survey is the County's best source for detailed site data on soils constraints for development. Table 2-1 summarizes the general characteristics of soils found throughout Isle of Wight County. It should be noted that all soil classifications in the County have limitations for septic systems. In most cases, in areas located outside the Towns of Smithfield and Windsor, the use of septic systems is the standard method for disposal of human waste in the County. Few County soils have the capability to adequately assimilate human wastes (U.S.D.A. Soil Conservation Service, 1986). In addition to the attributes listed in Table 2-1, County soils exhibit a number of other characteristics which limit development. A large portion of the land area is composed of hydric soils which are indicative of wetlands. Most of the remaining land area has a seasonal water table depth between zero and 35.9 inches (Virginia Tech Agricultural Engineering Department, 1990). Depth to water table is one of the key factors determining the length of time a pollutant will take to percolate through the soil to the water. A greater depth to water allows pollutant attenuation to soil particles to occur. Both hydric soils and soils with a shallow depth to groundwater, which are common in the County, are considered unsuitable for on-site septic system use. Hydric soils pose additional limitations to development as they may more readily compact under the weight of structures and settle at different rates causing loss of structural integrity. Costly engineering work, which is typically required for successful development on such soils, adds to the overall cost of development. Steep slopes (in excess of 15%), though not common in the Isle of Wight, generally appear to follow the edges of streams and rivers. Typically, soils associated with these slopes are more easily eroded. Development on slopes greater than 15% incur greater cost of engineering necessary to properly stabilize these slopes, and the severe water quality problems which may occur if slopes are not stabilized. The Chesapeake Bay Preservation Area Ordinance prohibits development on slopes greater than fifteen percent (15%) unless such development is demonstrated to be the only effective way to maintain or improve slope stability. Highly erodible soils are those which are easily detached from their original location by wind or water. Exposure of highly erodible soils can result in the transport and deposition of soils termed sedimentation. Once in the water, sediments screen sunlight to aquatic environments Comprehensive Plan 2-2 Isle of Wight County, Virginia

36 Soil Type Table 2-1 General Soil Characteristics - Isle of Wight County Depth to Septic % Shrink/ High Drainage Erosion Limitations Slopes Swell Water Property Hazard Permeability Alga Severe 0-4 low >72" some to -- rapid 1,730 excessive Bohicket Severe 0-1 high +3"-0" very poorly slight very slow 3,550 Chickahominy Severe 0-2 high 0-6" poorly slight very slow 2,730 Chipley Severe 0-4 low 24"-36" mod-well slight rapid 2,465 Emporia Severe 0-6 moderate 36"-50" well slight mod-slow 9,310 Kenansville Slight* 0-4 low >72" well moderate rapid 2,020 with courser particles accelerating channel scouring, and fine silts settling to the bottom smothering certain aquatic organisms and their eggs (CBLAD, 1990). Increased sedimentation may accelerate the need for more frequent dredging of navigation channels which has its own impacts on aquatic resources and the regional economy. Highly permeable soils allow liquid to rapidly percolate or penetrate the soil. This is a water quality hazard to groundwater as pollutants may be transferred directly into the water supply. The use of on-site septic systems and underground storage tanks should be limited in areas of highly permeable soils. Large portions of the County are characterized as having either highly erodible or highly permeable soils or both. Map 2-1 shows generalized areas Comprehensive Plan 2-3 Isle of Wight County, Virginia Acreage Kinston Severe 0-4 low 0-12" poorly -- moderate 11,555 Leon Chipley Severe 0-4 low 0-36" mod-well slight mod-rapid 790 Myatt Severe 0-2 low 0-12" poorly slight mod-slow 30,770 Nawney Severe 0-2 moderate +36"-6" very poorly -- moderate 16,955 Nevarc-Remlik Severe mod-low 18"-48" modexcessive severe mod-rapid 8,395 Peawick Severe 0-10 high 18"-36" mod-well severe very slow 8,090 Peawick-Slagle Severe 2-6 mod-high 18"-36" mod-well moderate very slow 3,340 Rappahannock Severe 0-1 low +24"-6" very poorly -- moderate 1,970 Rumford Slight* 0-4 low >72" some to moderate mod-rapid 1,595 excessive Slagle Severe 0-10 moderate 18"-36" mod-well slt-severe mod-slow 57,075 Uchee Severe 0-10 moderate 42"-60" well slt-severe mod-slow 16,235 Uchee Severe 2-10 mod or 18"-36" well moderate mod-slow 4,255 Pickwick high Udorthents Severe mod-well Urban Land Severe (Impervious cover; on-site assessment needed to determine limitations) *Though these soil types have been classified as having slight limitations to on-site septic systems in the Soil Conservation Service s Sanitary Facilities table, the more complete narrative descriptions of these soils list numerous limitations which include on-site septic systems and absorption fields, the use of which has the potential to pollute ground water. Source: Isle of Wight county Soil Survey, 1986

37 where soils constraints for development are present. Steep slope and floodplain/wetland characteristics are considered major development constraints and are important to manage due to their sensitive environmental features. Soils with development constraints include soils with severe limitations for septic use as well as soils with severe shrink-swell characteristics. In addition, the location of these areas suggests a hydrologic relationship with adjacent riparian habitat and shoreline buffer areas. Soils with severe shrink/swell characteristics can accommodate development with sound engineering practices. Soils with septic system limitations can be overcome with public sewer services. Copies of the Isle of Wight County Soil survey are available for inspection in the County Department of Planning and Zoning. Floodplain Floodplains are nearly level land areas which border streams and rivers and are occasionally flooded unless artificially protected. The actual boundary of a floodplain varies significantly depending on the designated frequency of flooding. The 100 year frequency is most often used to determine flood hazard areas. The 100 year floodplain is the area which has a 100 percent probability of being flooded at least once during a 100 year time period; or a 1 percent chance of flooding each year. The 100 Year Floodplain is recognized by federal regulations as the area where the potential for flooding is a significant hazard and where development should be limited or not occur at all. The floodplain is divided into two sections; the floodway and the floodway fringe. Federal Emergency Management Agency (FEMA) requirements address the direct aspects of potential damage that can occur if new development takes place in areas subject to flooding. To qualify for flood insurance, floodway development is prohibited, and floodway areas are, therefore, well protected. The floodway is the land area which is directly adjacent to the water channel. Although FEMA does not prohibit construction in the floodway fringe, development is not encouraged. Floodplain filling and development can result in a major loss in the storage capacity of flood waters, alter drainage patterns, and cause an increased velocity and volume of runoff. While development located on the filled floodplain is reasonably safe from flooding, areas downstream may experience increased flood heights and greater channel water velocity. In areas adjacent to the James River where coastal flooding can occur, shoreline elevations in Isle of Wight can be as high as 50 feet. Due to these high elevations, the Shoreline Situation Report - Isle of Wight County, VA published by the Virginia Institute of Marine Science (VIMS) in 1975, states that flooding is not a problem in most areas of the County. The VIMS study notes, however, that there are low-lying areas along Burwells Bay, Baileys Beach, the Pagan River, Cooper Creek, and east of Muddy Cove that are prone to flooding. While floodplains and flooding events have not historically affected Isle of Wight County, the events associated with Hurricane Floyd in September, 1999 displayed the magnitude and impact that flooding can have on a community. During this event, flood levels exceeded all previous floods of record, particularly in the Blackwater River Watershed. In response to flooding from Hurricane Floyd, the County established the Isle of Wight Long Term Disaster Relief Committee, a private non-profit group. In September 2003, Hurricane Isabel inundated the Central Atlantic coast including Isle of Wight. The shoreline along the James River was hit by a surge of water created by the high winds of the hurricane. This tide surge destroyed or severely damaged a number of structures on the County s shoreline. The County is currently administering a Hazard Mitigation Grant Program acquisition project. This project combines federal, state and county funds for the County to use to purchase Comprehensive Plan 2-4 Isle of Wight County, Virginia

38 property from willing home and business owners whose structures were affected by prior flooding from severe storm events. The benefit of this program is to take property owners out of harms way and to reduce the number of disaster claims from natural catastrophes. The County has acquired five properties, some at Burwells Bay and along the Backwater River. The County will hold these properties in perpetuity and will only develop them as park land or open space. Maps of the County's 100 Year Floodplain are available for inspection in the County Department of Planning and Zoning. Water Resources The County's numerous water bodies are situated within two drainage basins (see Map 2-2). The James River watershed includes: o The Pagan River o Jones Creek o Cypress Creek o Chuckatuck Creek o Lawnes Creek o All associated tributary streams. The Blackwater River watershed consists of: o Rattlesnake Swamp o Villines Swamp o Pope Swamp o Antioch Swamp o Horse Swamp o Corrowaugh Swamp o Kingsale Swamp o All associated tributaries. The Blackwater River watershed drains the western and southern portions of Isle of Wight. The existence of pocosin areas in the central higher elevated portions of the County impedes drainage of this area. The James River watershed ultimately drains into the Chesapeake Bay and the Blackwater River watershed ultimately drains into the Chowan River basin and the Albemarle Sound in North Carolina. North Carolina environmental officials are currently studying environmental impacts in the Albemarle and Pamlico Sounds. A Regional Shoreline Study, conducted by the Hampton Roads Planning District Commission (HRPDC) from 1994 to 1998 on behalf of the County and other local governments in the region, noted there were approximately miles or 679,000 feet of shoreline in the County s Chesapeake Bay watershed, not including water supply reservoirs. Inventory of County Shoreline Conditions A vast majority of the County s shoreline remains unimproved in a natural state. An estimated 3.3 % of the County shoreline, or 22,200 feet of shoreline, has been protected by shoreline erosion control structures. A video survey of the shoreline conducted by HRPDC in 1993 revealed approximately 16,800 feet of County shoreline had been hardened with some form of erosion control treatment at that time. In addition, about 5,400 feet of shoreline are included in two breakwater erosion control projects. Shoreline conditions where structural erosion control treatment has not been provided varies. Inventories conducted by VIMS in 1975 which illustrate shoreline conditions compiled from historical data indicate the following types of natural shoreline features characterize various reaches Comprehensive Plan 2-5 Isle of Wight County, Virginia

39 of County shorefront: Fringing intertidal marshes Extensive intertidal marshes Exposed tidal flats Sheltered tidal flats Freshwater marshes and swamps Exposed fine sand beaches The Shoreline survey conducted by HRPDC documented 146 privately owned piers and docks along the County s Chesapeake Bay watershed shoreline in Pier and dock density average Countywide was 0.22 piers and docks per 1,000 feet of shoreline or roughly one pier or dock per mile of shorefront. Concentration of piers and docks are greatest along the Pagan River shoreline where they average almost 1 pier or dock per 1,000 feet of shorefront. Table 2-2 prepared by HRPDC in 1998 summarizes selected Shoreline Conditions in the County including: shoreline length in feet and miles for various shoreline reaches; pier and dock densities; and the percent of shoreline in each reach afforded some form of structural shoreline protection. A survey of shoreline conditions since Hurricanes Floyd and Isabel has not been made; therefore, data shown does not reflect hurricane damage. VIMS plans to perform a shoreline conditions survey for the entire state but funds are not currently available. Localities that request a survey will be required to provide funding. Comprehensive Plan 2-6 Isle of Wight County, Virginia

40 Table 2-2 Summary of Selected Shoreline Conditions - Isle of Wight County Reach # Reach Description TotalShorelineLength (ft) Total Hardened Length (ft) Shoreline % Hardened Total Miles Shoreline # Piers & Docks 1000' 0 Chuckatuck 78,000 3, % Creek/ Brewer s Creek 205 James River 16, % Pagan River 72, % Pagan River 2, % Pagan 5,800 4, % River/James River 201 James River 6, % James River- 29,000 1, % Burwell Bay 203 James River- 2, % Burwell Bay 204 James River- 20, % Burwell Bay Pagan River 122,000 3, % James River 5, % James River 25, % James River 10, % IOW1 Kings Creek 27, % IOW2 Copper 25, % Creek IOW3 Ragged 39, % Island Creek Jones Creek 111,800 3, % Cypress 82, % Creek & tributaries TOTAL 678,800 16, % Source: Hampton Roads Planning District Commission, 1998 Bathymetry Comprehensive Plan 2-7 Isle of Wight County, Virginia Pier & Dock Density per The National Oceanic and Atmospheric Administration (NOAA) nautical Chart #12248 and ADC s

41 Waterfront Chartbook of the Chesapeake Bay Maps #32 and #33 provide soundings in feet, where available, for the waterbodies in and adjacent to Isle of Wight County. The Pagan River, from the Town of Smithfield out to the 10-foot contour of the James River, is a federally-maintained channel. The original dimensions of the channel were 10 feet deep at mean low water and 80 feet wide. However, it is currently only maintained to a depth of 6 feet due to the lack of documented need for a deeper channel by current vessel traffic. Maintenance dredging was performed between mileposts 3 and 4 in The other federally-maintained channel in the County is Tylers Beach. The channel in this location includes a 6 feet deep channel that is 50 feet wide and includes protective stone jetties. Maintenance dredging of Tylers Beach was last performed in October, Flushing Characteristics Due to its size, the James River behaves in a manner similar to that of free flowing streams and rivers. While tidal flushing occurs in the James, there is also a large volume of freshwater which flows downstream from its headwaters. According to the report prepared by HRPDC to support the preparation of Regional Shoreline Elements of Comprehensive Plans (February, 1997), the James has more capacity to assimilate wastewaters without serious degradation to water quality. However, the report notes that in some cases based on the orientation of smaller tributaries to the James, the rate of water flow in the main stem is such that water flowing into or out of the smaller tributaries is somewhat stymied; and, while mixing may occur at the mouths of these tributaries, flushing of these tributaries generally does not occur at a high rate. Water quality studies conducted on the James have shown that salinity is greatest near its mouth. Near Old Point Comfort, the salinity at the surface ranges from parts per thousand (ppt) in the spring to 21 or 22 ppt in late summer. Bottom salinity varies in the range of ppt. Vertical stratification is usually strong at the mouth since the river is deep there, and there is little opportunity for the denser salt water to be mixed with the freshwater. Stratification throughout the rest of the estuary varies in response to freshwater runoff volumes and tides (Neilson and Ferry, 1978). The dominant flow of the James during ebb tide is down the natural channel south of Middle Ground (Neilson and Ferry, 1978). The estuarine portion of the James River, in contrast to riverine reaches, has tidal currents that are strong and enormous volumes of water are available to dilute wastes. Consequently dissolved oxygen (DO) levels are good even though biochemical oxygen demand (BOD) discharges can be large. The James River 3-C Report of the Hampton Roads Water Quality Management Plan (Planning Bulletin 217-B), 1978, noted DO sags did occur occasionally due to nonpoint loadings, with marsh inputs (detritus flowing from marsh areas) suspected of being the major component of nutrient loads. In summary, although large volumes of wastewaters have traditionally been discharged to the estuarine portion of the James, the natural assimilation capacity of the river is great and DO levels are generally well above water quality standards (Neilson and Ferry, 1978: 16,17) Circulation in the Pagan River is tidally dominated. The tide range in the Pagan is approximately 3 feet and tidal currents can exceed 1 foot per second. Despite this strong tidal influence, water quality in the Pagan in past years has been poor. This condition was thought to be attributable to waste discharges from meat packaging plants, poorly treated waste waters, and BOD. Since 1997, all point sources in the Pagan River have been connecting their waste discharge to the Nansemond Treatment Facility of the Hampton Roads Sanitation District. The 2006 Pagan River Shoreline Sanitary Survey indicates the problem persists despite all waste from packing plants and waste from the Town of Smithfield being re-directed to HRSD. This is due to wastewater pipe failure, septic failures and continued direct discharges from a seafood processing facility. The base freshwater flow to the river is generally believed to be small and, therefore, pollutants are flushed through the system and out into the James River very slowly. In addition, no gravitational circulation exists to enhance the Pagan River s flushing capability. Comprehensive Plan 2-8 Isle of Wight County, Virginia

42 Water Quality The most recent interpretive data concerning water quality in various subwatersheds or hydrologic units of the County is contained in the (b)/303(d) Virginia Water Quality Assessment Report and the 2004 Virginia Nonpoint Source Pollution Watershed Assessment published by the Virginia Department of Environmental Quality (DEQ). This report contains a list of impaired waterways. The following discussion summarizes findings with regard to water quality for various segments: The James River-Newport News Shipyard water body Encompasses the Lower James River main stem from the James River Bridge (U.S. 17) to the west bank of Newport News Creek (on the north shore) and to Eclipse in the City of Suffolk (on the south shore). This water body is classified as effluent limited. The Virginia Department of Environmental Quality (VDEQ) maintains one ambient water quality monitoring station (AWQM station) within this water body. The monitoring data for the ambient station over the 2004 reporting period exhibited no violations of the VDEQ standards for temperature, ph, Dissolved Oxygen (DO), or fecal coliform bacteria. No composite fish tissue samples contained metals or toxics. Shellfish condemnations, effective March 2006, in this segment are due to the mandatory buffer zones associated with the point source discharges from the HRSD-Boat Harbor and Nansemond Sewage Treatment Plants (STPs) and Newport News Shipbuilding, historical sediment toxics contamination, and the potential for fecal coliform bacteria pollution from nonpoint sources. An additional discharger in the area includes an industrial facility. The Clean Water Act (CWA) fishable goal for this water body, which covers 8.26 square miles of surface water, is partially supported for the entire water body. The swimmable goal is fully supported for the entire water body. The Chuckatuck Creek water body Extends from the headwaters to the Creek s confluence with the James River, including Brewers Creek, and Ragged Island Creek and Lone Star Lakes. The VDEQ maintains five AWQM stations within Chuckatuck Creek. There were no significant violations of the VDEQ standards for temperature, ph, DO, or fecal coliform bacteria at any of the stations during the 2004 reporting period. Shellfish condemnation in this segment can be attributed to NPS pollutants since there are no municipal facilities discharging into Chuckatuck Creek. The Federal Clean Water Act (CWA) fishable goal for this waterbody, which covers 2.23 square miles, is partially supported for the entire waterbody. The swimmable goal is fully supported for the entire waterbody. The Pagan River water body Encompasses the main stem and tributaries of the Pagan River from the headwaters to the confluence with the James, including Williams Creek, Jones Creek, Morris Creek, Cypress Creek, Champion Swamp, Mt. Holly Creek, and Blairs Creek. The Pagan River is classified as water quality limited. There are twelve AWQM stations within this watershed. Eleven stations are located in the Pagan and one is in Jones Creek. Over the 2004 reporting period, the twelve stations exhibited no standards violations for temperature or ph. Four stations exhibited violation of the DO standard during this period. Six stations in the Pagan River exhibited violations of the fecal coliform bacteria standards above a 10 percent rate during the Comprehensive Plan 2-9 Isle of Wight County, Virginia

43 sampling period, while one of these stations exhibited a violation for enterococci, an indicator organism used to assess the presence of human pathogens. The 2004 state water quality assessment lists the Pagan River as an impaired waterway due to elevated fecal coliform bacteria levels. The exact source of these fecal coliform bacteria levels has been determined to be nonpoint sources. Shellfish condemnations, effective November 2005, in this segment were attributed to the buffer zones surrounding the discharges from the Carrollton Court Housing Complex, Dockside Seafood and Smithfield Foods, as well as nonpoint sources. This system remains a target area for reopening of the condemned shellfish beds. Smithfield Foods Incorporated and the Town of Smithfield completed their connections to the Nansemond STP in All other point sources connected to the Nansemond Plant soon afterward. These changes did slightly improve water quality in the Pagan River but now nonpoint sources need to be resolved in order to significantly increase water quality. The CWA fishable goal for this water body, which covers 2.65 square miles of surface water, is partially supported for the entire water body. The swimmable goal is fully supported for 1.64 square miles and not supported for 1 square mile. The James River-Mulberry Island water body Reaches from Skiffes Creek to the James River Bridge crossing, including Goose Island, Warwick River, and Lukas, Deep, Jail, Lawnes, Ballard, and Kings Creeks. This waterbody is classified as effluent limited. The VDEQ maintains one ambient AWQM stations within this waterbody. Monitoring data collected at this station during the current reporting period indicated no violations of the Virginia Water Control Board (VWCB) water quality standards for temperature, ph, or DO. Three composite fish tissue samples were taken and each one, separately, contained arsenic, polycyclic aromatic hydrocarbon (PAH) and polychlorinated biphenyls (PCB) at concentrations below the EPA trigger level. No monitoring data were collected with which to determine violation of the fecal coliform bacteria standard. Much of this area contains a significant portion of the productive oyster beds located in the Lower James River mainstem. Shellfish condemnations in this segment are due to the mandatory buffer zones associated with the discharge from the HRSD-James River STP, as well as from nonpoint sources. Two industrial facilities discharge into the various tributaries in this basin. These are the James River Reserve Fleet and the United States Transportation Center at Fort Eustis. The CWA fishable goal for this water body, which covers square miles of surface water, is partially supported for the entire water body. The swimmable goal is fully supported for the entire waterbody. Lake Prince and Lake Burnt Mills were not assessed for their support of CWA fishable and swimmable goals during the reporting period. Most of their area is located in Suffolk. Lake Prince is classified as eutrophic, being high in nutrients and high in organic production. Lake Burnt Mills is designated mesotrophic, capable of producing and supporting moderate populations of living organisms. Comprehensive Plan 2-10 Isle of Wight County, Virginia

44 Watersheds The 2004 Virginia Nonpoint Source (NPS) Pollution Watershed Assessment Report, prepared by the Virginia Department of Conservation and Recreation, Division of Soil and Water Conservation (VDCR-DSWC), provides a comparative evaluation of the State s waters on a watershed basis, to assist in prioritizing and targeting pollution protection activities. It updates the 2002 Virginia NPS Pollution Assessment Report. The report notes that the James River sub-basin from the fall line to Hampton Roads includes eleven watersheds. Of these, the James River/Pagan River/Warwick River/Chuckatuck Creek (watershed #G11) is located within the Chesapeake Bay watershed of Isle of Wight County. Watershed #G11 received an overall NPS ranking of high priority in the Nonpoint Source Pollution Watershed Assessment found in the (b) Virginia Water Quality Assessment Report. The potential for urban nonpoint source impacts dominates this sub-basin. The report also notes that the Hampton Roads, Nansemond River, and Elizabeth River subbasin contains four watersheds (G12-G15). Watersheds G12-Speights Run/Lake Cahoon/Lake Meade/Lake Kilby and G14-Western Branch Reservoir are found within the County. Lake Burnt Mills and Lake Prince are found within the latter watershed. Watershed G12 has an overall NPS ranking of medium priority, and watershed G14 has overall ranking of low priority. Significant agricultural and forestry activities occur in these watersheds. As such, both have a ranking of high priority for total agricultural pollution potential and a ranking of low priority for total forestry pollution potential. Watershed G12 has a ranking of high priority while G14 possesses a medium priority ranking for total urban pollution potential. Depending on the size of the water resource and the location of nearby potential pollutants, all surface waters are susceptible to potentially harmful effects of development. These may include: leachate from landfills; solids or suspended sediment from sand and gravel washing operations; bacterial contamination from failing septic systems and sewage treatment plants; runoff from agricultural fields and impervious surfaces; untreated sewage from boats and marinas; leaking industrial storage and containment facilities; dredging operations; and leachate from dredge spoils sites. The James River has been over-enriched with biological nutrients such as phosphorous and nitrogen because of the many sewage treatment and industrial plants which discharge wastes containing these nutrients into its waters below the fall line. In tidal waters, these nutrients are not flushed downstream as quickly as in non-tidal waters. When these nutrients are oversupplied, algal blooms result which cause unpleasant tastes and odors in the water. Water turbidity reduces the availability of light to bottom growing submerged aquatic vegetation which is an important food source for wildlife and waterfowl. In addition, when the algae die and decay, additional dissolved oxygen is needed, placing the continued health and survival of fish and shellfish inhabiting these waters in jeopardy. In past years the Town of Smithfield's treatment plant represented the largest municipal sewage treatment plant in the County and treated average flows of million gallons per day in In July 1996, the Town discontinued use of its facility and connected to the new sewage collection line installed by the Hampton Roads Sanitation District (HRSD). All sewage collected by the Town is now treated by HRSD. The State Department of Health, Division of Shellfish Sanitation (DSS) monitors shellfish beds and determines which will produce shellfish safe for human consumption. DSS condemns shellfish beds in the vicinity of sewage treatment plants, failing septic areas, and marinas, when nutrient levels in Comprehensive Plan 2-11 Isle of Wight County, Virginia

45 the water exceed safe standards. The following is the list of condemned waterways within the County and the date of the most recent condemnation: Pagan River and Jones Creek and their tributaries (November 2005) Tylers Beach Boat Basin and Lawnes Creek and tributaries (October 2005) Kings and Ballard Creeks and tributaries (September 2005) Chuckatuck Creek (September 2005) A 2005 sanitary survey conducted by DSS for the Chuckatuck Creek, Kings Creek, Cooper Creek, Batten Bay, Ragged Island Creek, Winall Creek, Muddy Cove, Brewers Creek, Sleepy Lake and all their tributaries included survey of 1,818 properties. Survey findings indicated that 100 of these sites are considered direct or indirect sources of pollution. Seventy-three of these sites involve on-site sewage deficiencies. Other sources noted included boating activity, contributions of animal pollution, as well as industrial and solid waste sites. Much of the area surveyed corresponds to the location of the County s Newport Development Service District (DSD) where connection of households to public waste treatment facilities is planned in future years. A similar sanitary survey conducted by DSS for the Pagan River was completed in March, The survey included portions of the James River shoreline, the Pagan River, Williams Creek, Tormentor Creek (Lake), Lawson Creek, Warren Creek, Canal Run, Blairs Creek, Mount Holly Creek, Cypress Creek, Morris Creek, Jones Creek, Carrollton Branch and Titus Creek. A total of 2,107 properties were surveyed. Findings indicated that 55 sites are considered direct or indirect sources of pollution within this area, and 48 of these sites involve on-site sewage deficiencies. A total of 26 animal pollution sources were identified in this survey. Although pork is processed at two large plants in Smithfield, the industrial wastes produced by these plants now discharges to the HRSD Nansemond Plant (HRSDNP) and not into the Pagan. The Town of Smithfield Sewage Treatment Works connected to the HRSDNP in July, 1996 and the Smithfield High School Plant connected to HRSDNP in August, Other sources of pollution identified in the survey included boating facilities in ten locations where boats are moored, five industrial waste sites, and five solid waste sites. The Pagan River and Jones Creek have been designated by the DSS as condemned Shellfish Area # effective November Much of this area surveyed also corresponds to the location of the County s Newport DSD where continued connection of households to public waste treatment facilities is planned in future years. The Virginia Division of Soil and Water Conservation (VDSWC) recommends control of nonpoint sources of nutrients by best management practices for agriculture such as; maintaining vegetated buffers or filter strips along rivers and tributaries, using grass swales for drainage in agricultural fields, containing animal wastes, and limiting fertilizer applications. The VDSWC also administers the Erosion and Sediment Control Laws, which are enforced by local ordinances. The Blackwater River Basin In 2005, the Virginia Department of Environmental Quality (DEQ) completed a study of the water quality of the Chowan River Basin which includes the Blackwater River and its tributaries. DEQ found portions of the Blackwater River and two tributaries within Isle of Wight County were impaired due to the high levels of fecal coliform bacteria. These tributaries are Mill Swamp and Rattlesnake (Creek) Swamp. The high levels of fecal coliform bacteria are not of concern itself since this bacteria is found in the intestines of human being and animals and aid in the digestion of food. The concern is for the Comprehensive Plan 2-12 Isle of Wight County, Virginia

46 bacteria of pathogenic diseases that may be in the water as indicated by the presence of the fecal coliform bacteria. These harmful bacteria include typhoid fever, viral and bacterial gastroenteritis and hepatitis A. The DEQ has prepared a draft Total Maximum Daily Loads (TMDL) report for the Chowan River Basin. The draft TMDL report details the findings of the study and indicates the total pollutants the water bodies in the Chowan River Basin can assimilate and still meet standards. DEQ has found there are many types of sources for the fecal coliform bacteria including permitted discharges, malfunctioning private sewage disposal systems, pet kennels, livestock and wildlife. DEQ has submitted the draft TMDL report to the U. S. Environmental Protection Agency which accepted the report. Subsequently, DEQ used the findings of the TMDL study to produce an implementation plan that was approved by EPA. The plan outlines solutions for lowering the bacterial sources that impair the Blackwater River. The solutions include: Fencing streams to keep cattle out; Correcting leaks in pipes carrying sewage; and Repairing failing septic systems. In October 2003, the Virginia Department of Health (VDH) issued a Mercury Fish Consumption Advisory for the Blackwater River due to high levels of mercury found in the tissue of fish taken from the waterway. The advisory suggests limiting consumption of certain fish species to no more than two meals per month. The mercury is believed to be deposited via the atmosphere from both manufactured and natural sources. Manufactured sources generally originate at industrial operations such as incinerators and coal burning power plants. Volcanoes and forest fires are the major natural sources. Exact figures are unknown but some experts believe as much as 50 percent of the atmospheric mercury comes from natural sources. Mercury is a natural occurring element that can be found almost anywhere in the environment at levels that are not harmful to people and wildlife. The problem occurs when mercury is concentrated to levels harmful to people. This happens when mercury is removed from the atmosphere by rain and then deposited in water bodies such as the Blackwater River and its tributaries. The mercury then enters into the food chain and is concentrated as consumption continues up the food chain to humans who eat fish taken from waterbodies found to have higher than normal levels of mercury. VDH is continuing to monitor mercury in fish tissue samples and will issue updated advisories as needed. DEQ is monitoring the water quality from samples taken from the river while an atmospheric monitor, located at Harcum, Virginia, samples mercury deposition for the region. Ragged Island Creek Exceptional Waterway Designation In 2005, DEQ designated Ragged Island Creek as an Exceptional Waterway. The effort to proclaim Ragged Island Creek as an exceptional waterway was a three year process from a grass roots effort spearheaded by the Isle of Wight Citizens Association. By working together with the local government this waterway will be protected from degradation for future generations to enjoy. The Exceptional Waterway program is also referred to as Tier III water by DEQ. The creek was determined to meet the criteria set forth in the program for its environmental setting, exceptional aquatic community and recreational opportunities. Ragged Island Creek is located in the northern part of Isle Of Wight County and consists of 1,537 acres. The salt marshes located around the water segment are stated by the Virginia Institute of Marine Science to be the largest undisturbed brackish marsh system still remaining on the James River. Comprehensive Plan 2-13 Isle of Wight County, Virginia

47 Ragged Island Creek Exceptional Waterway is protected by and accessed through the Management Area owned and operated by the State of Virginia. The topography of Ragged Island Creek creates isolation from further encroachment by development but also enhances wildlife habitat and provides an undisturbed spawning ground for a variety of aquatic life. Isle of Wight County has confirmed its commitment to the protection of our natural resources by recognizing this valuable waterway. Isle of Wight County is home to the state s only tidal and brackish Exceptional Waterway. The County should encourage ecotourism in the future so all natural resources located within the county can be highlighted and utilized by visitors and residents. Submerged Aquatic Vegetation (SAV) Submerged aquatic vegetation (SAV) responds to light, energy, and water quality conditions during the growing season. For this reason, beds may be ephemeral from year to year. In addition, conditions may return that promote recovery of SAV in historically vegetated but currently unvegetated areas. Historically, no SAV beds have been known to occur along Isle of Wight County s shoreline, and there were no SAV beds found by the most recent survey by VIMS in The County s shoreline was also not included in the Chesapeake Bay Programs Tier 1 or Tier 2 SAV target restoration area. The County s shoreline was, however, included in the Tier 3 SAV target restoration area. Excess nutrients and chronically high turbidity levels are thought to play key roles in the decline of SAV. Therefore, upland activities such as reforestation or other measures that reduce nutrient inputs and suspended solids to adjacent water bodies are recommended. Later sections of this plan element provide recommendations for protection of near-shore water areas that represent potential areas for SAV recovery, even though none are currently documented to exist in shoreline areas of the County. Commercially and Recreationally Important Fisheries The U.S. Army Corps of Engineers (1996) Final Feasibility and Environmental Assessment: Jones Creek, Isle of Wight County, Virginia notes that resident finfish species in the lower James River and in the Pagan River/Jones Creek estuary include Atlantic silversides, Atlantic croaker, striped anchovy, spot, weakfish, hogchoker, bluefish, naked goby, oyster toadfish, skilletfish, blackcheek tonguefish, summer flounder, and black seabass. Bluefish, flounder, and seabass are commercially important species, while spot and croaker are popular sportfish. The study states that temperature is the major factor affecting the distribution of resident fishes in winter, and food availability determines distribution in the summer. A review of Environmental Sensitivity Index (ESI) maps 66,67, 68 and 71 indicate that in addition to the species above, alewife and Atlantic menhaden are also known to occur in the waters off the County s shoreline. The lower James and its tributaries serve as nursery, spawning, and feeding grounds for both resident and anadromous fish. Anadromous species that utilize the lower James as spawning grounds include striped bass and American shad. The 1996 Corps study notes that a portion of the James River, just upriver from the Pagan River, is one of the only remaining Chesapeake Bay tributaries with measurable amounts of oysters. The majority of oysters harvested in Virginia waters come from this area. Private shellfishing leases are still prevalent on the submerged lands along the County s James River shoreline and the mouth and Comprehensive Plan 2-14 Isle of Wight County, Virginia

48 main stem of the Pagan River and Chuckatuck Creek. This area also contains soft clam beds. An extensive shellfish seed area is located along the shoreline of Morgarts Beach. There are four shellfish condemnation areas within the County. These include the following along with their effective dates: Number 80 (Chuckatuck Creek ), Number (Kings and Ballard Creeks ), Number (Lawnes Creek and Tylers Beach Boat Basin ) and Number (Pagan River and Jones Creek ). Maps showing the location of these condemned areas are available at the County Office of Planning and Zoning. According to a 2005 report by the Virginia Institute of Marine Science (VIMS) titled, Economic Contributions of Virginia s Commercial Seafood and Recreational Fishing Industries: A User s Manual for Assessing Economic Impacts, (VIMS Marine Resource Report Number ), the economic contributions for the commercial seafood industry has declined across Virginia. Whereas in 1994, the seafood industry generated $579 million dollars in sales or output statewide, the industry only generated $407.0 million in 2004, representing a 30% decline. The VIM s report Virginia s Commercial Fishing Industry: Its Economic Performance and Contributions (VIMS, 1997) indicated 117 people in Isle of Wight County derived all or part of their incomes from commercial fishing in The total value of commercial fish landings in 1994 was approximately $266,500. In contrast, the 2005 Study found that only 4 people in the County were employed either full-time or part-time in the commercial seafood industry, and the value of commercial fish landings in Isle of Wight County had decreased to $1,995. The 2005 VIMS study attributed the decline in the State s commercial seafood industry to several factors, including leakages or expenditures on goods and services which leave the state, increasing reliance of product from both other areas of the United States and other nations, and the potential impacts from damage from Hurricane Isabel in late The value of the fishing industry to the County underscores the need for the County to enhance efforts to manage land use to protect the fisheries from land-based disturbances and activities that can adversely impact water quality. Public Access to Waterfront Areas Existing Facilities There are a total of seven public shoreline and water access facility locations in the Chesapeake Bay watershed portions of the County based on HRPDC s Regional Shoreline Study (Isle of Wight County Data Package Component) conducted in Three of these facilities are public boat ramps. Table 2-3 identifies each of these locations and their facilities to support various recreational activities at each one. Within the County along the Blackwater River, small waterfront park facilities in combination with a boat ramp are located adjacent to the City of Franklin. Several canoe put-in/take-out locations are provided upstream at Blackwater Bridge crossing (Route 603) and the Joyners Bridge crossing (Route 611). The Virginia 2002 Outdoors Plan designates the Blackwater River as a Potential Component for possible designation as a Virginia Scenic River. In addition, there are 6 privately owned access facilities, either in the form of marinas or boat ramps. Table 2-4 identifies these private facilities and improvements and slip capacity at each one. The Waters of Southeastern Virginia (SVPDC, 1988) noted that waterways in Isle of Wight County Comprehensive Plan 2-15 Isle of Wight County, Virginia

49 experience less demand for boat access facilities than communities located in other portions of the Southside Hampton Roads region. Primarily a function of location, the County simply does not provide as direct and convenient access to the lower Chesapeake Bay and/or Atlantic Ocean as localities in more eastern locations within the region. Table 2-3 Existing Public Shoreline and Water Access Points -- Isle of Wight County Public 1 Access Burnt Mill Bridge 2 Tyler s Beach Ramp 3 Fort Boykin Park 4 Ragged Island WMA 5 Carrollton Nike Park 6 Jones Creek Ramp Day Use Seasonal Use Fee or Permit Shoulder Parking x Limited Parking Lot X Large Parking Lot Boat Launch Ramp Car Top Boat Only Pier or Bank Fishing x x Swimming Beach Hiking Nature Study Picnicking Restrooms x x x x x Hunting x x x x x x x x x x x x x Handicapped Access Source: Virginia Department of Game and Inland Fisheries, Chesapeake Bay & Susquehanna River Public Access Guide, Commonwealth of Virginia, Department of Conservation and Recreation, Isle of Wight Parks and Recreation, Table 2-4 Marina Facilities -- Isle of Wight County FACILITY #OF RAMP PUMPOUT RESTROOMS MEALS SLIPS Brown s Marina 65 x X x Gatling Pointe Marina 68 x X x Rescue Marina x X x Rescue Yacht Basin 19 x X Smithfield Station 78 x X x Rushmere Shores Community Landing x Comprehensive Plan 2-16 Isle of Wight County, Virginia

50 Sources: Boat Holding Tank Pump-Out Facilities in Virginia, VA Department of Health, January 1, Inventory of Outdoor Recreation and Open Space Resources in Virginia s Coastal Zone, VA DCR, The Waters of Southeastern Virginia, SVPDC, Boating Almanac Vol. 4, Boating Almanac Co., Inc., ADC s Waterproof Chartbook of the Chesapeake Bay, ADC, Despite this finding, the study indicated that demand for boating access at the downstream portions of the Pagan River and Chuckatuck Creek was not being adequately met. This is still the case since no new boating access facilities have been constructed in these locations since that time, with the exception of double lane boat ramp improvements at Jones Creek. In addition to lack of boating access in downstream areas, the study also observed a lack of pedestrian access to the shoreline. To improve this condition, the study recommended that the County work to provide passive waterfront recreation facilities at Fort Boykin Historic Park. Since that time, this recommendation has been implemented by the County; however, the stairs which provide access to the shoreline in this location have been damaged by erosion. Public Access Facility Development Constraints The Waters of Southeastern Virginia (SVPDC, 1988), notes that providing more pedestrian or boating access in Isle of Wight County is difficult due to the fact that most of the County shoreline is either privately owned or publicly owned but inaccessible. Although the James River and Hampton Roads proper are heavily used by recreational boaters, the potential for developing water access facilities along their shorelines is extremely limited. The SVPDC study notes that nearly all the waterfront is privately owned and, due to long fetches along most of the shoreline, boat ramp or marina development would require substantial investment in costly wave barriers. Opportunities for the development of swimming beaches and shore fishing areas is also limited because existing beaches are narrow, vegetated, composed of clay and rocks, fronted by bluffs, or often fronted by fringe marshes and tidal flats. The Chesapeake Bay Public Access Plan (Chesapeake Bay Program, 1990) noted that along the James River, potential boating constraints include: high waves; wind; fog; shifting shoals and channels; submerged uncharted fish trap structures; large commercial vessels; and a regulation that requires boats to maintain a minimum of 500 feet from the anchorage of the U.S. Maritime Administration s James River Reserve Fleet. The Chesapeake Bay Public Access Plan also noted that potential waterfront access constraints in the Pagan River System include shallow water and low vertical bridge clearances ranging from 7 to 17 feet for 5 bridges that are part of the road network crossing various reaches of the river or its tributaries. Boating constraints on Lawnes Creek include shallow water, shoaling near the mouth of the Creek, and a low vertical clearance under Burnt Mill Bridge. On the Chuckatuck, the primary constraint is its shallowness. Potential Public Waterfront Access Opportunities and Options Despite a number of constraints, the need for water-oriented recreational facilities in the County Comprehensive Plan 2-17 Isle of Wight County, Virginia

51 remains. A few isolated areas do provide enough shelter for boat access facilities, and the scenic vistas provided by bluffs found along much of the shoreline suggest that there are better opportunities for passive waterfront park facilities and greenways. Finally, HRPDC notes in its County Data Package prepared as part of the 1998 Shoreline Study conducted on the County s behalf, that in areas where shore fishing is precluded by unfavorable shoreline characteristics, over water piers might provide a means of enhancing fishing opportunities. Waterfront access facilities, particularly boating facilities, can adversely impact shorelines through boat wakes. Possible options for both managing and enhancing waterfront access while protecting environmental resources include: Examining opportunities for greater utilization of existing locations for both access and recreational fishing. Possible locations for additional over-water fishing piers or platforms include Ragged Island WMA, the U.S. 17 James River Bridge, and Fort Boykin Historic Park. Evaluating waterfront parcels to determine their potential for future boating access and attendant mooring facilities. Although much of the James River is inappropriate for boating facilities, shoreline reaches from Holly Point to Day s Point should be examined. This reach may be most suitable due to lower rates of erosion in these areas. Other areas that may be suitable for limited boating facilities include lands near Battery Park and Rescue near the confluence of Jones Creek and the Pagan River. Multiple use of such space for waterfront access as well as a broader range of passive recreation facilities and greenways including hiker/biker trails should be considered and encouraged, when practical. Since waterfront development opportunities for boating facilities are constrained in the County, encourage expansion of existing boating facilities like those at Rescue, or Brown s Marina, when such expansion can be accommodated with fewer water quality impacts than new facilities might have in currently undeveloped locations. Use of small locally or state-owned parcels for boat ramp facilities to enhance shoreline or water access, such as small sections of shoreline located at the end of road rights-of-way, or at bridge crossings. Such locations may include the Route 10 Bridge crossing at Cypress Creek, Carrollton Nike Park at Jones Creek, and the 460 Corridor-Blackwater River crossing near Zuni. The Virginia Departments of Transportation and Conservation and Recreation should work with the County to explore the feasibility of adding pedestrian walkways beneath (or attached to) new bridges, for use by fishermen and the development of formal or informal canoe put in/take out areas. Implementing recommendations for creation of scenic waterway trails utilizing Lawnes Creek, the Pagan River/Jones Creek, and the Blackwater River as recommended in The Waters of Southeast Virginia (SVPDC, 1988). Identifing appropriate locations for development of greenways and mapping their locations as a basis to secure easements or rights-of-way for access and use as part of the rezoning process or as a condition of development approval. Utilizing rezoning negotiations to secure public waterfront access facilities as a condition for rezonings. Utilizing density bonuses for future developments adjacent to developed shoreline areas which provide waterfront access, parking, boat ramp facilities, dedicated greenways or other water access facilities provided they are publicly accessible. Comprehensive Plan 2-18 Isle of Wight County, Virginia

52 Modifying development regulations to establish a minimum shoreline lot width in future developments to limit the number of future waterfront lots and attendant pier facilities along shoreline reaches in the County that require access through the Chesapeake Bay Resource Protection Area. Establish standards for community pier facilities in future waterfront developments, and encourage use of such facilities as an alternative to individual private piers. Such facilities provide better control over boating activities that can adversely impact water quality. For example, dockside pump-out facilities are required by the Virginia Department of Health for a community pier or mooring area of ten slips or more. Shoreline Conditions and Shore Erosion Characteristics Isle of Wight County s shoreline includes approximately miles or 679,000 feet of shoreline within the County s Chesapeake Bay watershed, not including water supply reservoirs. This watershed is located in the James River sub-basin from the Fall Line to Hampton Roads. This subbasin includes the following waterbodies within the County: Lawnes Creek Cooper Creek Little Creek Pagan River Ragged Island Creek Mount Holly Creek Jones Creek Wrens Millpond Cypress Creek Ballard Creek Lawson Creek Lake Tormentor Kings Creek Blairs Creek Moone Creek Town Farm Creek Carollton Brook Titus Creek Winall Creek Brewers Creek Smith Neck Creek Creer Creek Swamp Creek Lawnes Creek forms a political boundary between the County and Surry County to the west, and Brewer s Creek and Chuckatuck Creeks form the political boundary between the County and City of Suffolk to the east. Portions of the County lie in the watershed of several drinking water supply reservoirs located in the City of Suffolk. Lake Burnt Mills is the only water supply reservoir that lies within the County s boundaries. The vast majority of the County s 679,000 feet of shoreline within the Chesapeake Bay Watershed is unaltered and remains in a natural condition. The Environmental Sensitivity Index (ESI) Map Atlas for Virginia (Maps #66, 67, 68 and 71) indicates a wide range of shoreline features are present in these areas including, fringing intertidal marshes, extensive intertidal marshes, exposed tidal flats, sheltered tidal flats, freshwater marshes and swamps, and exposed fine sand beaches. An estimated 22,200 feet or 3.3% of the County s Chesapeake Bay Watershed shoreline has been hardened with structural shoreline erosion controls, much of which is located along the James River. James River Much of the James River shorefront is composed of sediment banks which are made up of a mixture of gravel, sand, silt, and clay and resemble small cliffs along the shoreline. They range in height from a few feet to over 30 feet above mean high tide. At the base of sediment banks, a sandy beach is often found. The source of sand which creates the beach is often from erosion of the bank. An actively eroding sediment bank is characterized by a nearly vertical bluff, with fallen trees and Comprehensive Plan 2-19 Isle of Wight County, Virginia

53 logs littering the fronting beach. Sediment bank erosion can be a result of two processes, subaerial erosion and marine erosion (Emery and Kuhn, 1982). The first process, subaerial erosion is a result of surface water and ground water flow. Surface water flow, in the form of runoff after rain events, can drain over the bank and cause erosion as evidenced by the formation of rills and gullies on the bank face. The second process, marine erosion, occurs at the base of a sediment bank and is primarily caused by wave action. In marine erosion, waves steepen and undercut the base of a sediment bank, causing bank failure or collapse. Approximately 21 miles of the County s shoreline is located along the James River. Past studies conducted by the Virginia Institute of Marine Science (VIMS) in 1975 and 1992 as well as field studies performed by the Hampton Roads Regional Planning District Commission (HRPDC) all indicate that severe erosion in the County is limited to selected reaches of shoreline along the James River, which is exposed to the greatest fetch and wave energies. Moreover, its northern orientation exposes it to strong northerly winds typical of late fall through early spring, further exacerbating the severity of erosion in several reaches of this shoreline. Map 2-3 identifies five segments or reaches of the James River shoreline. Conditions within each of these shoreline reaches and recommended appropriate methods for providing erosion control treatment for each reach are identified in Table 2-5. Comprehensive Plan 2-20 Isle of Wight County, Virginia

54 Shoreline Reach Reach #1 Lawnes Point to Holly Point Reach #2 Holly Point to Fort Boykin Reach #3 Fort Boykin to Days Point Reach #4 Goodwin Point to Ragged Island Creek Reach #5 Ragged Island Creek to Chuckatuck Creek Shoreline Character low bluff shoreline with fronting beach similar to preceding reach with somewhat higher bluffs and wider beaches high bluffs, and a moderately wide beach low bluff shoreline. Substantial area Shoreline is largely undeveloped Limited development that exists is removed from shoreline Table 2-5 Assessment of Erosion Characteristics/ James River Shoreline Rates of Erosion moderate erosion rates 1.9 feet/year along undeveloped shoreline from Lawnes Point and one mile south. Further south to Holly Point rates decrease to 1.2 feet/year. slight rates of less than 1 foot/year. Area of Fort Boykin and immediately west rates are higher. severe erosion rates up to 3.8 feet/year. Rates stabilize when James River Reserve Fleet acts as temporary breakwater offshore. Historically ranges from 1.2 to 2.6 feet/year. Rate has increased to 3.7 feet per year at Goodwin Point/James River Heights. Moderate erosion rate of 1.2 feet/year Preferred Erosion Control Method Slope grading and terracing with vegetative stabilization. Where not feasible, in order of preference, drainage improvements, revetments, breakwaters, groins, and bulkheads or combination. Minimal needs for erosion control. Where needed, non-structural methods preferred, such as slope terracing, grading and vegetative stabilization. In order of preference, slope grading and terracing with vegetative stabilization, revetments, breakwaters, groins, and bulkheads or combination of above. Due to higher rates, vegetative stabilization may not be effective. Area know as James River heights extensively stabilized with series of bulkhead, revetments and groins. Additional structural protection preferred in this area. Slope grading and terracing with vegetative stabilization. Where not feasible, in order of preference, drainage improvements, revetments, breakwaters, groins, and bulkheads or combination. Additional Observations/ Comments 1993 review of HRPDC visual survey indicates that groins in the area of Rushmere Shores were not effective in trapping sand. Groins appear successful in trapping sand in areas north and south of Rushmere Shores. Existing Bulkheads have caused loss or narrowing of fronting beaches or any fronting offshore marshes that may have existed. Bulkheads and groins to the west of Fort Boykin appear ineffective in trapping sand and shows loss of fronting beach in some areas proposal to install seven offshore breakwaters with beachfill noted area of Fort Boykin and area immediately west were showing higher rates of erosion. This reach of shoreline has substantial forest and agricultural use and is largely undeveloped. Observations from 1993 shoreline video and 1995 and 1998 aerial photographs, indicate groins and breakwaters successful in containing sand in this reach. Two erosion control projects ( 9 breakwaters affecting 2,000 feet of shoreline just east of Fort Boykin and breakwaters along 3,400 feet of shoreline just west of Day s Point) completed in mid-1990's appear effective based on-site visits and review of 1998 aerial ortho photo s. Beyond Goodwin Point, near community of James River Shores the shoreline appears stable with little or no erosion. From James River Shores to Ragged Island WMA evidences modest rates of erosion but does not pose threats since undeveloped. Area should remain undeveloped. Bulkhead erected along a small developed stretch of this shoreline has caused narrowing of fronting marsh and beach but downstream erosion does not appear to be occurring. Sources: Virginia Institute of Marine Science (VIMS) 1975 and 1992; Hampton Roads Planning District Commission, Shoreline Study, 1997; Redman/Johnston Associates Review of County Ortho Photos, 1998 Pagan River and Chuckatuck Creek Shorelines In general, the shorelines of the Pagan River and its tributaries are relatively stable. In this area, vegetative and non-structural erosion control methods, such as marsh creation, should be encouraged and structural controls should be considered only in such isolated cases where the severity of erosion prompts consideration of structural alternatives. In areas where significant erosion occurs as a result of boat wake, vegetative stabilization should be used in conjunction with the establishment of a slow- Comprehensive Plan 2-21 Isle of Wight County, Virginia

55 no wake zone. The Chuckatuck Creek shoreline is stable and the need for erosion control in this area is minimal. Vegetative stabilization through marsh creation is the preferred means of protection in those cases where it may be needed. Structural stabilization should be used only when and if it is required in association with design and construction of boat docking facilities, or in isolated circumstances where more moderate rates of erosion may exist. Shoreline Erosion Variables A number of variables influence whether or not a shoreline erodes and to what degree. The Virginia Institute of Marine Science (VIMS) developed a computer program, the Shoreline Erosion Assessment software (SEASware), that evaluates the erosion potential of a shoreline reach by examining 13 factors that influence shoreline erosion. These factors include: Fetch One of the most important factors in determining the occurrence and severity of erosion. Fetch is the distance that wind can blow over an unobstructed body of water before striking the shoreline. The larger the fetch, the larger the waves since waves are created by wind blowing over the surface of the water. Stronger winds that blow over a longer fetch for a sustained period produce the largest waves, which cause the greatest erosion. Depth Offshore A broad, gently sloping, shallow near-shore area, such as a tidal flat, serves to dissipate waves coming towards the shore, tending to reduce erosion. Deeper water, close to shore is an indicator of greater erosional force. Offshore features, such as shoals, may reduce wave energy in one area but may also serve to focus wave energies along other stretches of the shoreline, increasing erosion rates in these areas. Shoreline Orientation Shorelines in Isle of Wight County that face north tend to erode 2-3 times faster than shorelines that face south (Hardaway and Anderson, 1980). Shoreline Geometry In general, irregular shorelines erode less than straight ones. An irregular shoreline creates its own protective features since coves may be sheltered by points of land or areas may be protected by patches of marsh or vegetation. A straight shoreline typically lacks protective features. Boat Wakes Wake induced erosion will depend on boating traffic, boat speeds, the distance from the shoreline to the navigable channel and other factors. The degree to which boat wakes are responsible for shoreline erosion can sometimes be difficult to determine. Comprehensive Plan 2-22 Isle of Wight County, Virginia

56 Bank Height High banks erode more slowly than low ones. When wave action undercuts the base of the bank, it eventually slumps and fails. Sediment from the top of the bank is deposited at its base. This material then protects the base from erosion until it is washed away by wave action. Since a higher bank deposits more sediment at its base, it takes longer for the material at the base of a high bank to erode, thus providing longer protection. Bank Base Composition Bank bases made of rock, cemented sand, hard marls and tight clays are more resistant to erosion than those made of unconsolidated sands and clays. Beach/Intertidal Marsh Width A beach or marsh can act as a buffer between waves and the base of a bank or shoreline. The wider these features, the greater protection they afford. Abundance of Vegetation The presence of vegetation on a shoreline or bank can serve to stabilize it by holding sediment in place. Vegetation in the near-shore area, such as cypress trees, submerged grasses or marsh grasses can reduce wave energy as it approaches the shoreline. Other variables that influence the rate and characteristics of shoreline erosion include: Man-made shoreline structures Ground water drainage characteristics Surface water drainage characteristics Storms (their frequency, duration, and intensity) Sea-level rise The cause of an observed erosion problem may include one or several of these 13 factors. To determine the exact cause or causes of erosion at a particular site, a qualified professional engineer or geologist should be consulted. The Shoreline Erosion Advisory Service (SEAS) has a shoreline engineer who is available to assist homeowners and the County at the Department of Conservation and Recreation s Albemarle, Chowan and Coastal Watersheds Office located in Suffolk. Shoreline Erosion Control Management Considerations Although shoreline erosion is of obvious concern to riparian property owners, such erosion may not be as great a concern from an overall County perspective unless development is present along the shoreline and placing properties and their improvements at risk. For example, the shorelines of barrier islands on the Eastern Shore of Virginia are eroding at great rates, yet because they are uninhabited, there is no perceived problem. Moreover, examination of those island shorelines indicates that they often have wide and healthy beaches in spite of severe erosion rates. Beaches and wetlands naturally preserve themselves by retreating or physically moving back in response to coastal processes. When fixed structures are placed on a retreating shoreline, they can hinder this natural process, by precluding natural shoreline retreat. Such structures can also potentially cause the loss of recreational and wildlife resources, beaches and wetlands. When residences and businesses are Comprehensive Plan 2-23 Isle of Wight County, Virginia

57 constructed on a retreating shoreline, property is placed at risk. Thus, one strategy that may be appropriate for the County is to maintain any reaches of eroding undeveloped shoreline as open space or to, at least, limit development in such areas. When some form of erosion control is necessary, community goals for the ultimate use of the shoreline, cost, wave climate and an assessment of the 13 variables previously discussed should determine which method of treatment is most appropriate. The most appropriate method of treatment will typically involve not just one of the approaches discussed below but will involve several in combination. For example, several recent erosion control projects in the County, along the James River, utilize a combination of breakwaters, beach nourishment, revetment, and bluff regrading with vegetative stabilization. Structural controls include: Bulkheads Groins Breakwaters Submerged sills (less commonly used) Revetments (Rip rap) Geotextile tubes Drainage Improvements Non-structural controls include: Beach Nourishment Dune Restoration/Creation Bluff grading and terracing (usually enhanced with vegetative plantings) Vegetative Stabilization Relocation of Structures (not preferred) Each of these measures are fully described and their respective advantages and disadvantages for application are identified in the June, 1999 publication prepared by HRPDC entitled Guidance Manual: Erosion Control Issues and Options. Determining which combination of erosion control approaches may be most successful, cost-effective or otherwise appropriate in a given circumstance or situation, particularly in high rate erosion locations, is often a challenging task. Several sources of assistance to both the County and homeowners are available in evaluating options and selecting appropriate design solutions. They include: Virginia Department of Conservation and Recreation s Shoreline Advisory Service. (A shoreline engineer, located in Suffolk, is available to provide free technical design assistance on erosion control measures to both local governments and homeowners). Virginia Marine Resources Commission (VMRC) (Proper design and construction information for erosion control structures, boating facilities, dredging, and in-stream structures is provided in VMRC s publication Shoreline Development BMP s: Best Management Practices for Shoreline Development Activities Which Encroach In, On, or Over Virginia s Tidal Comprehensive Plan 2-24 Isle of Wight County, Virginia

58 Wetlands, Coastal Primary Sand dunes and Beaches and Submerged Lands). Virginia Institute of Marine Science (VIMS) Chesapeake Bay Local Assistance Board (CBLAB) Although such assistance is available for more complex erosion control circumstances, the shoreline surveys performed in the County indicate that in most circumstances, particularly for sites located along tributaries to the James River, that vegetative stabilization and grading is generally suitable for treatment of most sites. Such treatment will typically be more cost-effective in these locations than structural solutions. Non Structural erosion controls, particularly vegetative stabilization should be the preferred means of treatment by property owners where conditions permit them to be effective. Such measures provide environmental benefits since they establish wetland vegetation at the shoreline creating habitat for fish, shellfish, birds, and other wildlife. Where such measures may be inadequate, stone revetments or rip-rap is preferred to bulkheads. This preference is due to the fact that wave energies are typically reflected from bulkheads, creating turbulence and bottom scouring which create a less suitable near shore environment for wetlands or submerged aquatic vegetation which serves as nursery area for finfish and shellfish. Figure 2-1 Finally, it should be noted that successful erosion control efforts, particularly in locations along the James River, virtually require taking a reach-wide or system-wide approach as opposed to an individual site by site or piecemeal approach. (See Figure 2-2) Comprehensive Plan 2-25 Isle of Wight County, Virginia

59 A reach is a segment of shoreline that may range from a few yards to miles, where shoreline processes are interrelated (Ward et al., 1989). A reach-wide approach coordinates erosion control efforts along a stretch of shoreline where an action to control erosion in one location can, or is likely to have impacts on adjacent properties or other locations. Addressing shoreline erosion on a reach-wide basis results in a more cost-effective approach and allows any negative impacts on adjacent properties to be addressed before they occur. This is particularly true in locations where higher rates of erosion are evident and patterns of sand transport are pronounced. Shoreline Erosion Control Management Options A number of shoreline erosion control management options are available to the County. Applying some combination of these options can clearly enhance County efforts to provide treatments that are appropriate for erosion control in Isle of Wight. They include: The Comprehensive Plan and Zoning Ordinance Both the Plan and Zoning Ordinance can be used to limit or prohibit development along highly eroding shorelines and/or reduce the amount of threatened property. The Plan and Zoning Ordinance can also specify more restrictive shorefront setback requirements for high rate erosion areas, impervious surface limits in near - shore areas, and support stormwater management requirements. The County s Resource Protection Area designation can also be used to limit development or maintain open space in certain areas where shore erosion forces, in combination with the presence of other environmental resources that are sensitive to land disturbances, may be located. Setbacks Although setback requirements are typically used to separate structures and ensure land is available for public improvements such as roads, setbacks in eroding areas can ensure that buildings are placed a sufficient distance away from an eroding shorefront to reduce threats to the investment in property improvements. Setbacks can also assure that naturally protective features like dunes or established shoreline vegetation are preserved. The Chesapeake Bay Preservation Act currently establishes a state mandated 100 foot buffer from shorefronts within the County that are located in the Chesapeake watershed which includes all portions of the Newport DSD (see land use plan element). For more heavily eroding shorefronts, where the rate of erosion equals or exceeds two (2) feet per year, additional protection can be provided by basing the setback on the existing erosion rate adjacent to a particular site where improvements are proposed. By way of example, the construction setback (in feet) in many communities is determined by multiplying the rate of erosion times some base figure, typically ranging from 30 to 60 feet. In Isle of Wight using a multiplier of 50 feet for each foot/year of existing erosion rate would assure greater separation of structures from the shorefront than the Resource Protection Area (RPA) currently affords when applied to all sites where the erosion rate exceeds 2 feet per year (e.g. Rate of erosion (3 ft./yr.) times 50 feet would yield a 150 foot setback. The Virginia Department of Conservation and Recreation, Shoreline Erosion Advisory Service suggest the following Comprehensive Plan 2-26 Isle of Wight County, Virginia

60 formulas for determining an adequate setback as shown in Figure 2-3. Figure 2-2 If no erosion control is planned for a shoreline reach, then: Setback (ft.) = 25 ft. + (bank height x 2) + (annual erosion rate x 50) OR required CBPA 100 foot buffer, whichever is greater If some type of erosion control is planned for a shoreline reach, then: Setback (ft.) = 25 ft. + (bank height x 2) OR required CBPA 100 foot buffer, whichever is greater Source: Regional Shoreline Element of Comprehensive Plans, Hampton Roads Planning District, Part 1: Guidance Manual, June 1999 Density standards and limits Reducing the number of dwelling units in shoreline areas reduces risk of threat to property and reduces the amount of runoff entering adjacent waterways that contribute to shoreline erosion. Requiring larger lot sizes near the shoreline is one means of reducing the number of dwelling units placed at risk. However, this may result in sprawling and inefficient development patterns. A preferred option would be to limit overall density in near-shore areas, and to encourage clustering of development. Clustering Clustering may be required or encouraged through limited bonus density incentives. Under this approach, development disturbances and infrastructure can be concentrated within a smaller development envelope on the site, removed from higher erosion rate areas. Lands located outside the development envelope on the site remain undeveloped and in agricultural use or open space. Bonus or Incentive Zoning Investments in shoreline protection, particularly those of a structural nature can be quite costly. Since such investments should be encouraged to benefit both the County and affected site property owners, the County could provide an incentive for such investment in the form of a density increase for shore erosion mitigation efforts. Differential Taxation Preferred shoreline land uses can be given a reduced property tax rate to provide an incentive to maintain those uses. Such uses might include those which place the least amount of land at risk or remain unimproved. Such areas might include open space, forestland, and farmland. Comprehensive Plan 2-27 Isle of Wight County, Virginia

61 Dedicated riparian buffers also provide opportunities for their utilization as greenways. Subdivision Regulations Subdivision Regulations should include standards for how land near the shoreline may be developed in a manner that places the least amount of property at risk. Regulations should require protection of all naturally protective features in the near-shore zone including dunes, wetlands and vegetation. Impervious surface limits can be established to control runoff, which could contribute to bank erosion. Finally, requirements for deeper lots perpendicular to the shore, can facilitate siting and relocation of buildings back to a safer area removed from unprotected shorefronts. Deed Disclosure Communities should require that a buyer be made aware of a property s erosion rate during the real estate transaction process to discourage investments in locations that are more severely threatened by shoreline erosion. Managing the Location of Public Facilities Since the location of roads, utility services, and other public facilities can influence the rate, timing and location of development, installation of these facilities in locations that may encourage development in or near severely eroding areas should be avoided where possible. No Wake Zones Where shoreline erosion is largely a result of boat traffic, a slow or no wake zone may be established to reduce boat speeds. The state allows local governing bodies to establish such zones by formal resolution, with the approval of the Virginia Department of Game and Inland Fisheries. Few studies exist, however, to document their effectiveness. Shorelines with the following characteristics are likely to be more susceptible to boat wake induced erosion: exposed points of land in narrow creeks or coves shorelines consisting of easily erodible soils shorelines where the near-shore bathymetry is steep; and shorelines adjacent to areas with a high rate of boating activity, particularly where activity is close to the shore. Shore Erosion Control Special Taxing Districts Formation of erosion control Special Taxing Districts can encourage property owners to take a reach-wide or system-wide approach as opposed to an individual site by site or piecemeal approach to erosion problems. Under such an arrangement the County permits the formation of such districts and may even extend financing to a group of owners along a particular reach of shoreline to provide appropriate structural or non-structural treatment. The County would review and approve plans for treatment, establish a formula for repayment of debt, and would bill property owners for the expense of treatment over a 5 to 10 year period. Comprehensive Plan 2-28 Isle of Wight County, Virginia

62 Education Homebuyers and owners should be made aware of the location of severely eroding shorelines, how to recognize where severe erosion is occurring, and appropriate forms of shoreline erosion control through various media or brochures, such as the Got Buffer? brochure provided by CBLAB. Such information should facilitate better informed decisions in making property investments or better selection of appropriate erosion control treatments. Shoreline erosion management options selected for a particular site will typically depend on the goals for the use of the site, the severity and causes of erosion, and cost. Minimizing environmental impacts to wetlands, aquatic habitat and water quality is a primary goal of the Chesapeake Bay Preservation Act. Table 2-6 presents alternatives for shore erosion treatment, in order of preference, for low, medium and high erosion rate climates that reflect these environmental goals. Table 2-6 Preferred Erosion Control Treatments for Low, Medium and High Rate Conditions. Low Wave Energy (less than one mile of fetch)/ Slight Erosion Rate (< 1 ft/year) Medium Wave Energy (between 1 and 3 miles of fetch)/ Moderate Erosion Rate High Wave Energy (over 3 miles of fetch)/ Severe Erosion Rate (> 3 ft/year) (1-3 ft/year) 1. Vegetative Stabilization 1. Vegetative Stabilization 1. Relocation 2. Revetment 2. Beach Nourishment 2. Beach Nourishment 3. Bulkhead 3. Revetment 3. Revetments 4. Breakwaters 4. Breakwaters 5. Groins 5. Groins 6. Bulkheads (depending onsite conditions) 6. Seawall Source: Maryland Department of Natural Resources. The rankings, or preferences shown in the table are adapted from Maryland tidal wetland protection laws, which are consistent with the goals of the Chesapeake Bay Program. Wetlands Research has concluded that wetlands play a vital role in the environment. Wetlands are valuable for the many physical, hydrological, biological, and cultural functions which they provide. These include: Physical Wetland vegetation and shallow waters absorb coastal wave energy and reduce shore erosion. Wetlands slow water velocities and reduce sediment in the water. Wetland plants and bottom sediments are sinks or collectors of excess nutrients such as nitrates and phosphorous. Wetlands trap water borne heavy metals, herbicides, and pesticides. Wetland plants re-oxygenate water thereby lowering biological oxygen demand. Comprehensive Plan 2-29 Isle of Wight County, Virginia

63 Hydrological Wetlands act as floodways when associated with rivers and adjacent floodplains which convey water downstream. Wetlands store water during floods and release volumes slowly, reducing drastic flood surges. Wetlands, while most often are water discharge areas, also may act as groundwater recharge areas. Biological Wetland plants and invertebrates serve as the basis of a highly productive food chain. Wetlands are nursery and spawning areas for many species of finfish and shellfish. From 60 to 90 percent of commercially caught fish depend on coastal wetlands for food or spawning. Wetlands are also an important habitat for many waterfowl and wildlife species, serving as protective areas for feeding, resting, and breeding. Wetlands are habitat for many rare and endangered species, almost 35 percent of protected animal species are found in wetlands, although wetlands cover only about 5 percent of the nation's land area. Cultural Wetlands often contain important historical and archeological sites since they were early sources of food. Wetlands serve important recreational and commercial values for fishing, hunting, and trapping. Wetlands which are forested may be managed for valuable timber production. Wetlands provide scenic open spaces and often serve as areas for bird and wildlife observation. Tidal wetlands in the County are protected by the 1972 Wetlands Protection Act, as amended. This law requires a special permit prior to starting construction, dredging, or filling a tidal wetland. The Act also empowers local jurisdictions to establish Wetlands Boards which may review and decide permit requests. Isle of Wight County has a Wetlands Board. The Virginia Marine Resources Commission has the ultimate authority to administer the Wetlands Protection Act and reviews all decisions handed down by local boards. Non-tidal wetlands are currently federally regulated by Section 404 of the 1977 Clean Water Act, as amended, which prohibits disposal of dredged or fill material into waters of the United States and adjacent wetlands. This has been broadly interpreted by the Environmental Protection Agency (EPA) to include virtually all surface waters in the nation, regardless of size. The Chesapeake Bay Preservation Act and Chesapeake Bay Preservation Area Designation and Management Regulations establish mandatory provisions for local Tidewater jurisdictions to protect wetlands and water quality. This legislation and its implications for Isle of Wight are discussed later in this chapter. Tidal Marshes There are approximately 5,377 acres of tidal marsh in Isle of Wight County (VIMS, 1981). Of this total, about 3,260 acres are in the Pagan River system and 1,350 are in the Ragged Island Marsh Comprehensive Plan 2-30 Isle of Wight County, Virginia

64 complex located along the James River at the northeastern point of the County (see map 2-1). Additional tidal marshes and flats are found as fringing marsh along the James River shoreline in isolated spots and along Lawnes Creek. With decreases in salinity in the upper reaches of the creeks and rivers, wetlands vegetation becomes more diverse. The species present depend on salinity, marsh elevation, soils, and other factors. Those marshes with the greatest diversity of vegetation, such as those in brackish waters, have the highest wildlife values. Non-tidal Wetlands: Swamps and Pocosins Non-tidal wetlands typically include freshwater swamps, bogs and low lying areas where water stands on or close enough to the surface to create oxygen poor conditions in the soil. Special types of plants called hydrophytes are adapted to these conditions and usually indicate the presence of wetlands. Other non-tidal wetland indicators are waterlogged soils and drainage patterns that show physical evidence of flooding. No comprehensive survey has been compiled on all of Isle of Wight's extensive non-tidal wetlands. The U.S. Fish and Wildlife Service (USFWS) has mapped all County wetlands of three acres or more in size as part of the National Wetlands Inventory. These maps are available for inspection at the County Department of Planning and Zoning. According to the USFWS, priority wetland areas in the County s Chesapeake Bay watershed are Ballard Marsh, Lawnes Creek, Pagan River Marsh, and Ragged Island Wildlife Management Area. Other priority wetland areas associated with the Blackwater River system include Horse Swamp, Corowaugh Swamp, and Blackwater River Swamp. Groundwater Resources and Protection Issues Currently, Isle of Wight s only developed source of water, for both industrial and residential use, is groundwater. Since groundwater is an important source for drinking water for a large portion of Isle of Wight County its protection is important. Individual wells supply 47 % of all housing units, while the remainder utilizes a public or private well-based system for water delivery (U.S. Geological Survey, 2000 ). Water supplies for public water systems are provided by the Western Tidewater Water Authority (WTWA), the City of Franklin and the Town of Windsor. The majority of water utilized throughout the County originates from the three (deeper) confined Potomac aquifers, the Upper, Middle and Lower Potomac aquifers. A smaller number of wells tap shallower unconfined and confined aquifers, such as the Columbia aquifer, the recharge reservoir for the underlying artesian system. Recharge to all local aquifers derives primarily from precipitation in the region. Except in a very narrow zone near the Fall Line along the Coastal Plain s western boundary, the artesian aquifers are recharged principally by vertical leakage from the water table through the confining clays. The deeper Potomac aquifers, vary from a soft to a very hard sodium bicarbonate type, with high chlorides in the eastern half of the Coastal Plain, and the water quality in these aquifers is considered good. High concentrations of fluoride and sodium may limit domestic use of these deep aquifers. Recent actions by the Virginia Department of Health have required detailed evaluation of the fluoride content to insure compliance with the Safe Drinking Water Act. Alternative sources of water are now being explored for a number of public and private water systems, including the WTWA, to achieve acceptable levels of fluoride in drinking water supplies. Filtration of groundwater is also being considered for the removal of fluoride. The Middle and Upper Potomac aquifers provided approximately 76 percent of the total water used in Comprehensive Plan 2-31 Isle of Wight County, Virginia

65 southeastern Virginia in 1983, primarily serving large industrial and municipal needs. The Lower Potomac provided approximately 16 percent of the total water used that same year in the region (USGS in cooperation with the State Water Control Board (SWCB), 1988). Since the early 1900s, increasing demand for groundwater has caused groundwater levels in the Hampton Roads region to decline, resulting in large cones of depression that expand from industrial and population centers such as Franklin. Lower groundwater levels and large cones of depression in the groundwater table increase the potential for saltwater intrusion into drinking water supplies. About a 3,000 square mile area of Southeastern Virginia was designated a Groundwater Management Area in All of Isle of Wight County is included in this area. Within this area, industrial, municipal, or commercial use of more than 300,000 gallons of groundwater per month requires a permit from the Virginia Water Control Board. Declines in the upper aquifers have also occurred. Increased development throughout the region and restrictions imposed during droughts in the 1970's and 80's have encouraged the installation of a large number of wells, which tap the Columbia and Yorktown-Eastover aquifers. Increased use of these aquifers has directly affected water supplies as the water level was lowered to a depth below the intake or pumping level of many local wells (SVPDC, 1990). U.S. Geological Survey (USGS) data estimated County water use by category for 2000, and found that approximately 1,050,000 gallons of water per day were consumed for daily public use, while million gallons per day (MGD) were used for commercial and industrial operations. Studies have been conducted in past years by the Virginia Water Control Board and the U.S. Geological Survey to assess the continued reliability of groundwater resources in Southeast Virginia. Several important conclusions were reached based on this work. First, groundwater levels have declined since 1900; more than 250 feet in the Lower and Middle Potomac Aquifers near Franklin, with declines of at least 30 feet in other areas. In the upper Potomac Aquifer, in the Smithfield area, groundwater levels have declined more than 100 feet. Secondly, the study found that discharges to surface waters have also declined within the region, except for areas where saline waters have entered the groundwater system near the Chesapeake Bay and its major tributaries. Since County public water supplies are taken from deeper confined aquifers, declines in the Potomac Aquifer are of less consequence for water supplies. Because of the potential for pollutants to reach ground water supplies, the federal Safe Drinking Water Act was amended in Among other changes, the amendments called for states to establish wellhead protection programs, which restrict land use activities in the recharge area of public water supply well. Particular attention is given to restricting potentially hazardous uses, such as underground storage tanks, spills and improper disposal of hazardous materials and wastes, surface water impoundments and landfills. Restrictions are also placed on use of septic tanks and application of pesticides and fertilizers. Special provisions for detecting and properly closing abandoned wells are frequently adopted. Ground water use to prevent saltwater encroachment may also be limited. As noted earlier in the Water Quality section of this plan element, approximately 121 failing septic systems, located in the Chuckatuck Creek and Pagan River systems were identified by the Virginia Department of Health, Division of Shellfish Sanitation during Shoreline Sanitary Surveys performed in 2005 and These systems pose a threat to groundwater resources in the County. Leaking underground tanks can also pose threats to groundwater resources. In each case of identified failure of underground storage tanks the State has the authority through DEQ to seek remediation. In recent years, tracking capabilities have improved substantially for all new underground storage tanks. Comprehensive Plan 2-32 Isle of Wight County, Virginia

66 Registration of all regulated underground storage tanks (UST s) with the State has been required since May, Regulated UST s include all farm or residential tanks exceeding 1,100 gallons in storage capacity and all commercial tanks containing regulated substances with a storage capacity greater than 110 gallons. In all instances of installation, upgrade, repair and closure where a UST system is constructed, altered or repaired, a permit must be obtained. Also, the system must be inspected in accordance with State statute (9 VAC ). Owners and operators of UST s are required to take corrective action in the case of any confirmed release of petroleum or hazardous substances. Information obtained from the Virginia Department of Environmental Quality (DEQ) in February 2006 indicates that since 1990 some sixty-two underground petroleum storage tanks located in the County were identified as leaking. Of these 62 releases, 54 have been closed while eight remain active. Continued tracking and permitting requirements for such facilities should minimize risks to groundwater supplies from future installations of such facilities. Abandoned wells can also pose threats to groundwater resources. Wells, if improperly grouted, cased, or abandoned, can serve as a conduit through which the groundwater can become contaminated. The Supervisor for the Isle of Wight County Environmental Health Office, a local office of the Tidewater Health District indicates that many people leave wells in place when a new well is drilled to avoid the cost of formally closing a well as required by regulation. The office further indicated, however, that no problems had been identified with regard to abandoned wells to date and they are not aware of any injection wells in the County which could adversely impact groundwater resources. Continued tracking by the local Health Department, together with enforcement of regulations that assure proper procedures are used as wells are abandoned are prudent measures to minimize future risks to groundwater supplies. Several restrictions presently affect the County s long term prospects for continued use of groundwater for potable consumption. Under the Groundwater Management Act, new or expanded well systems must be permitted by the State Water Control Board. Fluoride removal and disinfection needed to meet state and federal drinking water standards is also required. Since most surface waters in and adjacent to Isle of Wight are not suitable for drinking water supplies without extensive treatment, it is important that the County conserve and protect its groundwater supply. The County has undertaken plans to ensure future water supply. Short and long-term alternatives for water delivery in the Development Service Districts (DSDs) have been identified. In 1998, the County also developed water agreements with the City of Suffolk under the aegis of the Western Tidewater Water Authority. Short-term solutions reflect the continued use of groundwater from existing County and individual wells, and continuing purchases from the Smithfield, Windsor and Franklin water systems. Long-term alternatives depend on the purchase of water from Norfolk, Portsmouth, Virginia Beach and/or Suffolk, in addition to the development of new County wells and storage systems (Gannett Fleming, Inc. 1992). A separate water supply system has been planned for the Camptown DSD which includes 2 wells and a half a million gallon storage tank. The storage tank is in place and receives water from the City of Franklin. The County is currently underway with building the two wells and developing a potential Reverse Osmosis system to remove fluoride. The facility will support the immediate needs prompted by industrial growth in that area of the County and can be expanded to accommodate residential use in the future. Work is also underway in the Windsor DSD in cooperation with the Town of Windsor to meet water supply needs of the district and the Town through use of existing Town wells. Comprehensive Plan 2-33 Isle of Wight County, Virginia

67 The County is investing in fluoride compliance filtration systems and upgrades for the Carrsville and Carisbrooke water systems. While current water supply is from wells in the Town of Smithfield and the County, future plans include working through the Western Tidewater Water Authority to utilize surface water supplies to a greater extent in the future, thereby reducing demand for groundwater withdrawal and treatment. The County s Master Sewer and Water Plan update is anticipated to be completed in March The County is also conducting localized water supply and waste treatment studies to address future needs for potable water supplies and waste treatment facilities to minimize impacts to groundwater resources. These long term efforts combined with continual monitoring of abandoned wells and leaking underground storage tanks through the DEQ and the Health Department are expected to minimize future impacts on groundwater resources. Each of these actions can be expected to reduce the dependency of the County on groundwater supplies. Land Resources Wildlife The numbers and diversity of wildlife species present in an area are determined in part by the quantity and quality of wildlife habitat which is available, especially food availability and cover. The major threat to indigenous species in developing areas is the fracturing and fragmenting of habitat areas. When habitat is cleared for development or agriculture, not only is the cleared habitat area lost, but the habitat quality is also degenerated at the development edge. This results in disturbance to interior habitat areas as well. Certain species of wildlife require large, un-fragmented habitat areas in order to survive. The Virginia Department of Conservation and Historic Resources' Natural Heritage Program and the Department of Game and Inland Fisheries' Fish and Wildlife Information System currently maintain inventories of wildlife resources and habitats for the County. Endangered and threatened plant species are protected by the Virginia Department of Agriculture and Consumer Services, which uses information from the Natural Heritage Program inventory. Forest Resources The forest industry in Isle of Wight County is discussed in the Rural Character and Agricultural Preservation chapter. Forests support not only an industry in the County but are an important feature of the County which affords environmental protection. The patterns of ownership and management of forest resources are important when considering forested areas as biological habitat or for their value in protecting water quality. Forested areas provide habitat for numerous plant and wildlife species and also are an excellent filter area for groundwater recharge. Forests also form an excellent windbreak in agricultural areas and serve to prevent windblown soil erosion. In addition, forested areas serve as an effective visual and noise buffer between land uses. Best management practices for the timber industry ensure the conservation of the County's extensive forest resources. Comprehensive Plan 2-34 Isle of Wight County, Virginia

68 Mineral Resources There are eight active mine permits in Isle of Wight County which are licensed to produce sand, and one active mine permit licensed to produce marl. According to VDMR, 1,048,284 tons of sand were produced in Isle of Wight County in Based on the VDMR Publication 174, Digital Representation of the 1993 Geologic Map of Virginia, the sand was apparently produced from alluvium, the Shirley Formation, the Charles City Formation, and the Yorktown Formation of the Chesapeake Group. The attached geologic map indicates where these formations are exposed and accessible. From 2001 to 2005, 299,908 tons of marl was produced in the County. Based on the VDMR Digital Representation of the 1993 Geologic Map of Virginia, the marl was apparently produced from the Sedgefield Member of the Tabb Formation. There was no reported production of marl in There are 42 identified sand and gravel pits, 1 gravel pit, two marl pits, and one lime quarry that are inactive or historical in Isle of Wight County. Based on the VDMR Publication 174, Digital Representation of the 1993 Geologic Map of Virginia, the historical sand and gravel pits are located in the Sedgefield Member of the Tabb Formation and the Windsor Formation, in addition to alluvium, the Charles City Formation, the Shirley Formation and the Yorktown Formation. The attached geologic map indicates where these formations are exposed and accessible. According to VDMR, the coquina facies of the Yorktown Formation was used as a source of calcium carbonate for cement manufacture. Also, oyster shells were collected from what is now named the Sedgefield Formation, near the confluence of the Pagan and James rivers, to produce lime. In addition, they provided shells that were used for sub-base in highway construction. Two historical marl pits are located on Lake Tormentor; the marl was produced for agricultural purposes. Habitat for Birds of Special Concern Isle of Wight s shoreline serves as a stopover and feeding ground for a wide range of waterfowl during migration periods. Wintering dabblers and divers, as well as summering black ducks are noted along the Chesapeake Bay watershed shorelines on maps developed in March, 1996 by VDGIF. Their mapping further noted the occurrence of colonial water birds in the upper reaches of the Pagan River. VIMS Environmental Sensitivity Index Maps, indicate the occurrence of the following dabbling and diving ducks in the County: Mallard Black Duck Ring necked Duck Blue-winged Teal Wood Duck Ruddy Duck Lesser Scaup Greater Scaup Common goldeneye Canvasback Other observed waterfowl include Oldsquaw, Canada Geese, Whistling swan, King rail and Virginia rails. According to the College of William and Mary s Center for Conservation Biology (1994), there are two active bald eagle breeding territories in Isle of Wight County. One is located along Brewers Creek off of Chuckatuck Creek, and the other is located approximately 4 miles west of the town of Smithfield at the headwaters of the Pagan River. The Center mapped habitat suitability for Bald Eagles (see HRPDC Regional Shoreline Element of Comprehensive Plans Part 1: Appendices, appendix H-2) and noted that both good and usable habitat for the Bald Eagle exists along less Comprehensive Plan 2-35 Isle of Wight County, Virginia

69 developed portions of the County s Chesapeake Bay Watershed shoreline. Natural Heritage Resources (Areas of Ecological or Cultural Significance) The Virginia Department of Conservation and Recreation, Division of Natural Heritage maintains a Biological and Conservation Data System of occurrences of natural heritage resources. These resources are defined as the habitat of rare, threatened, or endangered plant and animal species, unique or exemplary natural communities, and significant geologic formations. Seven such sites have been identified for some years through a Natural Heritage Inventory. These sites, their characteristics, and site rankings developed as part of the inventory are identified in Table 2-7. Site # Location description Blackwater River above Route 620 Zuni Macrosite/ South Zuni Sandhills Zuni Macrosite/ Antioch Swamp Barrens Zuni Macrosite/ Blackwater Ecologic Preserve Zuni Macrosite/ Horse Swamp Barrens Table 2-7 Designated Natural Heritage Areas Size Rank* Resources (acres) 1000 B2 Eutrophic semi-permanently flooded palustrine forest 250 B4 oligotrophic woodland; asimina parviflora; desmodium strictum; quercus incana; quercus laevis; quercus margarettae 320 B2 oligotrophic forest; quercus incana; quercus laevis; quercus margarettae 319 B2 oligotrophic woodland; asimina parviflora; calycanthus floridus; carphephorus bellidifolius; carphephorus tomentosus; habenaria blephariglottis; heterotheca gossypina; juncus abortivus; kalmia angustifolia; pinus palustris, and 15 other species 150 B2 oligotrophic forest; carphephorus bellidifolius; kalmia angustifolia; pinus palustris; quercus laevis; pyxidanthere barbulata; quercus margarettae; vaccinium crassifolium; zornia bracteata Cat Ponds 95 B4 Mid-height hervbaceous palustrine wetland; eleocharis melanocarpa; eleocharis tricostata; ludwigia brevipes; panicum hemitomon; ambystoma mabeei; ambystoma tigrinum; atlides halesus; siren intermedia Muddy Cross Pond 115 B3/B4 Mesotrophic semipermanently flooded palustrine forest; eleocharis tricostata *Note: B rankings shown in the table defined as follows: B1 Outstanding Significance: only site known for an element, and excellent occurrence of a G1 species, or the worlds best example of a community type. B2 Very High Significance: one of the best examples of a community type, good occurrence of a G1 species, or excellent occurrence of a G2 or G3 species B3 High Significance: excellent example of any community type, good occurrence of a G3 species B4 Moderate Significance: good example of a community type, excellent or good occurrence of a state-rare species. B5 General Biodiversity Significance: good or marginal occurrence of a community type, or state-rare species Source: Rawinski and Ludwig, 1992 and the Virginia Department of Conservation and Recreation, Division of Natural Heritage. The Natural Heritage Program was established in 1986 in joint cooperation with the Nature Conservancy to identify elements of natural biological diversity which are of rare or special concern in Virginia. The program focuses on rare plants, animals, geological landmarks, natural ecological communities, and other natural features. The locations and characteristics of these natural features are entered into a computerized data base. Sites are rated and superior habitats are targeted for Comprehensive Plan 2-36 Isle of Wight County, Virginia

70 acquisition using the State's Natural Area Preservation Fund. The Natural Heritage Program also makes information on acquiring environmental easements available to property owners. Maps prepared in June of 2000 by the DCR Division of Natural Heritage identifies these areas and a few additional locations as one minute location blocks reflecting an area roughly one square mile in size for each location. Precise locations are not available in order to protect the resource. Each block on the map indicates the known occurrence of one or more natural heritage resources, and is color coded to indicate the protection status for resources located within the block (see map 2-4). These maps are designed for use by the County to screen projects for the potential presence of heritage resources in the vicinity. Heritage site ranking criteria have also been modified in the past few years based on the known number of populations or occurrences in a particular locale. Threats to these sites include: continued logging, fragmentation of the site, clear-cutting, lack of fire, herbicide treatment, drainage, ditching, nutrient enrichment from agriculture, sand mining, right-ofway maintenance and power line construction. Although there may be some threat of development, none of the seven sites listed in Table 2-7 are located within designated DSDs in the County. Creation of a County conservancy organization could enhance opportunities for stewardship of these sites and other significant natural resources in the County, through acquisition of easements, or cooperative management programs with landowners to limit land disturbances and fragmentation in these areas to protect site resources and integrity. The Department of Game and Inland Fisheries has a similar information base of wildlife for planning and management purposes. General mapped habitats may be obtained for planning and/or preservation purposes, but locations of specific sites are closely guarded in order to protect the habitat. The Chesapeake Bay Preservation Act In 1988, the Virginia General Assembly enacted a number of initiatives to protect and restore state waters, ranging from incentive programs to specific delegation of authority to local governments. The most significant of these is the Chesapeake Bay Preservation Act, which serves to greatly expand local police powers and provide a means of better utilizing state resources in that effort. The Act establishes a more specific relationship between water quality protection and local land use authority, stating in Section : counties, cities, and towns are authorized to exercise their police and zoning powers to protect the quality of state waters consistent with the provisions of this chapter. The County has established a Chesapeake Bay Preservation Program in compliance with the Act. As a result, land use policy decisions in the County will continue to be more carefully considered in the context of how they may influence water quality protection objectives that are shared by the County and State. Air Quality High levels of ozone pollution create both health and environmental problems. The health problems created by ozone can range from s lung airway irritation to irreversible lung damage. People with existing respiratory problems are most affected. The environmental problem of ozone is its affect on plant life, including farm crops. Ozone impairs plants ability to create and store nutrients; therefore, plant life becomes more susceptible to disease, insects, other pollutants, and harsh weather. Ozone is not an emission of a direct source but is a gas created in the lower atmosphere from a Comprehensive Plan 2-37 Isle of Wight County, Virginia

71 mixture of oxides of nitrogen (NO x ), volatile organic compounds (VOC) and sunlight. Oxides of nitrogen and volatile organic compounds are emissions from motor vehicle exhaust and industrial emissions, gasoline vapors, and chemical solvents as well from natural occurring sources. In June 2007, the Environmental Protection Agency approved the redesignation of the Hampton Roads Metropolitan Statistical Area (MSA) as an attainment area for the 8-hour ozone standard after demonstrating a reduction in ozone levels between 2002 and Isle of Wight County is included in the Hampton Roads MSA and is part of the Hampton Roads air quality region. Although Hampton Roads area is now an ozone attainment area, the region is still considered a maintenance area - a designation given to an area that was originally designated a non-attainment area for a pollutant that later met the federal standard for the pollutant. Hampton Roads must still follow a maintenance plan which contains control measures to remain beneath the 2005 emissions cap effective until These measures would create additional reductions in emissions from the 2005 baseline year and could be used to offset future growth in emissions. These measures include such actions as implementing controls while filling underground storage tanks, open burning regulations, and expanding the use of reformulated gasoline. Natural Resources and Environmental Quality Goals and Objectives Isle of Wight County is in need of an explicit set of environmental quality goals and objectives which can guide the establishment of local action programs for specific issues. These goals and objectives provide an opportunity to temper growth management objectives in recognition of potential environmental consequences. The attitude that all growth is good growth is being challenged more frequently as the environmental consequences are recognized. The environmental quality goals and objectives recognize the cycle of cause and effect associated with growth and environmental quality. Most importantly, with this, the County must continue to refine and update its goals and establish a plan of action to meet those goals. All County residents play an important role in the balance of Isle of Wight's environmental system. As the population grows, susceptibility to system imbalance and environmental damage increases. Limits exist to the amount of growth and development that Isle of Wight County can absorb without threatening environmental quality and resource supplies. According to the concept of carrying capacity, Isle of Wight County is equipped with a finite supply of natural resources which can support a limited number of people. If its carrying capacity is exceeded, serious environmental degradation can occur and solutions may be costly. The influence of our present activities on the County's ability to grow and improve must be recognized. Given that Isle of Wight County is a complementary part of an environmentally balanced system with a finite resource base, a reexamination of existing land use practices and activity patterns will clarify the needed adjustments to increase the County's carrying capacity. Intervention is justified for maintaining long-term growth options while significant economic advantages can be realized on a short-term basis. The cost of resource reclamation is far greater than that of intervention and protection. If the consequences of environmentally damaging activities are left unbridled, the loss of a resource must be accepted, or payment must be made collectively by taxpayers to address the problem. For example, collective federal, state, and local tax dollars are currently being spent to correct environmental damage to the Chesapeake Bay which has resulted from decades of neglect and abuse. Legislation and efforts to protect Bay water quality will yield long-term dividends concerning this important environmental and economic resource. Comprehensive Plan 2-38 Isle of Wight County, Virginia

72 GOAL: To preserve and improve the environmental quality of the County utilizing measures which protect Isle of Wight's natural resources and environmentally sensitive lands and waters. Objectives Protect water quality in County tributaries to the Chesapeake Bay watershed through local administration and enforcement of the County s Chesapeake Bay Preservation Area program with particular attention to protection of Resource Protection Areas. Enhance efforts to protect the quality of other surface waters, including the Blackwater River watershed and associated tributaries, which drain into North Carolina's environmentally sensitive Albemarle and Pamlico sounds. Protect and conserve groundwater resources. Protect tidal and non-tidal wetland resources. Protect and conserve forest resources. Protect the important natural function of floodplains by limiting disturbance and development activity. Preserve County shorelines by protecting shorelines against erosion and limiting development in areas subject to higher rates of erosion. Minimize runoff and sedimentation associated with agricultural and development activities, particularly in areas with steep slopes. Preserve natural open spaces. Protect significant plant and wildlife habitats. Coordinate environmental quality protection efforts with future opportunities to establish public parks, natural recreation areas, greenways, and open spaces. Minimize the environmental impacts of site development through the continued use of performance standards. When expanding sewer and water facilities within DSDs, make every effort to utilize investments to solve failing septic system problems in the area. Utilize land development regulations to establish setbacks, encourage clustering, and apply other shore erosion control management options to protect eroding shorefronts. Promote initiatives that preserve clean air and improve air quality. Comprehensive Plan 2-39 Isle of Wight County, Virginia

73 Implementation The following is a list of specific measures the County should undertake to achieve its environmental quality goals and objectives. Local Program for Chesapeake Bay Preservation Maintain a Local Program for protection of resources consistent with the intent and purpose of the Chesapeake Bay Preservation Act. Such a program should contain the program elements and performance criteria for land use and development established in the Act and should incorporate recommendations outlined in this chapter. This includes permitting no new development within the RPA which includes the 100-foot buffer. Adopt similar protective measures for all surface water bodies not within the RPA. Limit Future Development Limit future development in the Plan's Resource Conservation Districts to low intensity residential uses, passive park and recreation uses, and water dependent uses. Within the Newport DSD where the greatest development is expected to occur, limit development densities in areas adjacent to designated Chesapeake Bay Preservation Act Resource Protection Areas. Environmental Impact Assessments Require proposed development projects within the DSDs to prepare and submit for review an environmental impact assessment which identifies potential environmental impacts that may occur as a result of proposed development and suggests appropriate mitigation strategies and plans. Such assessments should examine soils limitations on-sites proposed for development and identify measures to be taken to address such limitations as may be present. Air Quality Encourage development to include alternatives that promote clean air quality such as the planting of evergreen trees and shrubs in landscape design. Non-vehicular Transportation Develop a network of non-vehicular transportation such a pedestrian pathways and bike paths so as to decrease the use of fossil fuel burning modes of transportation. Permit Evidence Require evidence of all federal, state, and local environmental and health permits as a condition of development approval. Floodway Development Prohibition Comprehensive Plan 2-40 Isle of Wight County, Virginia

74 Prohibit development within floodways which limits natural water storage capacity. Also encourage the use of floodway fringe areas and portions of the 100-year floodplain for recreational use and/or open space. Minimize Mining Mining and other extractive industries are important to the Isle of Wight County economy. However, these industries are potential nuisances and can adversely impact the environment and surrounding land uses. Evaluate extractive industries in any geographical areas where the cumulative impacts could harm the area. Incorporate guidelines for locating extractive industries and environmental and appearance performance standards into County development ordinances. Performance Standards Performance standards and controls are recommended to permit development design flexibility and to adapt to variable site characteristics. New environmentally sensitive development regulations are needed which recognize and protect natural site functions. Environmentally sensitive features such as wetlands and critical plant and wildlife habitats should be explicitly protected and buffered from development activities. Such measures should include a mandatory 100 foot buffer between the Blackwater River and its tributaries and marshes and any future development disturbances. Open Space Requirements Continue to enforce established open space requirements and limit the extent to which a site can be covered by impervious surfaces. Requirements should specify minimum areas that must remain undisturbed and available for stormwater infiltration and site vegetation. No Net Change Allow no net change in runoff at development sites. Drainage techniques normally channel stormwater runoff away from the structure and off the site. The volume and velocity of stormwater runoff leaving a developed site should be no greater than pre-development levels, primarily for adjacent property protection and non-source point pollution control. Preserve Natural Vegetation Preserve natural vegetation and trees during development and expressly prohibit site clear-cutting. Protect mature trees and require a minimum amount of vegetation to correspond with open space requirements. If tree removal is unavoidable, require replacement in lieu of removal. Where vegetation is removed, require temporary grass seeding for erosion control in accordance with established erosion and sediment control standards. Zoning Incentives Use zoning incentives to promote cluster development. Cluster development makes wise use of land resources and is environmentally sensitive. Update the County development ordinances to provide greater incentives for clustering, particularly in areas located near designated Chesapeake Bay Preservation Areas in the Development Service Districts. Comprehensive Plan 2-41 Isle of Wight County, Virginia

75 Slope Density Regulations Enact slope density regulations. A steeply sloped site cannot support the same development density as a flat site. Permitted density should decrease as slope increases. Limit grading activities in proportion to slope vulnerability. Best Management Practices Require agricultural and forestry (silvicultural) activities to utilize recognized best management practices for soil and water conservation. Directed Development Direct the majority of future county development to designated DSDs where public sewer services are in place or planned. Limit the future use of on-site sewage treatment systems to those areas where public sewage systems are unavailable. Discourage larger concentrations of individual on-site sewage treatment facilities in rural and environmentally sensitive areas through density controls, particularly in areas with soils constraints for septic systems. Alternative Drinking Water Supplies Explore the development of alternative drinking water supplies in areas where groundwater levels and quality are decreasing. The Western Tidewater Water Authority will provide a venue to foster inter-jurisdictional cooperation for development of potable water supplies that may include use of surface water impoundments in the region as an alternative source of potable water. Continued Monitoring and Protection of Groundwater Supplies The County will continue to work with the Local Health Department and the Virginia Department of Environmental Quality to assure threats in the form of failing septic systems, leaking underground storage tanks, landfills, and abandoned wells do not adversely impact groundwater supplies. Where threats are identified, remedial action will be promptly taken. Where feasible, priority should be given to extension of public sewer services in areas within the Newport DSD where failing septic systems have been identified by Sanitary Surveys conducted by the Department of Health, Division of Shellfish Sanitation. In the interim, the County, through the maintenance of its pumpout program required by the Chesapeake Bay Preservation Act, will continue to work with the Health Department to educate property owners about the proper operation and maintenance of septic systems. Coordination with Other Agencies Coordinate with state and federal agencies and non-profit conservancy organizations to protect environmentally sensitive lands through acquisition and protective easement programs. Encourage Creation of a Isle of Wight County Land Trust The County has taken the steps to create an Isle of Wight land trust. A County land trust will do much to support the preservation of environmentally sensitive areas, resources and assets. It will serve as a vehicle to secure additional funding for acquisition of easements in environmentally sensitive locations or can work with other larger land trust organizations through partnerships to protect important environmental resource lands in the County. Comprehensive Plan 2-42 Isle of Wight County, Virginia

76 Manage Shoreline Erosion Utilize more restrictive shorefront setbacks for development proposed along shoreline reaches subject to moderate or high rates of erosion. In addition: < Examine potential to use clustering requirements or incentives within the Conservation Development Area Plan District to remove the development envelope from shorefront areas. < Examine opportunities to provide tax incentives to property owners that make investments in structural shoreline protection in high rate erosion areas. < Study the feasibility of establishing legislation that permits the creation of Shoreline Erosion Control Districts that would provide a mechanism for funding shore erosion projects and provide the benefits associated with a reach-wide approach to shore erosion controls rather than individual site treatments or piecemeal approaches. < Examine other shoreline erosion control management options identified in an earlier section of this Chapter of the Comprehensive Plan to determine those appropriate for use in the County. Enhance Opportunities for Greater Public Access to the Shoreline This includes the following proposed actions: < Examine opportunities for greater use of Ragged Island WMA, the U.S. 17 James River Bridge, and Fort Boykin Historic Park for construction of overwater fishing piers or platforms to enhance waterfront access and accommodate recreational fishing. < Evaluate waterfront parcels to determine their potential for future boating access and attendant mooring facilities. Although much of the James River is inappropriate for boating facilities, shoreline reaches from Holly Point to Day s Point should be examined. This reach may be most suitable due to lower rates of erosion in these areas. Other areas that may be suitable for limited boating facilities include lands near Battery Park and Rescue near the confluence of Jones Creek and the Pagan River. Multiple use of such space for waterfront access as well a broader range of passive recreation facilities and greenways, including hiker/biker trails, should be considered and encouraged, when practical. < Encourage environmentally sensitive expansion of existing boating facilities like those at Rescue, or Brown s Marina, when such expansion can be accommodated with fewer water quality impacts than new facilities might have in currently undeveloped locations. < Utilize small locally or state-owned parcels for boat ramp facilities to enhance shoreline or water access, such as small sections of shoreline located at the end of road rights-of-way, or at bridge crossings. Such locations may include the Route 10 bridge Comprehensive Plan 2-43 Isle of Wight County, Virginia

77 Summary crossing at Cypress Creek, the Fulgham Bridge crossing at Jones Creek, and the 460 corridor Blackwater River crossing near Zuni. The County should work with the Virginia Departments of Transportation and Conservation and Recreation to explore the feasibility of adding pedestrian walkways associated with new bridges, for use by fishermen and the development of formal or informal canoe put in/take out areas. < Implement recommendations for creation of scenic water trails along Lawnes Creek, the Pagan River, Jones Creek, and the Blackwater River as recommended in The Waters of Southeast Virginia (SVPDC, 1988). < Identify appropriate locations for development of greenways and map their locations as a basis to secure easements or rights-of-way for access and use as part of the rezoning process or as a condition of development approval. < Negotiate to secure public waterfront access facilities as a condition for rezonings. < Utilize density bonuses for future developments adjacent to developed shoreline areas which provide waterfront access, parking, boat ramp facilities, dedicated greenways or other water access facilities provided they are publicly accessible. < Modify development regulations to establish minimum shoreline lot widths in future developments to limit the number of future waterfront lots and attendant pier facilities along shoreline reaches in the County that require access through the Chesapeake Bay Resource Protection Area. < Establish standards for community pier facilities in future waterfront developments, and provide limited density incentives to encourage use of such facilities as an alternative to individual private piers. This chapter discussed the characteristics of environmentally sensitive County lands and waters. It describes some of the important reasons for protecting the various natural features which comprise and contribute to the quality of the Isle of Wight environment. Goals and objectives have been established to preserve environmental quality. Recommended actions are stated which should achieve County goals and objectives. Particular focus is accorded to Comprehensive Plan requirements of the Chesapeake Bay Preservation Act and Regulations and as amended. In summary, the environmental attributes of Isle of Wight County strongly influence quality of life. The condition of the environment must be evaluated in terms of the potential impact upon the daily activities and the standard of living of the community. Environmental resources should be protected on behalf of the economic well-being of the general public with regard to both individual property interests and collective taxpayer investments. The quality of Isle of Wight's environment is one of the factors that makes the County such a desirable place to live and work. The intent of County environmental protection measures is not to stop development, but rather to ensure the compatibility of development with the continued productivity and value of environmentally sensitive land and water areas. Comprehensive Plan 2-44 Isle of Wight County, Virginia

78 Chapter Three Rural Character Protection and Agricultural Preservation Agriculture is a significant part of Isle of Wight County life, both as a major industry and as a chief component of the County's rural character. All of the County's past comprehensive planning efforts have cited agricultural and rural character preservation as a specific goal. In light of increasing growth, many County residents (both farmers and non-farmers) continue to see clear lifestyle benefits in preserving the agricultural industry and rural character of the County. By better managing the form of future development in the County, Isle of Wight can make significant strides to protect and preserve the agricultural industry and the rural character of life which is so important to all County residents. While preserving the land base to support agriculture in the County is important, assessing opportunities to strengthen and enhance the ongoing economic viability of the agricultural industry is also important. Establishing a balance between accommodating future growth while maintaining and enhancing the agricultural industry and rural character is a primary objective of this Plan. Background Information Farm Trends and Information The number of farms in Isle of Wight County declined substantially over the twenty year period between 1982 and In 1982, there were 333 farms in the County. By 2002, the number of farms declined to 204, a net loss of 129 farms or a 39 percent reduction in the number of farms over the twenty year period. The total amount of farm land within Isle of Wight has also decreased in recent years, from 100,415 acres in 1982 to 86,521 acres in 2002; a decline far less dramatic than the reduction in number of farms in the County. This represents a net loss of approximately 14,000 acres in farmland or a 14 percent loss in farmland during the period. The average size of farms in Isle of Wight also increased substantially during the twenty year period, from 302 acres in 1982 to 424 acres in This increase of over 40 percent in average farm size largely accounts for a dramatic decrease in the number of farms with only modest losses in farmland acreage over the period. (Table 3-1). Comprehensive Plan 3-1 Isle of Wight County, Virginia

79 Table Agricultural Land and Farm Characteristics - Isle of Wight County Farm Change Percent Characteristics Change Number of Farms % Acres in Farm 100,415 83,901 86,247 88,030 86, % Land 13,894 Average Farm Size % Source: US Census of Agriculture 1982, 1987, 1992, 1997, 2002 Table Trends in Number of Farms by Farm Size - Isle of Wight County Farm Size Change Percent Change 1-9 acres % acres % acres % acres % acres % 1,000 acres % Source: US Census of Agriculture 1982, 1987, 1992, 1997, 2002 Between 1982 and 2002 the number of farms in all size categories decreased, except farms of 1,000 acres or more in size, which increased by 68% during the period, from 19 in 1982 to 32 in The most significant decreases in the number of farms occurred in the acre and acre farm size categories. During the twenty year period, the number of farms in each of these categories declined by 65% and 54%, respectively. Increasing farm sizes and reductions in the number of farms appear to account for reductions in the number of farm operators, from approximately 245 in 1987 to 204 in Loss of actual cropland in the County has been significant but not as substantial as loss in total farmland acres. Between 1982 and 2002, total cropland decreased by 6,833 acres; a decline of nearly 11% (see Table 3-3) as compared to the 13,894 loss in total farmland; a decline of some 13.8% for the same period. Comprehensive Plan 3-2 Isle of Wight County, Virginia

80 Table Changes in Cropland - Isle of Wight County Cropland Change Percent Change Total 64,057 57,343 59,877 61,409 57, % 6,833 Harvested 59,092 45,338 53,206 54,891 49, % 9,719 % Harvested 92.2% 79.1% 88.8% 89.3% 89.3% -2.9% --- Source: US Census of Agriculture 1982, 1987, 1992, 1997, 2002 The loss of farms and farmland between 1982 and 2002 is due in part to development but equally important are difficulties and challenges within the farm industry itself. Higher operating and equipment costs, variable adverse climatic conditions, and generally lower per acre profits or returns on investment have resulted in many farmers operating on a marginal basis or quitting the industry. Those farmers who remain in the business are virtually forced to farm larger land areas and increase the scale of their operations to produce profitable yields. In addition, many older farmers are retiring and their children are not interested in keeping up the farm for financial reasons or due to lifestyle changes and changes in interests. During the period 1987 to 2002 the number of farm operators who indicated their principal occupation was farming dropped from 181 to 133, indicating many farmers have turned to other sources of income to support their households. The Agricultural Industry Despite recent losses in farmland, Isle of Wight County continues to have a strong and diverse agricultural industry. According to the 2002 Agricultural Census, the County ranked third among Virginia counties in cotton and peanut production and has a large swine production industry which ranked second in the state. The ranking for peanuts is sure to change in the 2007 Agricultural Census, since federal subsidies for peanuts were eliminated which reduced farmers interest in cultivating them. Perhaps the biggest change in cropping is growth in cotton production in recent years. Cotton crops have grown from production on only 570 acres in 1990 to production on 13,689 acres by Much of this growth is attributable to extermination of the Boll Weevil, earlier maturing varieties or hybrids, and the transgenic varieties which are more tolerant of herbicides. In 2002, a total of 2,024 head of cattle were sold. This figure is a sharp increase of the 1997 agricultural census. Agricultural Trends Additionally, the farmers have begun to diversify their operations, from growing vegetables and hay for horses, to boarding horses, growing palm trees, and pasture raised pork to name a few. There has also been an increase in pick-your-own operations and on-farm sales as well as blossoming agri-tourism ventures such as the corn maize and offering school tours. There are new agriculture ventures choosing to grow in the County, including Summerwind Vineyard in Smithfield and Montague Farms, a soybean producer, buyer, and exporter of natto soybeans, locating to Windsor. Isle of Wight is fast becoming the agriculture hub for Southeast Virginia because potential agriculture ventures and expansion opportunities feel confident in the Comprehensive Plan 3-3 Isle of Wight County, Virginia

81 County s commitment to the agriculture industry. Over the past few years, farmers markets have become a great venue for direct consumer contact. Isle of Wight currently operates two markets, with hopes to create more and expand the existing markets to meet demand. Smithfield s Olde Towne Curb Market has been in successful operation since 2002, and Windsor s Farmers Market has been operating since Each market was specifically designed to meet the demands of its customers and community atmospheres, while ultimately maintaining the number one goal, to provide local farmers with more opportunities for direct marketing. Overall, even though statistics show a decline in traditional crops and acreage, there is a rise in new and emerging crops and niche markets, where direct marketing to the consumer is the focus. Rural Economic Development consistently works with other agencies within County government and outside to further develop the agriculture industry and give farmers options, all the while reassuring the farmers that Isle of Wight County encourages farming and agribusiness. The agriculture and forestry industries are still the number one economic engines in the County and helping them to remain viable is the overarching goal. Table , 1997 & 2002 Characteristics of Agriculture - Isle of Wight County Product Acreage or Unit Peanuts 15,006 acres 13,075 acres 9,887 acres Corn 14,537 acres 10,919 acres 9,006 acres Wheat 4,537 acres 8,305 acres 4,720 acres Soybeans 13,049 acres 12,997 acres 12,563 acres Cotton 500 acres (est.) 14,200 acres 13,689 acres Swine 54,269 head 119,434 head 164,567 head Cattle 1,791 head 1,594 head 2,024 head Source: US Census of Agriculture 1987, 1997 and 2002 In 1987, production of peanuts, corn, and swine accounted for approximately 82 percent of the $26 million value of all agricultural products sold in the County (Table 3-5). From 1987 to 1997 the value of all agricultural products sold in the County grew by 56 %, from $26,218,000 to $41,025,000. By 2002, the value of all agricultural products decreased to $30,058,000. Throughout the period, agricultural sales have been almost evenly divided between crop production and livestock production. Although the value of agricultural products sold has increased substantially from 1987 to 1997, the costs of production have also risen substantially over the period. Combined with other important variables including the weather and uncertainty from year to year in crop prices, costs of production have adversely affected the economical viability of farming in the County. As shown in Table 3-6, total farm production expenses climbed from $22,347,000 in 1987 to 38,149,000 in 1997, but dipped to $36,406,000 in Comprehensive Plan 3-4 Isle of Wight County, Virginia

82 Table , 1997 & 2002 Market Value of Agricultural Products Sold - Isle of Wight County Market Value of selected items Market Value of Crops Sold $13,778,000 $21,283,000 $13,458,000 Market Value of Livestock Sold $12,440,000 $19,742,000 $16,600,000 Market Value of all Agricultural Products Source: US Census of Agriculture 1987, 1997 and 2002 $26,218,000 $41,025,000 $30,058,000 Table , 1997 & 2002 Farm Production Expenses - Isle of Wight County Expense Item Feed for Livestock and Poultry $4,862,000 $9,922,000 $10,181,000 Commercial Fertilizer $2,103,000 $3,523,000 $2,553,000 Agricultural Chemicals $2,120,000 $3,760,000 $2,961,000 Petroleum Products $1,133,000 $1,498,000 $1,183,000 Hired Farm Labor $1,742,000 $3,298,000 $2,640,000 Interest paid on debt $1,166,000 $1,982,000 $1,066,000 Property Taxes Paid $326,000 $507,000 $759,000 Other Farm Production Expenses Total Farm Production Expenses Source: US Census of Agriculture 1987, 1997 and 2002 $10,795,000 $13,659,000 $15,063,000 $22,347,000 $38,149,000 $36,406, Processing pork and pork products is a major business in Isle of Wight County. In 1987, an estimated 80 percent of the hogs commercially processed at Smithfield Packing and Gwaltney, Ltd., were imported from other states. Smithfield Packing, in an attempt to streamline and integrate operations, has implemented a strategy to raise more of its own hogs locally instead of importing the majority of its livestock. This appears to be reflected in the substantial increase in hog production which has more than tripled in the County in recent years (see Table 3-4). The services provided by local agribusiness are equally important to the crop and livestock production characteristics of the County. Agribusiness includes all the service, manufacturing and trade operations that directly relate to the production and marketing of farm products. These would include farm and implement dealers, farm supply operations, manufacturing of food and kindred products, as well as storage and exporting of raw and processed foods. The value of agribusiness in Isle of Wight County is extremely significant. In recent years, declining farm economies in the County have strained local agribusinesses. This is important to note because without farms, local agribusinesses suffer, and without local agribusinesses, local farmers find it increasingly difficult to operate efficiently. In 2000, there were approximately 10,000 Comprehensive Plan 3-5 Isle of Wight County, Virginia

83 agribusiness jobs in Southeastern Virginia which were directly dependent upon the agriculture industry of the region. Timber and Forestland Another important component of the agricultural economy of Isle of Wight is the timber industry. In 2001, timberland comprised 97,990 acres in Isle of Wight County; significantly less than the 117,326 acres reported in This area represents about 48 percent of the County's total land base of 204,454 acres. The forest industry owns about 18,000 acres or about 16 % of the timberland in the County. In 1992, farmers owned about 51 percent of total County forest lands. Today s exact figure is unknown since the Department of Forestry discontinued collecting data around It is accepted that farmers continue to own the majority of forest land with the remainder of County timberlands owned by city/state/federal agencies, non-timber oriented corporations, and individuals. Southeastern Virginia is one of the top lumber producing areas in the state, with loblolly pine as the primary resource. While farmland has been producing only marginal incomes for agricultural crops, pine plantations/managed forests can yield favorable long-term financial returns. There are many ways to look at the economic importance of timber and forestlands. Employment, value added, and stumpage, or worth of standing timber, are but a few traditional components. Like agriculture, the economic importance of this industry is expanded as the raw material leaves the forest, is transported to primary and secondary manufacturers, to wholesale and retail outlets, and finally into the hands of the consumer. According to the Virginia Department of Forestry statistics on Forest Products, in 2003 the total stumpage value of forest products in the County generated nearly $3 million in income to landowners. In that year, over 19,000 cords of pine and 18,000 cords of hardwood were harvested. Employment in the forest products sector exceeds most manufacturing sectors of the State economy, employing one in five Virginia manufacturing employees as of The second largest employer in Isle of Wight County is International Paper, Inc., a paper and woods products manufacturer. Ecologically, the forestland helps to maintain water quality; provide essential habitat for a variety of plants and animals; and provide needed windbreaks to prevent soil erosion. Due to the valuable economic and ecological benefits provided by forestlands, it is important that Isle of Wight conserve and manage this important natural resource. Existing County Agricultural Preservation Efforts Virginia's farmland taxing policies provide that property being farmed is assessed and taxed at farm use values. Farmland in the County has an assessed value which is considerably lower than land used for industrial, commercial, and residential uses. Because of greater differences in land valuation, the Use Value Assessment Program serves as an incentive to keep farmland in farming versus converting to a more intensive use. Lower taxes on farmland encourages farming. As land values increase and development pressure rises, the use value assessment program becomes increasingly important if the County is to sustain a strong agriculture and forestry industry Comprehensive Plan 3-6 Isle of Wight County, Virginia

84 Three separate Agricultural and Forestal Districts have been established throughout the County (see Map 3-1). A total of 26, acres of farmland are presently contained in the following Agricultural and Forestal Districts: Longview Agricultural and Forestal District, 8,318 acres; Knoxville Agricultural and Forestal District, 4,425.9 acres; and Courthouse Agricultural and Forestal District, 13, acres. The number of acres decreased from 2001 to 2008 by approximately 17.6 acres. Approximately 32 percent of the County's total farmlands are contained within these Agricultural and Forestal Districts. Each of these districts will be up for renewal on a five-year cycle. To be included in the Agricultural and Forestal District the farmer submits a written request to the County and agrees that he or she will not develop his or her land for a period of ten years. Contracts for Agricultural and Forestal Districts are eligible for renewal at the end of the ten year period subject to the farmer's consent. Different districts are in effect for different time periods. Farmers in any district can petition the Board of Supervisors to be released from their contracts and withdraw from a district at any time during the ten year period. At the end of a ten year contract the farmer can withdraw from a district automatically. By entering into a voluntary Agricultural and Forestal District, a farmer does not receive any additional preferential tax treatment; however, if the use value assessment program did not exist, those inside the districts would automatically receive the land use rate. Inclusion in a district does, however, provide some limited assurance that neighboring farmers, also in the district, will not subdivide and develop their farms. There is some limited eminent domain protection as well. Residential subdivisions in agricultural areas often create conflicts with farming activities and practices. Residential property owners sometimes complain about farm equipment traffic on local roads, noise associated with evening operation of equipment and machinery, creation of dust and odors resulting from farm activity, spraying of pesticides and insecticides, etc. Farmers in the voluntary Agricultural and Forestal Districts are provided some protection against nuisance suits which may be initiated by residential property owners within the districts. In essence, these residential property owners are put on notice that they are living in an agriculturally dominated area and that they can expect reasonable farming activities to occur around them. This provision allows the farmer to conduct normal agricultural activities without the fear of legal action by residential neighbors. There are provisions in the County for creation of additional Agricultural and Forestal Districts to be formed subject to the interests of local farmers. In 2005, the County created a brochure entitled A Guide to Living in and Visiting Rural Isle of Wight County as an attempt to educate the non-farming public about our agricultural community. This brochure first emphasizes the importance of the agriculture and forestry industries to Isle of Wight, and also addresses the rural aspects of the County including dirt roads, slow moving farm equipment, smells, noise, and dust associated with farming, just to name a few. The brochure is available in local businesses around the community as well as at several County and Town offices. This is the County s way of welcoming newcomers to the County, but also gently reminding them that the County supports a farmer s right-to-farm. In 1997, the County instituted provisions in the County zoning structure to further efforts to preserve farmland resources. With update of the ordinance, the Rural Agricultural Conservation (RAC) District was created to protect the agricultural industry from sprawling residential development that displaces substantial areas of farmland for a small number of dwelling units. The ordinance encourages development in the RAC district to locate in wooded portions of sites Comprehensive Plan 3-7 Isle of Wight County, Virginia

85 and limits residential densities, particularly when development occurs that does not adhere to cluster development provisions that the County has encouraged through density incentives. In May 2005, the County Board of Supervisors adopted an ordinance that allows for the establishment of the Purchase of Agricultural Conservation Easements (PACE) Program. The PACE Program is another effort to preserve existing agriculture and forest land. The program includes the following goals: Assures County resources are protected and efficiently used. Preserves the rural character of the County. Preserves agricultural and forest land. Assists in shaping the character and direction of the development of the community. Improves the quality of life for the inhabitants of the County. The PACE Target Areas Map illustrates areas designated by the Board of Supervisors as priority areas for the PACE program. The program allows farmers to voluntarily sell the development rights of their farmland to the County. A conservation easement is placed on the property, which is owned by the County. The farmer retains the right to continue agricultural operations on the property while the County effectively holds the developmental rights of the property in perpetuity. All other rights are retained, including the right to sell and farm the land. There are no public access provisions with this program. The program s economic benefit to farmers is that they receive a monetary benefit while still being allowed to continue using their land for agricultural purposes. Without a program such as this, many farmers find the need to sell their property to obtain money for such purposes as funding their retirement or paying off debt. The program will be administered by the County s Rural Economic Development Manager in the Office of Economic Development Agricultural Conservation Planning Considerations and Issues Following is a list of important rural character and agricultural preservation planning considerations and issues that underscore the importance of protecting farmlands and future opportunities for agricultural industry growth in Isle of Wight County. Both economic and land use trends underscore the need to give consideration to the importance of protecting rural character in the County. Economic considerations include: Economic Considerations A thriving rural/agricultural economy is a net revenue generator for the County. Therefore protection of the industry is a matter of sound fiscal policy. Unlike suburban density residential development, the taxes paid by a low-density, agricultural economy will exceed the cost of services provided. Although there may be some differences of opinion concerning exact numbers, past studies in various areas of the nation have clearly shown residential development is a deficit consumer of revenue i.e., costs to the county of supporting residential needs with public services and facilities generally exceed the tax revenue generated by the residential development while rural lands, with lower service demands, generate net revenues to the County. In short, increasing net revenues through expansion of the rural economy benefits the entire County. As a matter of enhancing quality of life in Isle of Wight County, there appears to be a Comprehensive Plan 3-8 Isle of Wight County, Virginia

86 growing consensus among current residents, that the attributes commonly associated with an agricultural economy and image are preferable to those resulting from suburban residential development. Although residents who attended public forums and workshops indicated industrial development to provide jobs is important, maintenance of the County s rural character is a priority consideration. Having a balance of land uses is necessary. The rural market economy is also an attractive County asset. The agricultural census for Isle of Wight in 2002, the last year for which final statistics are available, reported gross agricultural sales totaling more than $30 million. These figures do not include non-farm rural businesses, rural agri-tourism, or the various businesses supporting agricultural production. As a matter of economic development, the highest and most fiscally prudent or profitable long term uses for County farmlands may be continued farming. However, the economic viability of farming cannot be assured and may be dependent on new agricultural technologies and diversification into new forms of niche agriculture where such opportunities can be sustained by markets for products. These may include greater diversification into hay production, production of Christmas trees, fruits and vegetables, grapes, organically grown products including pasture raised pork and organic peanuts, and nursery stock to supply commercial landscapers in nearby metropolitan area markets. Large landscape trees cannot be transplanted economically unless grown close to the user. As agriculture changes, more new and emerging markets will surface and Isle of Wight County supports innovative agriculture practices. Markets for many of these agricultural products are growing nationwide, particularly in areas where farming is within the shadow of urban or metropolitan areas. Future advances in biotechnology and a growing natural medicine market may also open new possibilities and markets for diversification and higher profits. Growth of the rural economy can occur without the same scale and degree of offsetting investment that is often required with more intensive economic development. Locating major new industries in the County provides the reward of job growth, but in some cases can generate demand for investments in schools, housing, roads and other public infrastructure which can consume a significant portion of the tax revenue generated by the new business or industry. There are far fewer offsetting capital requirements associated with growth of the rural economy of the County. Unfortunately, economic problems over the past several years in Southeast Asia, Japan, and Russia have resulted in a decline in world commodity prices for agricultural products like corn, wheat and soybeans. Many of these problems arise from huge foreign debt and failing banking systems which may not be resolved for years to come. Isle of Wight farmers have been adversely affected, since most agricultural product prices are set on a global trading basis, even if they have no direct involvement in export programs. At the same time national policies are structured to remove Federal farm price supports over the next five to ten years. In January 1998, the Report of the USDA National Commission of Small Farms indicated that two decades of national policies have perpetuated a bias toward greater concentration of assets in larger farms and larger agribusiness firms. Small farms, on which labor and management are provided on a day-to-day basis by the farmer, are caught in a trend which has widened the gap between what farmers receive for production and what consumers pay. These trends increase the pressure on Comprehensive Plan 3-9 Isle of Wight County, Virginia

87 the owner/operators of farms to sell land to the highest bidder most often for residential development. Land Use Considerations Just as agriculture needs to be considered in the context of economic realities, the land base that supports agriculture is also important. Land committed to agricultural use is a finite resource that can be threatened by development. While agricultural market characteristics can change over time and create new economic development opportunities, protecting the land base to support agriculture is necessary to assure the agricultural economy has the opportunity to respond to new markets. Current development trends indicate: Prior to 1997, the County development regulations and programs did not specifically deter scattered residential development or preserving agricultural lands and forest lands in rural areas of Isle of Wight. Since such provisions have only been in place for a limited number of years, it is not clear if they are accomplishing their intended purposes. There is some indication that they should be re-examined to determine how they may be made more effective. For example, development in rural areas is occurring along existing roadways to avoid road construction costs. The effect has been to render development visible (if not intrusive) along County roadways and to increase the number of driveways taking access from existing primary and secondary roads. Market conditions encourage rural land subdivision and development, which creates a loss of farms, farmland, forestland, open space, and rural character. Because farming profitability and the number of farmers are decreasing in the County, local farm supply and implement businesses are negatively affected which in turn means fewer available services to support the farmer. In some cases, current patterns of rural residential subdivision are creating incompatibilities between residences and agricultural operations. This impedes traditional farming activities and creates a disincentive to continue farming. Rural character is being diminished by strip forms of development along rural roads and highways. The ability of rural roadways to handle traffic safely and efficiently is being diminished as sprawl development occurs and numerous access drives are constructed along road frontages. Public services and facilities in rural areas are being overtaxed by recent trends of rural residential development. Existing rural community centers are losing their traditional character as new development occurs in and around them. Comprehensive Plan 3-10 Isle of Wight County, Virginia

88 Rural Character Protection and Agricultural Preservation Goals and Objectives GOAL: To preserve the rural character of the County and preserve forest nd and agriculture in areas outside of established Development Service istricts. Objectives Specific objectives intended to achieve this goal are: Limit suburban sprawl and foster alternative forms of rural development which preserve agricultural lands and forestlands and enhance rural character. Encourage the formation of Agricultural and Forestal Districts as a means of conserving Agricultural land use and forest cover. Limit future development in rural areas of the County where public facilities and services are not in place and direct the majority of future growth and investments in public facilities and services to those portions of the Development Service Districts where services and facilities are either already provided or could be constructed efficiently. Minimize strip development along rural roads and highways for efficiency and safety purposes, and also to preserve scenic views and rural character. Seek other options for acceptable access in lieu of existing road frontage. Maintain the existing character of rural Community Centers as development occurs. Preserve the land base of productive agricultural soils in rural areas for farming. Manage and maintain forest land resources. Minimize the conflicts which can occur between farm activities and residential development. Provide opportunities for agricultural support services/businesses in rural areas to support continued farming operations. Identify opportunities to expand the rural economy. Conduct research to determine the high-value crops or products for which there may be consumer demand and profitability that can diversify and strengthen the county agricultural economy. Increase awareness of the equine industry as an integral part of agri-tourism and recreational activities. Comprehensive Plan 3-11 Isle of Wight County, Virginia

89 Encourage programs that create open space (i.e. creation of a local land trust and easements for the preservation of agricultural and forest land). Reinforce language, within appropriate ordinances, in support of the agricultural community s by-right and alternative uses Implementation The following is a list of specific measures the County should undertake to achieve agricultural preservation and rural character protection objectives: Examine opportunities to facilitate new forms of rural economic development in support of agricultural enterprises. As an economic development function, the County should assist farmers or those involved in agribusiness in exploring innovative lending vehicles such as the USDA intermediary re-lending loan programs. For new or expanding enterprises where investment will lead to growth in the agricultural economic base, the County should examine potential to use tax credits on real property taxes to create an incentive for capital investment and expansion. Creation of a dedicated economic development function within county government could also provide a resource to encourage new avenues of venture capital financing in rural economic enterprises or in the emerging area of biotechnical agriculture or pharming. Examine opportunities to diversify and strengthen the agricultural economy by conducting research in cooperation with agricultural community representatives to determine the high-value crops or products for which there may be consumer demand and profitability. Multi-year horticultural crops such as nursery stock, Christmas trees, small fruit, tree fruit and greenhouse or field-grown produce may hold promise for greater farm profitability. The County should provide assistance in conducting market research to determine the high-value products for which there is consumer demand and enterprise profitability within the Hampton Roads region. The County might also work with the state to explore the feasibility of creating a demonstration farm showcasing new crops and production methods, to permit farmers to easily assess the production/profit potential they offer. Such a facility within easy access to the farm community might reduce the risk to the farmer and facilitate the move to alternative crop production and entry into new markets. Activities like these could take place at the annual county fair and possibly take place at a permanent year around facility at the fair grounds. Facilitate access to new markets and new methods to increase market penetration for rural products. The County s proximity to the Hampton Roads metropolitan area, and its access to major transportation facilities, offer both proximity and access to large consumer markets. Such conditions indicate opportunities are readily available to strengthen markets for rural products. Lack of professional marketing support, the cost of major equipment, and the Comprehensive Plan 3-12 Isle of Wight County, Virginia

90 lack of an economical distributions system for products are typically among the problems faced by traditional farmers as well as those creating alternative operations. The County should work with the farm community to explore the feasibility and potential benefits that might be derived from an agricultural cooperative. Such a coop might increase access to technical and marketing assistance or facilitate marketing of products on a more economical basis. If determined beneficial, the County could explore use of County owned land for location of a central farm product distribution facility where farmers can deliver products for pick-up by consumers or wholesalers. A cooperative could manage day-to-day operation of such a facility. The County might also utilize its electronic systems capabilities by making them accessible to support the cooperative in creating an electronic commerce network to serve the common marketing needs of the agricultural community. Such a cooperative could also explore opportunities for cooperative purchasing of products such as liability insurance, health and medical insurance, or commodities which can produce savings through bulk purchasing. Review all existing legal and administrative requirements to assure they do not unnecessarily adversely impact the rural economy. Such a review of policies, regulations, and ordinances should be performed in cooperation with the agricultural community and should be designed to correct any and all regulations which serve no legitimate public purpose, particularly if they compromise farm profitability or unreasonably increase the costs of maintaining farm or farm related enterprises. Consider additional commercial uses that might be authorized in the Rural Agricultural Conservation (RAC) district to diversify or support the rural economy. By way of example, the current zoning ordinance provides for on-premise sales with commercial greenhouse operations by Conditional Use, but such activity is not otherwise permitted. Permitted uses should include as many agricultural activities and support businesses as possible, while recognizing some activities can have adverse impacts and should continue to receive conditional use treatment. Monitor effectiveness of the RAC district to foster development character and qualities identified in the Comprehensive Plan and limit development intensity to densities prescribed in the Zoning Ordinance. Objectives for the RAC district are to limit or discourage non-agricultural development and encourage clustered forms of rural residential development with provisions for open space which could remain as permanent agricultural lands, forestland, or open space when development occurs. However, these provisions have not been operational for a sufficient period of time to ascertain their effectiveness. Development activity in the RAC district should be monitored over the next 5 to 10 years to ascertain their effectiveness. Maintenance of rural character will require limiting access to rural cluster subdivisions from public roads and highways and screening rural subdivisions from view of rural public roads while distancing and/or buffering the location of residences from active agricultural operations. Comprehensive Plan 3-13 Isle of Wight County, Virginia

91 Adopt provisions for the Rural/Agricultural & Forestal Districts which protect farmers engaged in normal farming practices from legal actions in the form of nuisance complaints brought by residential property owners within the district. Encourage expansion of existing Agricultural and Forestal Districts and creation of additional districts throughout rural areas of the County. Do not extend public services and facilities into rural areas or locations outside the designated Development Service Districts. Encourage rural property owners and farmers to participate in state programs designed to enhance the rural economy and foster conservation of land resources. A number of programs sponsored by Federal and State agencies and organizations have traditionally provided various kinds of support to the farm community. While these programs may change over time, the County should continue to work to assure that rural property owners and farmers have access to these offerings. Traditionally these programs have included the following: Division of Soil and Water Conservation, Agricultural Cost-Share Program. Division of Soil and Water Conservation, Conservation Easements Program. County Virginia Cooperative Extension Service Programs. Virginia Natural Heritage Program, Dedication of Natural Area Preserves. Department of Forestry, Forestry Management Assistance, Forest Legacy Program. Monitor the application of current provisions in the County Zoning Ordinance to assure they foster the orderly growth and development of rural Community Centers. These centers should retain their traditional village character as they develop into service centers for surrounding rural areas. Development standards should be adopted which ensure orderly growth which is compatible with existing character. Recommended development standards for Village Centers are contained in the Development Design Chapter of this Plan. Recognize the equine industry as a fundamental component of rural economic development and provide methods for its expansion. Review the appropriate ordinances dealing with rural and agricultural land use to assess whether they are impeding the maintenance of a rural economy. Summary Increase the economic viability of the farm community by increasing land uses and commercial options appropriate for rural and agricultural areas and remove unnecessary use-oriented impediments. Rural residential development trends are resulting in some loss of County agricultural and forestlands. Suburban sprawl results in a loss of open space and rural character. It is also extremely inefficient to serve with public facilities and services. Loss of agriculture and forestland has serious direct and indirect impacts on the economy of Isle of Wight. One of the Comprehensive Plan 3-14 Isle of Wight County, Virginia

92 County's major goals is to preserve agriculture, forestland, open space and other natural features which contribute to Isle of Wight's pleasant rural character and quality of life. In order to accomplish this goal, the majority of future County growth should be directed away from rural and agriculturally dominated areas and instead be guided to designated Development Service Districts. Residential development within the Rural/Agricultural & Forestal Districts should be limited in order to limit incompatibilities, conflict, and competition between agricultural and residential land uses. The County should encourage low density rural residential development to occur in clustered form in order to preserve agriculture, forestland, open space, roadway capacity, and rural character. Future development of rural Community Centers should respect these areas' traditional character and function as local service centers for surrounding rural areas. The County should work with the agricultural community to identify any opportunities that may exist to diversify and enhance the rural economy and increase marketing opportunities for agricultural products. While County government may be limited in what it can do to directly improve the agricultural economy, it can indirectly assist the industry by ensuring that ordinances and regulations do not unnecessarily restrict normal farming practices and opportunities for expansion. The County can also sustain efforts to conserve the land base for farming and forestry activities. Comprehensive Plan 3-15 Isle of Wight County, Virginia

93 Chapter Four Growth Management and Land Use Throughout most of its long history, Isle of Wight has been characterized by a number of compact communities and rural settlements spread over a landscape of farmlands, woodlands, waterways, shoreline, and extensive undisturbed natural areas. For years, the County has been noted for its rural character and image, its James, Pagan, and Blackwater River shorelines, its rich historical and cultural heritage, and its slow-paced rural way of life. The rapid growth in the Hampton Roads region has brought changes to the County: changes welcomed by many, lamented by others, but of concern to all. Inevitably, in such a process, Isle of Wight County's renowned assets, such as an abundant access to waterways and scenic vistas, have been threatened by development, increased traffic volumes, declines in the quality of the natural environment, services unable to meet needs, housing problems, and declining agricultural land base. Growth management must be a coordinated effort by County government to achieve a more efficient pattern for future development, in accordance with a comprehensive land use plan for the community. A growth management strategy will guide new residential development to locations where adequate public infrastructure such as roads, water, sewer, schools, and related facilities, is available or can be provided most efficiently and cost effectively. Commercial, office, and industrial development areas to serve residential development will be identified. Open space, agricultural areas, and environmentally sensitive areas which require protection and conservation, will be identified. Growth management is not a new idea for Isle of Wight County. The 1977 Comprehensive Plan For Future Land Use designated County Growth Areas. However, efforts to define and implement the growth management concepts of the 1977 Plan were judged to be less than effective. The 1991 Comprehensive Plan reinforced the notion of designated areas for growth in the County and established three Development Service Districts (DSDs) which in recent years have served and are expected to continue to serve as the principal locations for residential, commercial and employment growth in the County. Later sections of this plan provide recommendations for guiding the form and qualities of development within each of these three areas to reinforce and enhance previous County planning efforts. Growth Management Planning Considerations The population projections indicate that the County can expect an increase in population of as many as 11,772 new residents, representing a 40 percent increase in population, by the year The form, pattern and distribution of new development required to satisfy this growth in population together with the qualities of commercial and industrial development to meet these residents' shopping and employment needs will influence a number of future characteristics which, taken together, represent the future quality of life in the County. Land Consumption Implications One characteristic of growth is its form. If the County gains 11,772 new residents, land will Comprehensive Plan 4-1 Isle of Wight County, Virginia

94 need to be consumed to support approximately 4,545 new households. Varying forms of growth yield either sprawling or condensed development. Table 4-1, Land Consumption Options, indicates the land required to satisfy population requirements under several lot size scenarios. Table 4-1 illustrates the fact that depending on densities of future development that occur, the amount of land consumed for development can vary significantly. Converting households to acres of development begins to create an image of what the growth might look like on the landscape. As shown in Table 4-1, if all growth were channeled into two-acre lots, it would consume approximately 11,363 acres. Additional Year-round Housing Units Table 4-1 Land Consumption Options to Satisfy Projected Population Growth Estimated Acres of Land Needed with:.2 acre lots (five units per acre).5 acre lots (2 units per acre) 1 acre lots 2 acre lots 4,545 1,018 acres 2,841 acres 5,681 acres 11,363 acres Source: Redman/Johnston Associates, Ltd. Figures shown assume land requirements for streets to serve lots will range from 12% of land in lots for densities at five units per acre to 25% of land in lots for.5 units per acre densities. Figures updated for 2030 by Department of Planning and Zoning using current projections Obviously, this will not be the case since development in some locations will be of a higher density, such as that found in a number of existing subdivisions (e.g. Eagle Harbor or Founders Pointe). Moreover, future development will be widely distributed in various locations and will not all be located in the County s DSDs. As population increases non-residential growth is also required to support the needs of new residents. Therefore various forms of commercial retail and service development and industrial development will also consume land area which may represent as many as 2,000 to 3,000 acres of additional land. The land consumed for residential development includes, not only land devoted to lots, but land for street systems to serve lots. At low densities (e.g. more than 2 acres per lot) this may represent 25% more land than is represented by the actual lots themselves. Higher densities of development (4 to 5 units per acre) may only require 10 to 15 percent additional land area for roads or street systems, underscoring the greater efficiency in land consumption associated with higher densities. The consumption of land is an important consideration in determining the impact of growth on County character and qualities. Various forms of growth and densities of development can produce widely different visual qualities that will significantly influence the character of the County in future years. The County should acknowledge the limited ability to absorb growth while understanding that there may be increased density resulting from ongoing development. It must be recognized that there is a finite carrying capacity for development and that density should be limited so that overcrowding does not become a detriment to the quality of life for county residents. It is critical to note that even the density of cluster development should be managed to assure a continuation of the County quality of life. Comprehensive Plan 4-2 Isle of Wight County, Virginia

95 Cost of Public Services Among the factors, which influence quality of life are the costs to provide requisite public services to County residents including constructing community facilities necessary to house many of these services. Most of these services are provided directly by the County or certainly supported by County fiscal resources. They include schools, roads, police protection, fire protection, emergency medical services, provision of adequate water supplies and wastewater treatment facilities and solid waste management facilities. Though there are many employment opportunities in the County, a substantial number of County residents work outside its borders. If this bedroom community form of growth continues, it can result in greater demands for public services than the County can supply. Generally speaking, unlike commercial and industrial forms of development, the tax revenues generated by residential development are often less than the cost of additional services it requires. Both demands for services and the costs of services and facilities have increased substantially in recent years. In most cases, fostering compact forms of development can improve the efficiency and reduce the per unit costs to provide public services. It can also produce more acceptable impacts on the natural and man built environmental features of the County. Sense of Community and Rural Character While the future costs of County services are of obvious and tangible import, a number of other more subtle, yet equally important, County qualities can also be influenced by the amount, form, distribution and qualities growth takes in the County. The rural and scenic qualities of many County areas have gradually disappeared with a suburban character taking its place in these areas. Nevertheless, most of the County continues to retain its rural character and qualities, which have traditionally defined the County, and represent an image favored by most residents. This rural character has supported a strong "sense of community" in Isle of Wight, which is among its more important assets. The form and distribution of future growth in the County will clearly affect the capacity of the County to retain these important qualities. Quality of the Natural Environment Isle of Wight County s natural environment assets include rolling topography, scenic rivers, wetlands, swamps, stream valleys, forested areas, farmlands and rural landscapes. These features create a setting of notable beauty. Ironically, the development, which accompanies population growth, threatens the natural features which attract people to the County. The consumption of land by man-made development has resulted in the loss of some of these important environmental features, which can diminish the environmental quality of the County and its aesthetic appeal. As development proceeds, floodplains, wetlands, upland natural areas, are altered and wildlife habitats are lost. As woodlands are cleared for development, watersheds are denuded, soil is washed into streams, and wildlife habitats reduced. Development in floodplains often results in both property and natural environmental damage from increased flooding. In addition, development can mean that vistas of the natural landscape are lost and replaced by man-made structures. Comprehensive Plan 4-3 Isle of Wight County, Virginia

96 Quality of the Man-Built Environment As the pace of development grows, there is concern that the quality of development in the County will decline in addition to a fear that the needs of older traditionally small community centers will be ignored. Additional concerns include strip commercial development along the highways, a condition which is unattractive and reduces the safety and traffic-carrying capacity of roadways; and, heavy traffic along many of the more minor roads from increasing numbers of commuters. In short, a wide range of both fiscal as well as quality of life features within Isle of Wight County will be influenced by future growth and the pattern it takes. Dimensions of Growth Management Consideration of efforts to manage growth has led Isle of Wight County to recognize there are several basic elements of growth management, each having a different aspect or function. One aspect of growth management is seeking to influence the type and amount of growth. A second aspect is one in which it is the location or distribution of the growth that is to be controlled. A third is related to the cost of the development and who pays for development related costs. Finally, quality control can be employed to some degree with all implementation strategies accommodating growth by applying specific performance standards to control qualities of site design and provide environmental protection. For the most part, the need to manage growth is due to the limited financial resources the County has to provide facilities such as sewers, schools and highways, which are necessary to meet projected demand. That concern is primarily related to the fear that current residents will have to pay for growth. All development related costs must be paid for and the question of who pays is an issue upon which most citizens and elected officials have had to focus their attention in recent years. The amount, distribution and timing of population growth and development are all conditions that County growth management objectives are intended to address. These factors, in turn, determine the costs of providing the facilities needed to support the new population and also influence the qualities of non-residential (commercial, industrial, and institutional) growth in the County. Conclusion Given the growth trends facing Isle of Wight County, a philosophy of growth management was forged in 1991 that can be basically described as a "contained growth" strategy. This philosophy provided for management of the location of future County growth by designating three DSDs for containment of the majority of expected development. This strategy permits more efficient future targeting of investments in transportation improvements as well as in improvements to, or expansion of, sewer and water facilities. Containment of the majority of County growth in these three districts within the County requires less land to be consumed County-wide by future land uses and, therefore, permits retention of rural character in other areas of the County. Maintenance of rural densities in these areas will minimize demand for public and capital investment and capital improvements permitting the County to target future capital improvements to "contained growth" areas. These improvements can then be considered more cost-effective as public investments will be focused in areas where the greatest concentration of users or beneficiaries exist to use them. Comprehensive Plan 4-4 Isle of Wight County, Virginia

97 Development in these three districts will take advantage of existing higher capacity transportation thoroughfares (Rt. 10/17, Rt. 460, and Rt. 58 corridors) in the County and reduce the potential for negative environmental impacts to sensitive resources in County locations outside targeted growth areas. The "contained growth" philosophy is supported by a number of studies conducted nationwide in recent years which have evaluated the differences in impact on social, environmental and economic resources resulting from alternative development patterns. Noteworthy among such studies is one undertaken jointly at the Federal level by the Council on Environmental Quality, the Department of Housing and Urban Development and Environmental Protection Agency. The conclusions of their research are documented in The Costs of Sprawl published in A number of more recent studies have detailed the differences in cost between sprawl and more contained growth patterns (Duncan 1989, Frank 1989, and Burchell 1992). Taken together, these three studies show that contained or smart development consumes 45% less land, costs 25% less for roads, 15% less for utilities, 5% less for housing, and costs 2% less for other fiscal impacts (Burchell and Listokin, 1995). Another way to express the costs of sprawl is to examine the cost of providing services to a single dwelling unit in different development patterns. A study performed by James Frank in 1989 for the Urban Land Institute (ULI) titled The Costs of Alternative Development Patterns, did this by reviewing 40 years of fiscal impact studies and expressing their results in 1987 dollars. His conclusions, summarized in the table below, are that it costs more to service homes in low-density developments located far from public service centers. The original 1987 dollar amounts were updated to 2003 dollars using the method referenced below. Table 4-2 Capital Cost of Services for a Single Dwelling Unit Development Pattern Capital Cost (1987 Capital Cost (2003 Dollars) Dollars*) Smart growth (mix of housing types) $18,000 $29,148 Low density sprawl $35,000 $56,675 Low density sprawl, 10 miles from existing development $48,000 $77,727 Source: Burchell and Listokin, Land Management, Housing Costs and Fiscal Impacts Associated with Growth: The Literature on the Impacts of Sprawl versus Managed Growth, Lincoln Institute for Land Policy, 1995 *Converted from 1987 dollars to 2003 dollars using the formula provided by Economic History Services that is based on the Consumer Price Index. Stated in general terms, the major conclusion of research is that, for a fixed number of households, sprawl is the most expensive form of residential development in terms of economic costs, environmental costs, natural resource consumption and many types of personal costs. The County needs to encourage development in areas where adequate public facilities exist or can be efficiently provided. Management of the location of growth is but one of many growth management measures designed to achieve County objectives. Management of the costs of development, particularly in those areas where future development is to be contained, is also important components of the County s growth management strategy. Comprehensive Plan 4-5 Isle of Wight County, Virginia

98 Finally, the qualities of development need to be afforded attention through adoption of land use controls, which include quality of site design and environmental protection performance standards particularly where higher development densities are to be contained. Conservation Development Practices, Overlay zones and development guidance systems (see the Land Use Plan element) will be required to minimize environmental impacts and public costs, and foster quality in site design as threshold requirements for development approval through conditional rezoning. In summary, the primary purpose of the Comprehensive Plan is to manage future County growth, recognizing that a serious commitment to this objective requires management of growth's rate, location, quality and costs. Only through treatment of all these aspects of growth can real results be anticipated. The following elements of the Plan, particularly the Land Use Plan Element, establish detailed policies, which serve to implement these growth management concepts. Growth Management Issues While the topic of growth management encompasses many aspects of County growth and development, it most strongly relates to land use planning. Existing and future land use patterns will affect such things as: planning for water, sewer, and other community facilities; planning for roads; planning for economic development; agricultural preservation; opportunities for affordable housing; protection of sensitive environmental features; natural resource management; etc. Decisions made concerning land use affect most other aspects of County growth management. Early in the process of developing the 1991 Comprehensive Plan a number of growth and development issues and concerns were identified by County residents and a Plan Advisory Committee formed at that time. Many of these issues and concerns have been reaffirmed, and others have been identified by a Citizens Advisory Committee formed in 1998 to guide the update of the 2001 plan. These issues and concerns form the basis for establishing growth management objectives for Isle of Wight County. They include: The need to accommodate new growth (residential, commercial, and industrial) in an orderly fashion with respect to location considerations, environmental and economic impacts, and quality of development. The need to preserve rural character, which includes agriculture, open space, low taxes, low crime rate, and a strong sense of community. The need to preserve the agricultural and seafood industries and traditions within the County. The need to conserve and protect the County's natural resources and environmentally sensitive areas. The need to provide additional commercial and industrial opportunities within the County to maintain a favorable tax base and mix of employment opportunities. The need to provide needed community facilities in a cost-efficient manner so that new development pays a fair-share of the costs associated with additional demand. Comprehensive Plan 4-6 Isle of Wight County, Virginia

99 The need to plan ahead for future road improvements and new alignments with consideration given to avoiding congestion and the appearance of future County highway development. The need to improve cultural and recreational amenities such as libraries, parks, historic sites, and waterfront access which will improve the quality of life for County residents. The need to encourage the provision of a variety of housing opportunities, ranging in type and affordability, which are compatible with the existing high-quality residential character of the County. The need to improve coordination/cooperation between the County and incorporated jurisdictions, both within and adjacent to Isle of Wight, regarding growth management. Growth Management and Land Use Goals and Objectives GOAL: To guide future development into an efficient and serviceable form which is protective of the County's predominantly rural character. Objectives Discourage growth in areas with significant natural development constraints such as environmentally sensitive areas and natural resource areas. Direct the majority of future County development to areas already served, or proposed to be served, with adequate public facilities such as sewer, water, roads, schools, etc., consistent with approved plans for the phasing of these improvements. Limit future suburban sprawl in rural and agricultural areas where adequate public facilities do not exist or where their provision would not be cost-effective. Preserve farmland, forested areas, open space, and rural character. Discourage strip development along County roads and highways for both traffic safety and aesthetic reasons. Require that adequate public facilities are in place or will be in place according to an approved phasing plan prior to development approval, regardless of where the development is located. Provide land areas for balanced future commercial and industrial development in locations, which are compatible with existing and planned residential development. Encourage future growth to pay a fair-share of the associated costs for additional public Comprehensive Plan 4-7 Isle of Wight County, Virginia

100 facilities and services for which new development generates demand. Improve the quality of future development and redevelopment in DSDs through improved site planning, landscaping and development design guidelines that foster a clear sense of neighborhood and community. Encourage new development within DSDs and designated activity centers to consider incorporating traditional neighborhood design (TND) concepts that are reflective of the characteristics of small older communities of the late 19 th and early 20 th centuries. These design concepts include smaller front yards and the appearance of a clearly defined streetscape; mixed land uses; grid street patterns; emphasis on pedestrian circulation; intensively used open spaces and architectural character which together foster a sense of community. Identify and preserve historic and/or architecturally significant areas, sites, buildings, and properties within the County. Coordinate County growth management plans with plans and policies of the incorporated Towns of Smithfield and Windsor, and adjacent jurisdictions. Preserve the unique character of the County's many existing small rural villages. Growth Management Concept The County growth management concept is best reflected through the Land Use Concept plan map (Map 4-1). The map identifies those locations most appropriate for future development as well as areas of the County where development should be limited to protect rural character or protect sensitive environmental resources. The Land Use Concept plan provides the basis for targeting future investments in public infrastructure to support development in appropriate locations. The growth management concept, at the broadest level includes three major categories of land use. They include: Resource Conservation Areas which include areas dominated by environmental features that are particularly sensitive to development. These areas include Resource Protection Areas as defined by the Chesapeake Bay Preservation Act. Rural Service Areas which are further divided into two land use planning districts that are rural in their orientation. They include: o Rural/Agricultural Conservation Districts, and o Village Centers Development Service Districts which are further separated into o seven land use planning districts. They include: o Resource Conservation Areas; o Conservation Development Areas; o Suburban Estate Residential Areas; o Suburban Residential Areas; Comprehensive Plan 4-8 Isle of Wight County, Virginia

101 o Mixed Use Areas/Activity Centers; o Business and Employment Areas; and o Planned Industrial Areas. In addition to these broad categories of land use, the growth management concept outlined in this chapter identifies the Highway Corridor and the Newport Service Overlay Districts as special areas of concern intended to address architectural and aesthetic controls as well as special access and buffering requirements along the County's major highways. These districts are described later in the chapter. Map 4-1 identifies the location of most of these planning districts. Within areas denoted DSDs on map 4-1, only those portions designated as Mixed Use Activity Centers are shown. The location of other sub-categories of land use proposed and their location and extent within each of the DSDs are shown on maps 4-9 through 4-11 for each Development Service District (DSD), respectively. Table 4-2 provides a detailed description of each of the proposed Land Use Districts. Comprehensive Plan 4-9 Isle of Wight County, Virginia

102 Table 4-3 LAND USE DISTRICTS ISLE OF WIGHT COUNTY COMPREHENSIVE PLAN Land Use District Location Character Appropriate Land Use Resource Areas Areas dominated by environmental Character is reflected in Wetlands, Farms and Forest Uses. features which are particularly environmental features including Open Space and Limited Park sensitive to development (e.g. extensive wetlands, flood prone Facilities in appropriate locations. wetlands, flood prone areas, streams areas, estuaries and stream systems. Greenways, blueways and trails in Resource Conservation Area and stream buffers, unique habitat Character is largely undeveloped appropriate location. areas and Resource Protection Areas with land cover dominated by as defined by the Chesapeake Bay wetlands, forest cover or farmland. Preservation Act). Includes substantial land areas in the James River and the Blackwater River watersheds. Rural/Agricultural Conservation Village Center This land use type is intended to cover the vast majority of the County that is outside the DSDs and encompasses the large areas devoted to agriculture and forest land. These areas comprise the small communities outside the DSD located at rural crossroads that serve as the institutional, commercial, social and religious focal points of Rural Service Districts Dominated by agricultural land and forested areas, these areas contain the main land resource base in the County. Small groupings and scattered residential uses dot the landscape. While the tendency is for new development to be stripped out along the roads, the farmstead cluster should be encouraged as the preferred model for future rural development. Details of this are found in the Zoning and Subdivision Ordinances. These areas are characterized by clusters of residential development surrounding predominately smallscale country stores, churches and other essential services to the rural Agriculture, horticulture, forest lands, and scattered residential development at a low density. Non-farm uses, such as resource extraction, and small scale processing of the agricultural and forest products may be accommodated when appropriately sited. Detached single family residences. Limited commercial, social, religious and institutional uses that predominately serve the residents of the rural service area. Comprehensive Plan 4-10 Isle of Wight County, Virginia

103 rural areas within the County. community. Land Use District Location Character Appropriate Land Use Development Service Districts Areas which are currently undeveloped and near or adjacent to environmental resources which are sensitive to disturbances associated with land development Areas removed from major transportation routes or planned locations for public sewer and water facilities. Conservation Development Area Suburban Estate Locations suitable for development that have or will have access to public sewer and water, but are generally removed from major transportation routes. While areas already developed exist, new areas would generally not be located adjacent to Mixed Use Activity Centers or Business and Employment Centers. Currently rural with land cover dominated by farm and forest uses with some limited, large lot (over 2 acres in size) single-family development. In many cases serves as a buffer area between the suburban residential or suburban estates areas and the resource conservation areas. Future Development form is generally very low density, clustered in form, with 50% or more of sites developed maintained in farm, forest or open space. Development would be limited to single family residential development at densities ranging from.5 to 1 unit per acre (1 to 2 acre lot sizes). Extension of existing streets to interconnect with adjacent sites of similar character should be encouraged. Loop lanes and roads, rather than cul-de-sacs are preferred. Character would be defined and established by landscaping standards, development design standards, provision for parks, common areas and open space and conservation development practices. Farm and Forest Uses. Single Family Residential development in either large lot form (5 acres) or in clustered form with smaller lots and substantial areas retained for farm, forest, or open space uses. Densities of approximately 1 unit per five (5) acres with densities adjusted depending on the presence of sensitive resources (wetlands and floodplains). Limited Public and semi-public uses which are supportive of resource protection, conservation and open space uses. Single family detached residential development in typical or clustered form. Neighborhood parks and playgrounds. Open space, including sensitive natural features such as wetlands, flood-prone areas, forest cover, and other features that reflect important cultural landscape elements or viewsheds that should be protected or retained. Development should be compact in form, with trails linked to any future Greenway system of trails. Comprehensive Plan 4-11 Isle of Wight County, Virginia

104 Land Use District Location Character Appropriate Land Use Development Service Districts These locations are in close Single family detached, single proximity to major transportation routes and existing or proposed family attached, and multifamily residential with varying densities. sewer and water facilities. Areas proposed as suburban residential are adjacent to Mixed Use Activity Centers, Business & Employment areas, or adjacent to residentially developed areas within the Towns. Suburban Residential Existing areas with a density of 1 to 2 units per acre (.5 to 1 acre lots), such as Carrisbrook, Carrollton Forest and Gatling Point, are included in these areas. Mixed Use Areas/ Activity Center These areas are designated for a mixture of uses at existing or future major road intersections, where public sewer and water are proposed with a capacity for more intensive development. Mixed Use Areas/Activity Centers should consist of large tracts that allow for extensive planning to accommodate a diversity and integration of uses. Areas already designated for townhouses and apartments along with existing major commercial facilities are also included. Single family detached development would be limited to a density of up to 4 units per acre (.25 to 1 acre lot sizes). Development should provide opportunities for extension of collector streets to interconnect with adjacent sites of similar character. Traditional grid or modified grid patterns and loop lanes rather than cul-de-sacs would be encouraged. Character would be defined by landscaping standards, specific development design codes and standards, provision for neighborhood parks, common areas and open space and conservation development practices that may permit clustering of development as a trade-off for retention of open space. Mixed-use areas are characterized by a high degree of planning, with an emphasis on pedestrian scale and a high standard of landscaping, open and public spaces, and building design. Use of traditional neighborhood development (TND) principles encouraged including mixed land uses, clearly defined streetscapes using smaller front yards on narrow lots to foster a sense of enclosure and architectural character reminiscent of the late 19 th and early 20 th Century. Areas Comprehensive Plan 4-12 Isle of Wight County, Virginia Neighborhood parks and playgrounds. Open space, including sensitive natural features such as wetlands, flood prone areas, forest cover, and other features that reflect important cultural landscape elements or viewsheds that should be protected or retained. Development should be compact in form, with trails linked to any future Greenway system of trails. Public and semipublic uses (e.g. schools, libraries, churches) may be appropriate when closely related to the scale and intensity of residential uses. A wide range of residential types, including single family detached on smaller lots, single family attached and townhouses, to apartments and multi-family residential, with varying densities. Existing or proposed Commercial Shopping Centers and related retail sales establishment. Existing or proposed cultural, religious, educational and public administrative and services facilities.

105 labeled Activity Centers should also include a mix of the land uses, in order to encourage appropriate uses and densities that foster current and future neighborhood development patterns within and around existing communities. These land uses may be representative of any of the six (6) mixed use planning districts and should be designated following an extensive area study that focuses on maintaining the character of the existing community. The study should include a market analysis to determine the type of commercial/business and other service oriented-uses that can be supported by the area. Land Use District Location Character Appropriate Land Use Development Service Districts Business & Employment Planned Industrial These areas are located at existing or future major road intersections or where the roads are adequate to accommodate traffic flows, and where public sewer and water are proposed with a capacity for intensive development. Locations with access to major highway corridors and/or rail service and where public sewer and water and other public facilities are or will be adequate to accommodate Planned office parks and large independent facilities in park-like or campus style surrounds. Nonvehicular links to Activity Centers and adjoining residential uses should be provided Industrial areas should be confined areas designed for production and distribution, yet buffered from adjoining residential uses. Nonvehicular links to Activity Centers Comprehensive Plan 4-13 Isle of Wight County, Virginia Offices and related support retail services and facilities. Public administrative and services facilities. Community Shopping Centers when planned as integral facilities. Light manufacturing, research and development, and similar clean industrial uses conducted entirely within buildings that are compatible with surrounding development. Light and heavy manufacturing, warehousing and distribution activities, and associated uses. General use aviation and commercial airports. Commercial

106 Civic industrial development. Areas where existing industry and industrial zoning are included in these areas. These areas include publicly-owned lands, government-owned buildings, and other public and semi-public institutional uses. and adjoining residential uses should be provided Future development for these areas should entail a high degree of planning with a high standard of landscaping, open and public spaces and building design. uses, limited retail and services supportive of surrounding industrial uses should be allowed. Appropriate uses could include, but would not be limited to, County offices and facilities, schools, parks, public safety institutions, cultural facilities, and other uses that serve the public. Comprehensive Plan 4-14 Isle of Wight County, Virginia

107 These land use districts are described in terms of their respective roles in guiding and managing County growth and development. The description of plan area/districts includes discussion of the general types, intensities, and character of development which should be encouraged within. Land use districts are derived from a combination of factors including: existing land use patterns; projected growth and development trends; the natural capacity and suitability of the land to support development; the availability and adequacy (existing and proposed) of development infrastructure such as roads, sewer, and water; and the community goals and objectives contained in this Plan. The Land Use Plan Map, the characterization of proposed Land Use districts in Table 4-2 and the following text establish a framework and basis for further refined classification of land into zoning districts pursuant to plan adoption. In addition to serving as a general guide for land use policy, the growth management concept should also serve as a guide to County decision-makers regarding capital improvements programming for community facilities and transportation planning. Isle of Wight County is composed of a wide array of unique communities and landscapes. The County has in the past and will continue in the future to provide detailed area-specific plans and policies. The Comprehensive Plan includes many smaller area plans and efforts and are adopted as components of the Plan as if fully set out in the Plan. These smaller area plans are not fully set out in the Comprehensive Plan but are included by reference and are included in the appendices of this document. These documents are separate, complete, stand-alone documents. These plans are components of the Comprehensive Plan and should be consulted for specific proposals in the affected areas. The remainder of this chapter is dedicated to a discussion of the plan area/districts and the respective roles they are intended to play in guiding future land use and development in Isle of Wight County. Resource Conservation Areas The County's growth management objectives indicate that special emphasis should be placed on the preservation of natural resources, sensitive natural areas and waterfront areas. Given the exurban Hampton Roads development pressures, there will likely exist an almost unlimited demand for waterfront homesites in the County. Without a firm commitment to preserve the natural beauty and environmental resources in these areas, the County could find these important natural assets exploited. The Land Use Plan Map therefore designates land areas along all shoreline and tributary streams of the County as the Resource Conservation Areas. These areas include tidal and non-tidal wetlands which are adjacent to shorelines and tributary streams as well as floodplains, stream valleys, steep slopes, and soils with development constraints. The Resource Conservation Areas includes Resource Protection Areas (RPAs) and substantial land areas designated Resource Management Areas (RMAs) as defined by the Chesapeake Bay Preservation Act. The Preservation Act affects all drainage areas of the County, which impact Chesapeake Bay water quality. RPAs include: tidal wetlands, non-tidal wetlands connected by surface flow and contiguous to tidal wetlands or tributary streams; tidal shores; and a 100 foot vegetated buffer located adjacent to and landward of the above listed features. RMAs are provided contiguous to the entire inland boundary of the RPA. The following land features which should be most protected within RMA s include: floodplains; highly erodible soils; highly permeable soils; non-tidal wetlands not included in the RPAs. The Plan's Resource Conservation Areas contains environmentally sensitive land areas both within the Comprehensive Plan 4-15 Isle of Wight County, Virginia

108 Chesapeake Bay watershed as well as the Blackwater River and other County watersheds, which drain elsewhere besides the Bay. In most cases, only passive recreation use and low density residential development is appropriate in the Resource Conservation Areas provided development design is protective of environmentally sensitive features. The qualities of Isle of Wight's natural resources are an important component of the County's heritage and a major factor influencing the County's continued economic and environmental well being. Major areas of the County in the Resource Conservation Area include: The James River and Blackwater River, Pagan River and Jones Creek shorefront, and the man-made reservoirs such as Lake Burnt Mills, Lake Prince and Western Branch. This is not to suggest that these are the only areas of the County where resource conservation should be practiced, but rather, these are areas where the largest concentrations of environmentally sensitive features exist. Wherever resource constraints are present, development proposals should be carefully reviewed and mitigation measures prescribed. Performance standards for development within areas designated Resource Conservation Areas implement protection policies in order to achieve consistency with implementation requirements of the Chesapeake Bay Preservation Act. These standards provide that: No development be permitted on slopes exceeding 15 percent where soils are unsuitable. Development in floodplains should be limited and responsibly managed Clearing of woodlands and forests should be minimized to the extent possible. In general, only very limited low density residential development should be permitted in those areas of the Resource Conservation Area, which are developable. When development does occur in the Resource Conservation Areas, all environmental impacts should be avoided and in cases where impacts do occur, mitigation measures should be employed. The State and private conservation organizations should actively pursue programs to purchase and/or acquire easements for privately owned lands in the Resource Conservation Areas so they can be preserved. Rural Service Areas Rural/Agricultural Conservation District The Rural/Agricultural Conservation District is intended to maintain and conserve rural character and farmlands in County areas consistent with Comprehensive Plan objectives. Rural/Agricultural Conservation District land areas are intended to provide for a full range of agricultural and farming activities and related uses along with some low-density residential development. The conflicts between farming and rural non-farm development (residential) should be minimized as the needs of farming are acknowledged and non-farm development is accommodated as a subordinate use. When non-agricultural land uses extend into agricultural areas, farms often become the subject of Comprehensive Plan 4-16 Isle of Wight County, Virginia

109 nuisance suits. As a result, farmers are sometimes forced to cease operations. Many others are discouraged from making investments in farm improvements. In recognition of the farmer's right-tofarm without being restricted by neighboring residential areas, hours of operation of farm equipment, restrictions on odor-producing fertilizers, and other restrictions designed to limit the perceived negative impacts associated with reasonable farming practices should not be imposed on farming activities within the Rural/Agricultural Conservation District. The general intent of the Rural/Agricultural Conservation District is to encourage farming and maintain rural qualities in areas so designated in the County. Rural/Agricultural Conservation, as a component of the Comprehensive Plan, is not limited to traditional farming but extends to all aspects of the County's rural character. Agricultural land refers not only to tilled fields, but also to open fields, pastures, and woodlands, which are either prospects for additional farm acreage or are valuable as they are for their many contributions to the environment and to the rural appearance of the County. Agriculturally related or support industries (farm implement dealers, supply services, storage and processing facilities, etc.) should be permitted within this district in recognition of the support they provide to the farming community. Residential Density Residential development and density in the Rural/Agricultural Conservation District should be minimized to avoid future conflicts between farming activities and rural homes. Three options are recommended for residential density in the Rural/Agricultural Conservation District. A property owner or developer should be able to choose the option which best suits their needs and objectives. The first density option is based on a sliding scale approach. Using this option, density is determined by the size of the parcel. The second option provides property owners the incentive of higher possible densities if certain standards of rural residential development are met. These density bonus incentive standards include such conditions as; development clustering, visual enhancement to reinforce rural character, rural highway access controls, and restricting sensitive lands or agricultural lands with conservation easements. The third option is the by-right sliding scale/clustering option. The Board adopted this third option in 2007 in response to the mandatory clustering provisions adopted by the General Assembly. These provisions mandate that the County must designate 40% of unimproved lands zoned residential and agricultural for by-right cluster development. Sliding-Scale Approach Under this option, the base density for lots of 20 acres or less should automatically be one (1) dwelling unit per ten (10) acres. One (1) additional lot should then be allowed for every additional 40 acres of original parcel size. A 100-acre parcel, for example, would yield four (4) lots. This provision is based on the assumption that parcels of 20 acres or less do not typically constitute adequate land area for productive farming operations, unless they represent specialized non-traditional farming (e.g. nurseries or orchards). The disadvantage of this approach is that, unless managed, it will most likely cause the creation of large lot subdivisions which are land consumptive and do not promote conservation of agricultural lands. To off-set this condition, property owners using the sliding-scale approach should be encouraged to reduce lot sizes through limited clustering provisions that require retention of 70 percent of the original tract size. Clustering/Sliding-Scale Provision Development utilizing the sliding scale approach will be by-right commensurate with the goals and objectives of the rural/agricultural conservation district to maintain the County s rural character and preserve farmlands and forestal uses consistent with the Comprehensive Plan. The standards governing Comprehensive Plan 4-17 Isle of Wight County, Virginia

110 by-right development as described in the County s zoning and subdivision ordinances shall be consistent with the regulations described in Section of the County of Virginia as amended. The standards applicable to the clustering/sliding scale provision will reflect the following development criteria: All residential lots created through the act of subdivision should be served by one point of access to County roads. Residential structures in the subdivision should be located at least 100 feet from the existing County road right-of-way and screened from the right-of-way by an existing or planted landscaped buffer. All residential structures should be setback at least 100 feet from all active farm operations. A central water supply system may be provided to serve the subdivisions with over 14 lots. Lots can be any size desired by the owner, typically ranging from one acre to five acres in size, provided the Health Department standards for septic systems are satisfied. Clustering/Density Bonus Approach As an alternative to the sliding scale approach and assuming public sewer is available, property owners may opt for higher densities as a method to achieve and provide for the County s affordable housing needs in the rural areas of the community. Under this approach, the base residential density in the Rural/Agricultural Conservation District should be one (1) dwelling unit per 10 acres with at least 50% open space set aside, but may be increased to one (1) dwelling unit per eight (8) acres with at least 60% open space set aside, or one (1) dwelling unit per five (5) acres if at least 70% open space set aside. The five (5) development criteria referenced above with the clustering/sliding scale approach will also apply to the clustering/density bonus approach. Through the clustering/density bonus approach, the developer is able to decrease lot sizes in return for setting aside permanent open space while meeting the affordable housing needs of Isle of Wight County. This provides many benefits including lower land costs for the lot purchaser and decreased road construction costs since lots are grouped together as opposed to scattered throughout the site. The community benefits through provision of open space, farmlands and rural character Using this approach, a property owner with a 100-acre farm can create up to 20 lots (one (1) dwelling unit per five (5) acres) provided they are clustered onto 30 acres of the farm and the remaining 70 acres would be left for farming or open space. The homes would also have to be setback 100 feet from the County road and located on a single access road with driveways. Numerous individual drives onto County roads would not be allowed. The homes would have to be screened from County roadway view, thereby protecting rural character. Homes would also have to be setback from active agricultural operations in order to minimize farming impacts on home sites. The same scenario on a 40-acre property would yield eight lots on 12 acres and would leave 28 acres in open space or farming. Average lot size for lots on both the 100 and 40 acre parcel would be 1.5 acres. The open space land could be left in its natural state or maintained for farming or forestry purposes. Control of the open space land can be left with the original property owner or dedicated to a Comprehensive Plan 4-18 Isle of Wight County, Virginia

111 homeowners association. Land areas encumbered by natural development constraints such as wetlands should be included in the open space. Minimum lot sizes for clustered development in the Rural/Agricultural Conservation district should be a function of soil suitability for septic tank systems. The above described residential density provisions recognize that while rural character and agricultural conservation are important County objectives, there remains a need to allow farmers and rural property owners to subdivide and sell single-family home lots as the need arises. The Plan recommends that rural residential subdivisions be directed to areas of the Rural/Agricultural Conservation District which have good proximity to existing residential areas and commercial and public services. Rural residential subdivisions should not be encouraged in remote areas where County roads are not adequate for increased traffic or in areas where existing agricultural activities predominate, such as in or near the County Voluntary Agricultural and Forestal Districts. The cluster approach described above was adopted by the County in 1997 as part of the new Zoning Ordinance. Previously the County had received proposals utilizing this approach or a variation of this approach, but the Board of Supervisors had denied the requests due to their remote location and lack of adequate roads to serve the proposed development. In 2005, the County approved the first rural cluster that employed the Density Bonus Approach. This development, called Lawnes Point, contains 155 lots on 1,550 acres and is located in the northern most portion of the county. Despite a greater number of established examples of development utilizing this approach, the County will retain this optional form of development for the rural services areas into the foreseeable future. The Rural/Agricultural Conservation Areas is therefore provided in the Comprehensive Plan to preserve rural character and open space, to foster agricultural activities and opportunities, and to protect valuable natural resources. It is further intended to prevent premature urbanization in areas where public utilities, roads and other public facilities are planned to meet rural needs only and where present public programs do not propose infrastructure suitable for development at higher densities. Village Centers Within the Rural/Agricultural Conservation Areas, there are several existing villages and crossroad settlements, which perform a number of important community functions. These include serving as centers for rural residential development and providing for commercial services for surrounding rural areas. The ability of these Centers to accommodate some portion of the future growth of the County is a function of their location and the existing scale of development and range of services provided to surrounding rural areas. Characteristics common to most of these rural Village Centers are the existence of homes, post offices, country stores, agricultural supply operations, home occupations, and structures which house public facilities or civic organizations (e.g. fire station, church, etc). The concept of the Village Center is included in the Comprehensive Plan in order to recognize and provide for the special needs of these rural centers. Originally, these centers included such places as Rescue, Battery Park, Zuni, Walters, Isle of Wight Courthouse, Rushmere, Orbit, Central Hill, Wills Corner, Uzzle's Church and Colosse. These Village Centers are often very different in size, character and function; however, each serves an important role to the surrounding area. In 2003, the Board of Supervisors removed the village center designation from Uzzle s Church and Colosse at the request of the residents. With this Comprehensive Plan the village center designation was removed from two other rural service centers. Orbit and Wills Corners designations were removed due to changes in the character of these rural service centers. These former village centers do not provide or contain any civic facilities, social club facilities, church activities or business operations. Comprehensive Plan 4-19 Isle of Wight County, Virginia

112 These rural service centers serve a multitude of functions in Isle of Wight County. They range in scale from a fork in the road where a general store and beauty parlor are located, to a rapidly expanding community that is beginning to emerge as a service center of regional scope. Their distribution throughout the County is shown on the Land Use Plan Map. Many have historic qualities such as Isle of Wight Courthouse, which suggests future development should be limited in scale and compatible in character. In spite of their unique individual qualities, these settlements share much in common, and collectively they play an important part in Isle of Wight County life. In general, these Village Centers tend to be basically residential in character, but also often offer some employment through limited commercial services as well as public or institutional uses. In general, the Village Centers are areas, which function as rural service centers. The County should preserve and enhance the present character of the Village Centers in order that they may continue to serve their traditional roles in County life. In the future, it is possible that additional Village Centers might be identified. However, their future designation should be a function of their need to serve as service centers in the context of their existing distribution in the County. These new Village Centers should be limited to providing the most basic commercial services for the convenience of the rural population. Generally, the areas shown as Village Centers should: Remain small in population size. Remain small in physical area. Continue to provide limited, highly localized commercial services (such as a gas station or general store, etc.). Continue to provide limited employment opportunity. Have a population density greater than the surrounding rural areas which they serve. Maintain a unique sense of place as identified by their existing character, scale, density and architectural style. The need for central water and sewer is not anticipated in the Village Centers. However, in Village Centers where land application of wastewater is a feasible treatment technology (i.e. soils are potentially suitable), these systems can allow greater clustering of residences and opportunities for commercial use. In order to assure the continued small size of the Village Centers, any central water or sewer system which is eventually provided should be built to serve land area and development only within the immediate proximity of the Village Center itself and not extend into adjacent rural areas. Village Center Boundary Delineation Project Until 2003, the village centers were without geographic outline and essentially appeared as places on the county map. The exception to this was Carrsville which had a boundary delineated in the 2001 Comprehensive Plan. In April of 2002, the County proceeded with the Village Center Boundary Delineation Project in order to establish the boundaries for the other village centers. At that time, the Comprehensive Plan 4-20 Isle of Wight County, Virginia

113 Board of Supervisors adopted steps for the project s community planning process. These steps included the establishment of committees representing each village, committee meetings, public relations, community involvement and input, Planning Commission public hearings and Board of Supervisors public hearings. The committees from each village center met and, with the assistance of the County s Geographic Information Systems (GIS) technician, created a draft boundary for their village center. A public meeting was held for residents at which time they gave input to the draft delineation of the village center. The first meeting was held at Rescue where the residents believed that more of the surrounding area should be included within the village center. In order to keep the boundary of the village center relatively small as intended by the project, Rescue and, subsequently, the other village centers were given a boundary for both the village center and an expanded area called the community boundary, which establishes a sense of place and identity for residents outside but near each village center boundary. During the project process, the residents of Uzzle s Church and Colosse decided not to participate in the project and requested withdrawal of the village center designation. The Board of Supervisors approved this request of the residents of these two rural centers. The result of this project was the creation of the Village Center Boundary Delineation Project document which contains maps for each village center and community boundaries. The document also contains a revised description for each village center. In May of 2003, the Board of Supervisors adopted this document as an addendum to the Comprehensive Plan to include the boundaries of the nine remaining village centers. The project document is available at the Department of Planning and Zoning. The revised Village Center descriptions and boundaries are herein incorporated. Battery Park First known as Pates Field until 1692, Battery Park is rich in history and experience. It is the first recorded village in the County. Battery Park s history begins as early as It was near this village in an area known as Pagan Point that the Warrosquoyacke Indians lived and traded with Captain John Smith. Years later in 1690, the General Assembly authorized the building of towns or storehouses in every county exporting tobacco to accommodate the increase of production of this crop. Pates Field was designated as the Isle of Wight site. Its proximity to the Pagan and James River made it a prime location for shipping. The anticipation was that this designation by the General Assembly would create a booming town built around the wharf. And while it did not meet this expectation, those who reside in Battery Park find it quaint and enjoyable. After the Civil War, the village was renamed Battery Park for the rows of defense batteries placed there during the war. Before the construction of the James River Bridge, Battery Park had a steamboat dock with daily trips to and from Newport News and Norfolk. Oystering has traditionally been the major industry of the community with as many as three-fourths of its residents engaged in the business shortly after the turn of the 20 th century. Furthermore, at one time Battery Park, along with other public seed oyster areas along the James River, was considered to be one of the largest and most productive public oyster seed areas in the world. Watermen traveled from other parts of the state to shuck oysters in this area. Unfortunately, oystering in Battery Park diminished in the early 1940 s prior to World War II. Many watermen left the waterways and took jobs in more factory-oriented professions. Located on the other side of Battery Park is the village of Rescue. For years these two villages were Comprehensive Plan 4-21 Isle of Wight County, Virginia

114 separated and people reached either side by some waterway craft. A bridge connecting Rescue and Battery Park was constructed in the early 1900 s. First constructed as a drawbridge, the bridge was difficult to move. Perhaps, more perplexing was the fact that the foundations of the first bridge were located on marshy land that caused the bridge to sink. This first bridge lasted until 1937, when it was replaced with a bridge located south of the first. There is one church in Battery Park. The Battery Park Baptist Church is a dominant structure in the village. It was organized in 1899 and the church is located at the intersection of Warwick and Newport Street. Battery Park also has its own post office, located at the intersection of Todd Avenue and Warwick Street. The post office was established in The Village Center boundaries are shown on Map 4-2. The village center consists of the original platted lots located on Todd Avenue, Warwick Street, Battery Street, Newport Street, Park Street, River Avenue and Hampton Street. It continues southeast along Rescue Road ending at Battery Park/Rescue Bridge. Located within the village boundary are Battery Park Baptist Church, the post office, a small industrial business, and single-family residences. The Village of Battery Park is quite unique and quaint, and its character should be preserved. The map also shows the boundary for the larger community of Battery Park, which begins at Battery Park Road east of the Gatling Pointe and Gatling Pointe South Subdivision and transverses south to include Fair Hills Lane and Hayes Lane. Its eastern boundary is the Jones Creek and its northern boundary is the James River. Carrsville Carrsville is among the larger villages in land area in the County but in recent years has remained limited in population size due to limited public facilities available to service development. The Carrsville Elementary School, Post Office, and fire station are noteworthy community facilities in the village. The village is located along Route 58 near Suffolk. Significant amounts of new development in this area are not anticipated within the near five-year planning period but may occur at some future point in time concurrent with the extension of the Hampton Roads Sanitation District sewer facilities through this corridor. As development occurs in the Carrsville area, it should respect the village character of the development that is currently established in the area. The extent of the Carrsville Village Boundary is shown on Map Central Hill The focal point in this village is the hill, on which a church sits overlooking residential homes and farming operations. Although it is uncertain where the name Central Hill originated, present day residents of the community believe that it indeed had something to do with the hill itself. Central Hill is known for its integral role in the lumbering industry, one of the largest industries in the County. The first lumbering operation in the village began in the late nineteenth and early twentieth century with the expansion of the Fergusson Brothers lumbering business in the Rushmere area and later with the Surry Lumber Company. The lumbering industry was present in Central Hill area until After lumbering operations ceased in Central Hill many of the employees, who migrated here for the Comprehensive Plan 4-22 Isle of Wight County, Virginia

115 work, decided to permanently reside in Central Hill in the housing that had been provided for them. County records show that in the same year the lumber business closed, land was platted in the Central Hill area. According to community residents the names of the avenues in the subdivision are named for the native state from which the workers migrated. The names of the avenues are Maryland, North Carolina, South Carolina, Virginia and Florida Avenue. Virginia Avenue was renamed Mount Olive Avenue after the Mount Olive Apostolic Faith Holiness Church during the street naming process to avoid the duplication of street names (namely Virginia Avenue). A school was established in the school session to educate the children of Central Hill and surrounding area. The school was located within the village center. The earliest church established in Central Hill was the Central Hill Baptist Church (circa 1885) located in the center of the village atop the hill. Records indicate that the name Central Hill came before the church, indicating that the church received its name from the village. Actually before the church was known as Central Hill Baptist it was Reedy Branch Baptist Church. Also located in Central Hill is Mount Olive Apostolic Faith Holiness Church, located on Mount Olive Avenue, which was established in The Village Center boundaries are shown on Map 4-3. The village center is essentially the original Central Hill subdivision for the Surry Lumber Company workers. It includes Maryland, North Carolina, South Carolina, Mount Olive and Florida Avenues. Central Hill Baptist Church, Mount Olive Apostolic Faith Holiness Church and a small general store are all located within the village center boundary. Although Central Hill is primarily a residential community, there is potential for limited commercial development in the village to provide essential goods and services to the Central Hill residents as well as other County residents in the surrounding rural areas. There may also be opportunity for the development of farm service and supply businesses. The map also shows the boundary for the larger community of Central Hill, which begins at Central Hill Road and Courthouse Highway (Route 258) and extends down Central Hill Road to Broadwater Road. The Community Boundary was meticulously drawn to ensure that areas that had its own identity, but not necessarily designated as a Village Center, were not included in the boundary. In addition, it was drawn as not to include property owners that felt they were not located in the Central Hill community. To this end, the boundary extends down Pope Swamp Trail and stops before what is known as the Whitely area. It includes only a small portion of Peanut Drive, and it extends down Whispering Pines Trail, stopping just before the campground. Lastly, the boundary does not include the parcel historically known as Scott s Crossroads located at the corner of Central Hill Road and Foursquare Road. Moderate brick and wooden single-family residences on average-size lots characterize a large portion of the Central Hill community. However, there are a few larger brick homes that sit on fair amounts of property within the community boundary. Additionally, there is a peanut farm, cow pastureland, a hunt club and large farming fields located within the community boundary. Isle of Wight Courthouse The area now known as Isle of Wight Courthouse was open land used for farming and lumbering operations. Francis Boykin, a very popular and influential man in the County during the late 18 th and very early19 th century, owned a large tract of land in this area. He petitioned the county to move the courthouse from Smithfield to his property, which he and others claimed was a central location for all county citizens. He was also the owner of Boykins Tavern, built ca. 1780, located on the property next to the County Complex. Boykins Tavern was purchased by the County in 1973 and registered as a Virginia Historical Landmark and the National Register of Historical Places in The County Comprehensive Plan 4-23 Isle of Wight County, Virginia

116 recently renovated the tavern and conducts public tours. Since the County Courthouse and office complex are located here, Isle of Wight Courthouse Village differs from other village centers in the County. The significant weekday activity created by the government center, as well as Isle of Wight Academy, a post office, The Isle of Wight Christian Church and a diner, coupled with the lack of a large residential base, creates a community that is truly unique. Businesses and services such as restaurants and offices, which would support this daily activity, should be encouraged. However, the form and appearance of such development should be controlled to ensure compatibility with the historically significant structures of the village. A few single-family residences are located in the village center are along Courthouse Highway (Route 258) and Poor House Road. New residential development should be encouraged but should be guided into a village form rather than stripped along Courthouse Highway. As the County seat, Isle of Wight Courthouse should be given special consideration and attention to ensure it will remain a source of public pride for County residents. The larger Isle of Wight Courthouse community boundary extends north to Harry Wilson Road, encompassing acres of farm and cattle pastureland. The boundary continues east to the intersection of Bob White Road and Poor House Road. Its southern boundary is designated along back property lines of parcels fronting on Poor House Road. The southern boundary crosses at Orbit Road and continues across Courthouse Highway. Its western boundary encompasses a portion of Central Hill Road and continues northwest along Trump Town Road. The Village Center Boundary and the larger Community Boundary are outlined on Map 4-4. Rescue This historic coastal village began as the subdivision of a farm in Because of its location on the eastside of the Jones Creek, approximately one-half of a mile from its mouth, it soon became a thriving harbor and a commercial dock for watermen engaged in fishing and oystering. The Jones Creek separates Rescue from Battery Park and Smithfield. As folklore has it, Rescue got its name because it was difficult to get mail to Rescue, which was delivered by mule and on a certain occasion, as the mule appeared in the fishing village; someone yelled that the mail had been rescued. With construction of the Rescue Bridge, connecting Rescue and Battery Park, the task of mail delivery was made easier, as well as travels to and from Smithfield. Prior to the construction of the bridge the residents had to go either by boat to Smithfield or drive the long way around by Titus Creek and Fulgham s Bridge. The location of the bridge marks a historic location with the first bridge being constructed around The history of the bridge should be preserved as integral part of Rescue s history. Rescue continues to retain the character of a close-knit rural fishing village and the integrity of this character is intended to be protected in delineating this Village Center. Within the Village Center are homes, two marinas, a restaurant, post office, and a community center (formerly the old Rescue school constructed in 1925, which currently serves as the meeting place for the Rescue Community League and Ruritan Club). There are also two historic churches located just outside of the Village Center Comprehensive Plan 4-24 Isle of Wight County, Virginia

117 boundaries, Riverview United Methodist Church (founded in 1887) and the Friends Church (founded in 1913). The Village Center boundaries are shown on Map 4-5. The map also shows the boundaries of the larger community of Rescue, which begins at the intersection of Boundary Road and Smith s Neck Road and encompasses lands north and east to the James River, and west to the Jones Creek. Historically, Boundary Road has always been the dividing line separating the Rescue community from the Carrollton area. The historical boundary was used for documenting birth certificates, as well as for school districting. The Jones Creek Boat Landing located at the end of Boundary Road is located in the Rescue community. Rushmere As the northwestern gateway into the County on Route 10, the Rushmere Village is an important area, which requires careful consideration of land use decisions. Originally, Rushmere was named Fegusson s Wharf, after the large wharf built by a lumber businessman in the late nineteenth century. A bogie railroad track was built to transport lumber from the end of Track Lane to the wharf on the James River at the end of Ferguson s Wharf Way, marking this crossroad at Old Stage Highway as a historic location in Rushmere. The old post office and general store were also located at this intersection and the Rushmere Volunteer Fire Department was constructed there in Although there is no longer any public access to the wharf and the old post office and general store have since closed, the historic significance of this intersection remains and should be preserved. The Village Center boundaries have been designated slightly north of the historic crossroad and are reflective of commercial activity that has developed at the intersection of Fort Huger Drive (Rt. 676) and Old Stage Highway (Rt. 10) with the location of a convenience store and the higher density residential development that exist in this area. A car wash is also proposed at this location and just north of the convenience store, approximately forty-two (42) acres of vacant land is zoned for more residential development. New development should be guided to areas off of Route 10 to create a more centralized and cohesive community and avoid the problems associated with strip development. The old school site is also located within the area of the Village Center boundaries, which presents an opportunity for cultural preservation. The Village Center boundaries are shown on Map 4-6 and a star has been marked to identify the historic area. The map also shows the boundaries of the larger community of Rushmere, which are mainly representative of the boundaries delineated by the Census Bureau designating Rushmere as a census designated place. The community borders the Surry line and extends approximately.4 mile south of the intersection of Burwells Bay Road (Rt. 621) and Old Stage Highway (Rt. 10), encompassing the Burwells Bay area. The first known recorded history in the Isle of Wight County was noted to have occurred in the Rushmere community when Captain John Smith stopped near Burwells Bay to trade beads with the Warrosquoyake Indians for food to save his starving colonists. The post office at Rushmere was first located at Burwells Bay as indicated by records dating back to 1834, and the first formal gardens in Virginia were located at a spot in Burwells Bay called Shoal Bay, where the lawn terraced down to the beach. In the 1920 s, the Burwells Bay area thrived as a small resort with a dance pavilion built over the water and contained a public acre along the deep waterfront of the James River where people could swim and have church picnics. The public acre, called The Acre, still exists and is now used for Comprehensive Plan 4-25 Isle of Wight County, Virginia

118 family retreats. Presently, Burwells Bay contains several single-family residential dwellings. The history of the Burwells Bay area should also be protected and preserved, and careful consideration should be given to any development proposed in the area to maintain the character of the existing community. Rushmere has traditionally been home to many watermen who conduct fishing and oystering activities from the Tyler s Beach Boat Harbor, located further north along the James River. A County-owned boat ramp has been constructed and the harbor and channel have been dredged through the 1990 s. Additional dredging is needed and will be undertaken by the United States Army Corps of Engineers once a suitable disposal site is established. Tyler s Beach remains an important harbor for watermen from throughout the region. The historic Fort Huger, used during the Civil War, is also located within the Rushmere community. The County has taken steps to preserve this great historical treasure. Walters Located in the area formerly known as Ducksville, during the Civil War era, Walters has a rich history in the agricultural and industrial industry. As early as 1905 the old Virginian railroad passed through Walters delivering coal from the Alleghenies and West Virginia to Norfolk providing fuel for oceangoing vessels at Sewell s Point. The railroad could have also provided a means of transportation for farming operations, like the Walters Cotton Ginning Company that operated from , to ship their goods or produce. The railroad passed through Walters until 1959 when it merged with Norfolk and Western. A post office was established in the village in 1912 and closed in It is one of two post offices in the county that operated for over fifty years. Citizens of Walters now receive their mail in the town of Windsor. Cox Heights, the first platted subdivision in Walters was also created in It is interesting to note the names given to the streets within the subdivision; Joyner, Bradshaw, and Cox. These are the last names of long lasting families in the County, dating back to the early nineteenth century. Duck s store, a local grocery store, was located on the present site of Mount Carmel Christian Church. The church was organized in The present building was erected in Present day Walters is home to various private-farming operations where goats, cotton and other agricultural produce are raised or grown. A peanut buying facility is located on Bradshaw Avenue in the Cox Heights subdivision. The Village Center boundary is shown on Map 4-7. As the map indicates the village boundary begins at River Run Trail and Walters Highway and ends at Stevens Drive. Because the Villages of Walters extends linearly along a major corridor, future development should minimize direct, individual access to Route 258 to avoid excessive entrances and exits, which would impede the smooth flow of through traffic and create potential hazards. Currently, the village includes single-family residences, Mount Carmel Church (circa 1871), the Walters Ruritan Club facility, a general store, an agricultural supply/machinery store, farms, pastureland and Indika Farms, Inc. There are several vacant commercial structures in Walters which represent opportunities for future redevelopment and rehabilitation. The map also shows the boundaries of the larger Walters community, which begins, just between Colosse and Ballard Road. It extends linearly down Route 258, encompassing both sides of the highway Comprehensive Plan 4-26 Isle of Wight County, Virginia

119 and ends between Holly Run Drive and Lawrence Drive. Zuni Zuni, first established in 1870 as Zuni Station, was a train stop along the Norfolk Southern Railroad (formerly Norfolk and Petersburg Railroad). As a result of the excellent farmland in the surrounding area, Zuni has traditionally had a large peanut market and at one time a peanut factory. Local farmers used the train stop to transport bacon, fruits, vegetables, peanuts, and lumber. The word Station was dropped in This farming community is located six miles west of Windsor near the Southampton County border and continues to maintain railway access via the Norfolk Southern Railroad and has primary highway transportation access along Route 460. The village has potential for development given its access to rail and highway transportation and proximity to the Blackwater River. However, care should be taken to preserve the rural character of the community and development should be focused rather than stripped along Route 460. Furthermore, as one of the gateways to the County, it is important that the form and appearance of new development in Zuni be managed to ensure an aesthetically pleasing and functional community, which allows for the safe and efficient movement of traffic along Route 460. Existing land uses in the Village Center include homes, a post office, dentist office, thrift shop, convenience store/gas station, Bethany Presbyterian Church and the Tabernacle of Praise Full Gospel Church. There are also several vacant commercial buildings, which represent opportunity for redevelopment and rehabilitation. The Village Center boundaries are shown on Map 4-8. The map also shows the boundaries of the larger community of Zuni, which are mainly representative of the postal boundaries. Future development and redevelopment in County Village Centers should provide for commercial expansion while preserving the community's rural character. Commercial development in Village Centers should be designed to be compatible with rural settings. New buildings should be rural in character, should respect the architectural character of existing buildings, and should be built with setbacks and building lines similar to other existing buildings, In addition, the use of natural materials such as brick, stone, wood siding and slate should be encouraged as opposed to galvanized metals, exposed concrete, plastics, or vinyls. Procedures should be adopted to ease the procedure for converting existing homes into commercial uses in order to encourage small commercial development serving agricultural, neighborhood and tourist needs. The Plan recommends specific planning and design studies be undertaken by the County for the future development of each of these Village Centers. Development Service Districts The Land Use Plan Map indicates designation of three strategically located Development Service Districts (DSDs). They include the Newport, Windsor and Camptown. Each of their locations generally correspond with the location of the major County transportation corridors and existing or planned future Hampton Roads Sanitation District (HRSD) sewer and water service areas. Comprehensive Plan 4-27 Isle of Wight County, Virginia

120 Areas designated DSDs generally have served and are expected to continue to serve as the principal residential, commercial and employment centers of the County. These areas comprise the most suitable locations for future growth and development. Growth in and around these areas will prevent the outward sprawl of development into other County areas, and concentrate future residential growth in areas where residents can be economically provided with utilities, services, and employment. In addition, the impact upon the County road system will be minimized since families will have the opportunity to be located physically close to the jobs and services, which they require. These considerations, plus the County interest in preserving the open character of the County's outlying rural areas, indicate that the areas designated as DSDs should accommodate most of the County's residential, commercial and industrial growth through the year Economic development objectives and recommendations contained in later sections of the Plan emphasize the importance of providing opportunity for the location of industrial, commercial and office development within each of the three DSDs. The degree and type of industrial or commercial development to be encouraged in each of the districts is a function of existing uses in the district and the nature of economic development that may be most appropriate based on the availability of services and utilities needed to support it and land availability. Mixed Use Areas/Activity Centers and incorporated Towns within or near the DSDs should be the focal points for commercial service and business development, higher density residential development, and compatible industrial development. The three DSDs share several common attributes. Each is subject to greater development pressure than many other County areas, particularly rural and/or agricultural areas. Each either has in place or provides opportunity to put in place the kind of services required by development. These services include an existing or planned transportation system that can accommodate the movement of people and goods, and sewer and water facilities that can service development at greater residential densities or can service industrial and commercial uses. Finally, each of these areas is in some way already characterized by some level of development activity, which has already created some demand for County services and public facilities. The major advantage of the DSD concept is to map in advance those areas where the County will accept a responsibility for providing infrastructure or will accept the responsibility for working with the development interests of the County to be sure it is put in place. However, this in no way implies that the full costs of development will be borne by the general County taxpayer. In providing opportunities for development in these areas, the County can thereby better achieve its resource protection and its agricultural conservation objectives by reducing pressure for development in other County areas dominated by farming activity or sensitive natural resources. Growth in the Newport and 460/Windsor Development Districts (including the Town of Windsor) can be more cost effectively managed in that both areas are currently undergoing the planned expansion of central sewer and water facilities by the County, the Hampton Roads Sanitation District or the Western Tidewater Water Authority. The challenge is to ensure that public services and facilities and the highway systems keep pace with the conversion of land in these areas from rural to urban. Likewise, the plan must provide protection for natural resources such as the James and Pagan Rivers and elements of rural character that are pervasive as well as desirable in these areas. The DSDs will be those areas where more than 80% of new households should be located to implement the contained growth philosophy discussed earlier in this chapter. To assure they fulfill their intended function, the County will need to be proactive in its efforts to assure infrastructure is provided to support growth in these areas. Each of the DSDs is described in greater detail below. This is followed by a discussion of the Planning Comprehensive Plan 4-28 Isle of Wight County, Virginia

121 Consideration for the DSDs. While the land use areas are established in Table 4-2 presented earlier in this chapter, the Planning Consideration more fully describes the concepts suggested for Mixed Use Areas/Activity Centers in particular. This is followed by a discussion of the Planned Unit Development Districts, which can serve as the primary tool for implementing mixed use areas, in addition to utilizing a mix of the seven land use planning districts to reflect the element of an Activity Center. Newport Development Service District A Northern Development Service District was first established in 1991 and included approximately 17,200 acres. The Newport DSD, which replaced the former Northern Development Service District (NDSD), as shown on map 4-9, encompasses a total of approximately 5,000 acres representing a 70 percent reduction in the overall size of the District. The change eliminated much of the land area along the Route 10 corridor and areas near the James River shoreline The boundary change also eliminated large areas to the north and south of the Route 32/258, Route 17/258 and Route 669 corridors which were formerly included in the District. The boundaries of the Newport DSD are defined on Map 4-9. The District Land Use Plan established a new or revised development district boundary and categorized proposed (and existing) land use into land use planning areas (see Map 4-9). The district is broken down into five land use planning areas. Table 4-3 lists the proposed land use planning areas by acreage for the development district. Table 4-2 lists the location, character and proposed land use(s) for each category. In effect, the land use plan for this district represents a tiered land management concept that places the least intense land uses (Resource Conservation Areas) closest to the most sensitive natural resources and the most intense land uses (Mixed Use Activity Centers and Business/Employment planning areas) along the existing major highway corridors where transportation and other services are existing or can be provided in the most efficient manner. Table 4-4 Newport Development Service District/Land Use Districts Land Use District Designation Land Area (acres) Newport District Percent of Total Mixed Use Activity Center % Business and Employment 610 9% Suburban Residential 532 9% Suburban Estate % Resource Conservation 350 5% Other (includes Right of Way) 300 4% Total 6, % The Newport DSD is a likely candidate for a greater level of development than other areas in the County due to its greater proximity and accessibility to the Peninsula and Northern Suffolk. This area is served by HRSD extension of sewer facilities. Connections between the Bridge Tunnel and Interstate 64 create an effective regional beltway near the County's Northeast edge increasing the accessibility of this part of Comprehensive Plan 4-29 Isle of Wight County, Virginia

122 the County. For all these reasons, areas within this DSD appear to have greater market support for potential future residential, commercial, and office development than other areas of the County. Route 17 Corridor Master Plan Because the Newport DSD is a candidate for increased growth pressure, the County engaged in a master plan process in 2006 specifically for the Carrollton Boulevard, or Route 17, corridor in the eastern half of the DSD. The Master Plan seeks to ensure the orderly development of future growth by providing a design framework to guide the location, form, and design of new development consistent with the Isle of Wight County Comprehensive Plan. The Plan identifies the Bartlett intersection as a key activity center while recognizing Carrollton Boulevard's role as a major transportation corridor. The future land use plan in the Corridor Master Plan updates the 2001 Comprehensive Plan and designates a mix of uses for a substantial portion of the corridor area. The Board of Supervisors adopted the final Plan in November Newport Development Service Overlay District The current County Zoning Ordinance, adopted in 2005, established a new overlay district specifically for the Newport DSD. The intent of this overlay district, called the Newport Development Service Overlay (NDSO) District, is to preserve the historic character, architectural forms, patterns and significance of historical sites within and adjacent to the Newport DSD. The NDSO essentially replaced the Highway Corridor Overlay (HCO) within the Newport DSD but covers the whole DSD rather than just the 500 feet on each side of the highways. The initiatives of the NDSO District include: Encourage building designs that promote the character and value of the District; Encourage contiguous, mature and healthy landscaping in site design, parking lots and along major corridors within the District; Encourage site design techniques that maximize public safety and promote the character of the District through the effective design of buildings, parking lots and public spaces; Provide for the continued safe and efficient use of roadways; Maintain natural beauty and scenic, cultural, and historic character of the District, particularly distinctive views, vistas, and visual continuity; Promote traffic calming devices that provide safe on-site circulation of traffic, vehicular, pedestrian or bike traffic; Promote flexible design criteria to ensure the re-use of non-conforming property; Encourage sign design standards that are functional and efficient, decrease visual clutter, and are compatible with building designs within the District; Encourage the interconnectedness of commercial, office, civic and residential uses through the use of roadways, pedestrian walkways, and bicycle paths; Encourage site and building design elements that promote human scale development; Encourage the preservation of open space for active and passive recreation Comprehensive Plan 4-30 Isle of Wight County, Virginia

123 Encourage public access of waterways throughout the use of greenway/pedestrian walkways; Promote Best Management Practices facilities (BMPs) that enhance the site design and promote health and safety. Encourage the use of clustering in residential development to preserve open space, trees and greenways, and reduce the overall impact of new development on the habitat. Encourage the use of Traditional Neighborhood Development (TND) design concepts to minimize impact on public services, maximize the use of public infrastructure and allow a mix of residential uses with compatible commercial and civic uses that offer employment opportunities as well as provide services to the neighboring residential community. Encourage the use of appropriate lighting standards to promote safety and protect against light intrusion and glare. The Zoning Ordinance text for the NDSO District provides a clear and consistent set of design standards that apply to all properties within the district. All development within the district must adhere to the procedures, standards and guidelines for this overly district in addition to the standards present for the base zoning district. For a more detailed discussion of the NDSO District see the Zoning Ordinance. Benn s Church Master Plan - Benn s Church Activity Center Roadmap for Growth In the Fall of 2003, a number of property owners approached the County with plans to develop their land in the Benn s Church area within the Newport DSD. County staff suggested that these property owners and the County work together to create guidelines for the future development of the area. The County and interested parties formed a partnership and engaged a consultant to prepare a Master Plan. Since the process for creating the Master Plan relied on community involvement, a charrette was held in order to solicit the input of the public in November of The consultant considered the concerns and ideas of the public and incorporated these into the Master Plan. The completed document, titled Benn s Church Activity Center Roadmap for Growth was reviewed by the public again in March of 2004 and the consultant later prepared the document for formal public hearings. The Planning Commission held public hearings and, after resolving concerns, the Commission recommended approval by the Board of Supervisors. In June of 2004, the Board of Supervisors held a public hearing and subsequently approved the Master Plan consequently amending the County s Comprehensive Plan. The Benn s Church Master Plan does not replace or change the Comprehensive Plan but does supplement the Plan with additional guidelines for development. The Master Plan gives more detail and greater guidance for near term and future term development within the Benn s Church area and includes a specific emphasis on the future traffic system. This Plan also ensures future development is consistent and compatible with existing land use. It strives to preserve the area s historic appearance and value by outlining design and structural guidelines. These guidelines encompass both residential and commercial development. The complete Benn s Church Activity Center Roadmap for Growth is appended to this Comprehensive Plan as Appendix A. The Windsor Development Service District Comprehensive Plan 4-31 Isle of Wight County, Virginia

124 The Windsor DSD is also targeted for future growth. Within much of this district, sewer and water facilities have been extended to accommodate growth. While the level of development activity anticipated is less than that in the Newport DSD, sewer availability together with adequate transportation service capacity via State Route 460 suggest some level of development activity can be expected in this area. Areas along the Route 460 corridor and Norfolk and Southern rail line have strong potential for future industrial development. The Shirley T. Holland Commerce Park, located east of the Town, has been established as one such location for business development. Map 4-10 identifies the extent of the Windsor DSD and the range of land uses proposed within this district. With the 2001 annexation of vacant land, much of the residential development proposed within the district over the next 20 years may be absorbed by growth within the Town of Windsor. Most of the land area surrounding the Town is therefore designated a Town Growth Area. An area just west of the Town is proposed for business and employment growth, but its development is contingent on new road improvements in the form of the Route 258 bypass shown on the map. Industrial development is also planned for the existing County industrial park and for lands located Southeast of Town along the Norfolk/Southern Rail line. Remaining areas have been designated for Conservation Development thus limiting the density of residential development within the Windsor DSD in locations outside the Town. The County recently purchased approximately 600 acres to the south of the Town of Windsor and is currently investigating the possibility of developing an intermodal park to include this property. Based on Port Authority and VDOT studies, there will be significant background truck traffic utilizing the new Route 460 corridor for transporting goods to and from area ports. With the expansion of the Windsor DSD and the Planned Industrial land use designation, plans can be made for optimal travel routes which could include an interchange on the new Route 460 in or near the Town. An intermodal park with access to this new interstate as well as nearby rail lines will place Isle of Wight County in a strategic location for future commercial and industrial growth. The Windsor DSD Future Land Use Map expands the existing DSD to include new County-owned property and surrounding area with a "Planned Industrial" designation. In addition, properties located between the expanded DSD and Sunset Drive which are currently enrolled in the Knoxville Agricultural/Forestal District are contained in an area identified as a potential DSD expansion area." These parcels will retain their Rural Agricultural Conservation designation while providing for the possibility of extending the DSD to include this area in the future. Should the properties in this area leave the Agricultural/Forestal District and apply for a rezoning, the recommended land use designation for these properties is Planned Industrial. Including these properties in a potential future expansion area will help to alleviate the concern that future property owners may not be aware of the intermodal park plans and may create unintentional land use conflicts. The Camptown Development Service District In 2001, the Camptown DSD (formerly the Southern DSD ) was substantially reduced in size from its 1991 delineation which extended from Carrsville to the County's southernmost border. The former large district was reconfigured to be roughly one-half its former size and no longer included areas in and around Carrsville. As a result of its elimination from the DSD boundary, in 2001 Carrsville was redesignated as a Village Center. In 2005, the Board of Supervisors authorized the formation of the Southern Development Committee, made up citizens from the southernmost portion of the County. The primary goals of the committee are beautification of the area and increased residential and commercial development in this portion of the Comprehensive Plan 4-32 Isle of Wight County, Virginia

125 County. To accommodate growth within the DSD, the Southern Development Committee requested that the boundary of the Camptown DSD be returned to the original 1991 delineation. With this update of the Comprehensive Plan, the DSD boundary has changed to increase its size slightly by including a small area to the east of the existing DSD boundary along Route 58. A limited increase in the size of the DSD was recommended in order to allow the community to undergo a focused transportation, fiscal and land use analysis together with a strong public input process to develop a land use map for the Route 58 corridor, including the Camptown DSD and the Village of Carrsville, which reflects the most efficient pattern of development to accomplish the community s vision. The Plan will include a prioritized implementation strategy for economic development, transportation improvements, and community facilities including goals, objectives, actions, and possible funding sources. The Plan is expected to be completed in the fall of As part of the Plan update, the Southern Development Committee proposed to reduce the size of the Carrsville village center which is currently outside of the Camptown DSD. The Carrsville Elementary School, Carrsville Community House, the Post Office, and fire station are noteworthy community facilities in the activity center. The community is located along Route 58 business, near the Suffolk line. Significant amounts of new development in and around the Carrsville Village Center are not anticipated within the near five to ten-year planning period but may occur at some future time concurrent with the extension of the Hampton Roads Sanitation District sewer facilities through this corridor, and the expansion of the existing public water service. As development occurs in the Carrsville area, it should respect the rural village character of development that is currently established. The reconfigured Camptown DSD includes several large tracts suitable for industrial and residential development. In close proximity to these developable tracts is the only general aviation airport in the County, located at the western end of the DSD. In concern for safety and the viability of the airport, development in the area around the airport, especially at the end of the runway, should be assessed with close consideration of flight operations. High density residential development, schools, hospitals and other development that will concentrate large numbers of people should not be permitted in the area below flight operations, especially the takeoff and landing of aircraft. An avigation easement is in place at the east end of the runway to increase flight safety. This was created by the City of Franklin, the owner of the airport, in cooperation of the property owners within the easement. The establishment of an Airport Land Use Compatibility Plan (ALUCP) can further increase the element of safety around the airport. An ALUCP will designate zones that restrict certain development and population densities around the airport. In order to create an ALUCP, the safety zones, standard traffic patterns, overflight areas, noise contours must be established by the airport. Another consideration for development in the Camptown DSD is the limited sewer and water service currently available. At this time, only a small portion of the Camptown DSD is provided sewer service and water service. The County adopted a sewer and water master plan in 2008 that proposes the expansion of sewer and water services for the Camptown DSD. Even with the adoption of the plan, district-wide services are not foreseen within the next five to ten years. Therefore, major development activity is not expected to be substantial in the short term although water and sewer services will be provided to support opportunities for business/industrial development, and some degree of residential development necessary to support the economic sustainability of the area. The County airport location, rail access, proximity to the Route 258/58 corridors and Route 260 connector, the presence of existing utilities, and the strong presence of existing industry (International Paper, Inc. and Franklin Equipment Co.), all suggest future industrial development opportunities may be greater in this location than other alternative locations in the County. The configuration of the Camptown DSD is shown on Map Comprehensive Plan 4-33 Isle of Wight County, Virginia

126 Planning For Development Service Districts Ensuring the high quality of new development within the DSDs is a major objective of the Plan since the majority of future County growth will be directed to these areas. To improve the visual and functional qualities of development within the DSDs, the County will need to evaluate and revise its land use management ordinances to establish performance standards for landscaping, control of access, lot coverage, and buffering from adjacent transportation corridors. Future commercial and industrial forms of development within the DSDs should be carefully evaluated to ensure compatibility with existing and planned residential areas. Strip forms of commercial development along major County roads have not always enhanced the visual quality of development and over time have impaired the ability of the roads to serve through-traffic. Future areas designated for commercial development should be large in size (e.g. 10 to 15 acres) and should be located at intersections providing site frontage on at least two streets with adequate depth to provide space for well-planned service roads. Such sites should utilize access provided by service roads and should be adequate in size to accommodate several uses with shared access, thereby minimizing multiple outlets to the major road system. Larger commercial lot sizes would provide space to accommodate landscaping between buildings, parking areas, and roads. Reverse lot frontage development, which places parking areas behind commercial and office buildings would also improve the appearance of development. Clustering of residential development should be encouraged within the DSD to maintain open space. Such development, even when exclusively residential in nature, should be buffered and separated by landscaping from major routes or adjacent incompatible land uses. Permitted development density and intensity should not be uniform throughout the DSDs. Existing single-family neighborhoods should be buffered from high intensity non-residential and future highdensity residential development. The Mixed Use Areas/Activity Centers identified on the Land Use Plan Map are intended to accommodate higher land use intensities and provide a focus for development centers within the DSDs. This designation assures variety in development form and identifiable commercial and residential centers of activity within the overall DSD area. Since highest residential densities will be encouraged in the areas designated as Mixed Use Areas/Activity Centers, generally lower densities should be prescribed in other portions of the DSDs. Finally, it is important to note that residential density designations within the DSDs will be influenced by the existing development pattern already established. Construction of zoning districts and standards for development will require focus at a site by site level to frame districts and standards which respect existing neighborhood patterns, densities, and soil conditions in the absence of central sewer systems. Mixed Use Areas/Activity Centers represent opportunities to cluster future development into regional centers which serve the commercial services and retail shopping needs of current and future County residents. Each Mixed Use Areas/Activity Center should provide opportunities to establish a recognizable center of development with its own unique sense of place within the County. Future development will vary somewhat based on the existing pattern of development and the future development mix which occurs. However, the County should encourage traditional neighborhood development (TND) form within Mixed Use Areas/Activity Centers. Characteristics of this form of development are readily apparent in the Town of Smithfield and include: Comprehensive Plan 4-34 Isle of Wight County, Virginia

127 mixed land uses grid street patterns design emphasis on pedestrian circulation intensively used open spaces and often a village green to provide orientation and define a village center. clearly defined streetscapes by virtue of smaller front yards on narrow lots that foster a sense of enclosure and a sense of community architectural character reminiscent of the late 19 th and early 20 th Century Figure 4-1 Traditional Neighborhood Design Each Mixed Use Area/Activity Center, however, should generally evolve as a mixed-use regional center for residential, office, retail, and service development. Light industrial development may also be appropriate in some areas in the form of well-planned business and industrial parks. Planned Unit Development Districts Planned Unit Development Districts (PUD) are suggested as a tool that can be used to accommodate the mixed uses proposed within designated Mixed Use Areas/Activity Centers. The PUD Districts allows for the creation of basic performance standards such as those outlined above in the description of the Mixed Use Areas/Activity Centers. The PUD concept allows for great flexibility in design and layout in exchange for conditional approval premised on those designs and layouts. The County may also want to consider the use of the PUD for application in other areas within the DSDs. This would require basic performance standards to be structured in the County Zoning Ordinance. These designations will be limited to locations where public benefits, in the form of highway improvements, provision of affordable housing, provision of parks, provision for sites appropriate for construction of schools or other needed community facilities, are provided as a part of the development approval process in exchange for higher densities. Threshold size and location requirements for their designation will be framed in County ordinances to guide decisions concerning their location and criteria for approval. Designation for sites as PUD Districts should be determined on the basis of conditional zoning action whenever projects are evaluated and approval awarded to those development proposals, which offer specific County or neighborhood benefits and/or a demonstrated capability to implement County Comprehensive Plan objectives. Examples of objectives for which approvals might be granted include: Table 4-5 Comprehensive Plan 4-35 Isle of Wight County, Virginia

128 Type of Objective Community Facilities Transportation Affordable Housing Economic Development Historic Preservation Open Space & Parks Potential Methods of Achieving Objective Approvals may be awarded for proximity to existing or developer provided facilities (i.e., sewer lines, schools, fire departments and recreation facilities) or land is provided by the developer for future provision of these facilities. The receiving road network must meet minimum standards for level of service or the facility must be upgraded to accept development. Approvals may be awarded for making improvements that are consistent with the overall Transportation Plan. Approvals may be granted to include affordable housing as a component of the Planned Unit Development. Approvals may be granted for development proposals that provide jobs, which strengthen the economic base of the County. Evaluation would be based on the number and type of permanent jobs created. Approvals may be awarded if identified historic sites are preserved through easement or restored by the developer. Approvals may be awarded if development is clustered and open space, parks and recreation facilities above and beyond those which are required are provided. While encouraging higher density residential development in portions of the DSD in exchange for developer proffers that provide public benefits, this concept does not encourage densities that are substantially higher or incompatible with surrounding neighborhoods. Moreover, development approval should not proceed absent proffers that provide substantial public benefits and demonstrated consistency with Plan objectives. Future development in existing residential or mixed use PUD Districts should be permitted to continue in the density and pattern for which respective subdivisions were designed at the time they were approved. Furthermore, PUD District densities for new sites adjacent or near to established neighborhoods should be required to buffer the edges to minimize impacts to established neighborhoods or provide site design treatments that integrate the proposed development with established neighborhoods. This approach acknowledges existing development patterns and recognizes historic development conditions. In short, PUD s will be permitted only in such areas of the DSD where infrastructure in the form of sewer, water and transportation systems would not be adversely impacted or could be accommodated within a defined geographic cell. It is recognized that to permit higher densities in many portions of the DSD would be disruptive of community character and the expectations of existing residents. Towns of Smithfield and Windsor The incorporated Towns of Smithfield and Windsor, while having their own independent planning programs and objectives, have traditionally functioned as County Activity Centers. It is expected that, in the future, they will continue to serve as such. Adequacy and availability of Town public facilities and services and Town resident's objectives for how each community wants to grow will be the primary factors in determining the future role of these communities as Activity Centers within the County. Comprehensive Plan 4-36 Isle of Wight County, Virginia

129 Highway Corridor Districts The Highway Corridor District is intended to address architectural and aesthetic controls as well as special access and buffering requirements along the County's major highways. Designated Highway Corridor Districts are shown on the Land Use Plan Map. The Highway Corridor District is an area within which certain specific public objectives relating to aesthetics and architectural plan review should be administered by the County through overlay zone regulations in the Zoning Ordinance. Views afforded to drivers and passengers, whether residents, workers or visitors, traversing the major transportation routes of Isle of Wight County provide a lasting visual and, therefore mental, impression of the County's character. Although the visual experience probably forms only a small part of a person's overall experience in the County, it, nevertheless, is of special public concern and requires public attention if the County's image is to be a positive one now and in the future. Not all development in Isle of Wight County requires the same level of public scrutiny. The most critical visual areas lie along the major transportation routes since they are shared by all citizens and tourists. Hence, corridors of 500 to 1000 feet from the right-of-way of the major transportation route rights-of-way are identified for application of special landscaping and design standards. The visual character today along these corridors is diverse, ranging from areas primarily rural, natural, and scenic to areas with disorganized and cluttered roadside development. The intent of the objectives for the Highway Corridor District is not to preclude the diversity that already exists; but, rather to encourage and better articulate the variety of visual experiences along the current highways as well as along the corridor of the proposed future routes for the County's major roads. The purpose of the Highway Corridor District is to protect and improve the quality of visual appearances along these linear corridors and to provide guidelines to ensure that buffering, landscaping, lighting, signage and proposed structures are internally consistent and of a quality that contributes to County character. Future development of lands within the Highway Corridor District should be subject to the standards of the particular base zoning district in which they occur, as well as the following standards that are specific to the Highway Corridor District. These standards are not intended to restrict or prevent the construction of buildings within each Corridor, nor to require the removal of existing structures. The Highway Corridor District standards are not setback requirements, although certain minimum setbacks will be required to protect highway rights-of-way and maintain sight clearances for traffic safety. The corridors along the following routes for a distance of 500 to 1000 feet from the right-of-way are designated as Highway Corridor Overlay Districts: Route 10 Business and Route 10 Bypass (outside of the Newport Development Service Overlay) Route 32 (outside of the Newport Development Service Overlay ) Route 258 (outside of the Newport Development Service Overlay ) Route 460 Comprehensive Plan 4-37 Isle of Wight County, Virginia

130 Route 58 Business Route 260 Other routes may be established in the future as determined appropriate. Standards specific to the Highway Corridors should provide for: Increased buffering requirements, which provide for a mix of canopy, understory tree and shrub level plantings, to partially screen buildings and parking areas from view. Special standards for signage height, design, size, materials and lights to maintain and enhance visual qualities. Special consideration of new development within this district including assessment of visual impact of development, assessing pre-development visual conditions and how the proposed development will affect them. The review of projects in the Highway Corridor will acknowledge the existing villages as integral to the unique visual character of the corridor. Landscaping to be used to soften lighting and signage impacts and to be located in groupings to identify entrances to sites. Use of sectional service roads as a tool to achieve access control within the Highway Corridor District. Use of reverse lot frontage concepts to shield off-street parking area behind buildings and landscaping. Designation of scenic easements along Highway Corridors with significant natural views or vistas. Summary The Growth Management Plan Map represents the cumulative application of the districts described earlier in this section. Whenever conflicts develop as to which category of use should apply, the more specific or highly restrictive category should govern policy. For example, the Resource Conservation District is the most restrictive and therefore would provide the overriding policies in the area where it is applied. To reiterate, the basic intent of the growth management concept is that the County channel most of its future residential, commercial and industrial development into the DSDs. Within the DSDs, Mixed Use Activity Centers are the only location appropriate for higher density development. Conservation development areas within the DSD s should be limited to residential densities no greater than one unit per five acres with development clustered to retain substantial portions of the district in open space. Existing residential neighborhoods should be recognized and protected within Neighborhood Conservation Districts. The aesthetic and functional characteristics of major County roads should be preserved within the Highway Corridor Districts. The location of the districts will serve as the basis for County structuring of zoning classifications with the intent and purpose to frame land use controls and performance standards for development consistent with each DSD. Comprehensive Plan 4-38 Isle of Wight County, Virginia

131 The Land Use Plan proposes to guide development to those undeveloped areas where major public facilities are in place or planned, while reducing development pressures in those areas where facilities cannot be provided as efficiently. The Plan channels anticipated future growth into a more harmonious and efficient pattern, which is consistent with community goals and objectives. Comprehensive Plan 4-39 Isle of Wight County, Virginia

132 Chapter Five Transportation Introduction Isle of Wight County has a transportation system typical of rural but suburbanizing counties. This system depends heavily on automobile use and has significant morning and afternoon traffic peaks. Car-pooling, van-pooling and transit use are lower than the national averages. The County is fortunate to have good access to rail and air transportation facilities. The industrial areas in the vicinity of Windsor and north of Franklin are adequately served by rail. One municipal airport serves the needs of industrial users in the County and two international airports in the region provide easy access to long distance passenger service. Though the Virginia Department of Transportation (VDOT) has primary responsibility for the highway system, Isle of Wight County is a strong partner in transportation planning. This occurs because of its role in identifying highway improvement needs and its policies and regulations which guide land use and development in the County. Isle of Wight County's transportation system for the year 2030 requires special consideration for growth management issues. From the analysis and the discussion of growth management, three important transportation planning directions seem apparent: 1. The capacity of the major arterials is key to growth management of the County and should be carefully conserved. This implies strict access control and residential and nonresidential design standards that emphasize internalization of circulation systems. 2. Within the designated growth areas, pre-planned expansion of the highway system is required to ensure that the function and viability of the growth centers do not impact negatively on the quality of life. 3. Increasingly, the private sector will have to be part of the solution of transportation issues, including financing and other transportation systems modifications. Beyond a strict capacity-based approach to highway systems evaluation, consideration of the impact of roads and traffic on community character also needs to be considered. This is particularly true in the rural villages where development historically has been heavily highway oriented. Development in corridor form along the rural roads of the County (residential and nonresidential) will undoubtedly result in a loss of the rural character that the County wants to retain. In the village centers, the evolution of the local road system will heavily influence the form of future development. Access control policies will in turn influence the future local road systems. This element of the Comprehensive Plan sets the framework for addressing the growth management considerations discussed above. The goals and objectives statement provides the general guidance for developing more specific policies and implementation tools. Background for transportation planning is provided through an assessment of the existing transportation network, highway capacity, safety conditions, and planned improvements to identify the issues, problems and opportunities. Finally, this element uses the current traffic situation in Isle of Comprehensive Plan 5-1 Isle of Wight County, Virginia

133 Wight County as the basis for developing short and long-term strategies to satisfy year 2030 needs. Background Information Functional Classification of Highways The skeletal framework of the County's highway system is the arterial and collector highways shown on Map 5-1. The map also reveals that the majority of the highway system is composed of local roads and secondary highways primarily functioning to provide access to individual properties. Based on the Functional Classification of Highways described above, the following characterizes the basic highway network in the County. Principal Arterial: Carries a high volume of traffic for intra-state, inter-county and inter-city travel. Traffic on this type of road normally has the right-of-way except in areas of high hazard, then controls are used. Principal Arterial routes in the County include: U.S. Route 17 U.S. Route 460 Minor Arterial: Carries a high volume of traffic for intra-county and inter-community travel. These roads normally serve the higher classification roads providing access to and from the principal arterials. Minor arterials in the County include: V.A. Route 10 V.A. Route 32 U.S. Route 258 VA. Route 260 Major Collector: Serves intra-county and inter-community travel, but at a lower volume, and usually connects to an arterial to provide access to the surrounding land. Access is not directly from this road but from a sub-road connected to the collector. They may serve community shopping areas, schools, parks and cluster developments. Major collectors in the County include: North/South Routes East/West Routes VA. Route 644 and 602 VA. Route 620 VA. Route 610 VA. Routes 621 and 626 VA. Route 10 Business VA. Routes 704/665 U.S. Route 258 Business VA. Route 603 VA. Route 616 VA. Route 637 VA. Route 617 U.S. Route 58 Business VA. Route 655 Minor Collector: Serves intra-community travel at a volume below the major collector. Provides access to the land using lower order roads and sometimes direct access from itself. (See Map 5-1 for designated routes.) Comprehensive Plan 5-2 Isle of Wight County, Virginia

134 Traffic Volumes and Trends Average daily traffic (ADT) volumes on roadway segments, based on most recently available traffic counts from VDOT (2004), are represented on Map 5-2. Total average daily traffic (ADT) on U.S. Route 17, in the County exceeded 25,000 vehicles per day in The 1997 average daily traffic volumes in this corridor (from Bartlett to the James River Bridge) were somewhat lower and dropped to 23,000. The reduction was generally attributed to the construction of the I-664 connection from Southern Hampton Roads to Newport News. In 2004, the ADT volume had increased to 29,000, as this route continues to carry the highest traffic volumes in the County. In most cases, arterial federal aid routes in the County remained at a constant level or have sustained substantial increases in traffic volumes during the 16 year period from 1988 to The only exception to this is Route 17, leading to the City of Suffolk, which had experienced a sharp decrease in the past but most recently has leveled to its current volume. Table 5-1 presents trends in average daily traffic for selected road sections on the County's federal aid highways. These volumes and locations (shown on Table 5-1) reflect the importance of these routes as a major connectors to the City of Newport News and a commuter route to work places north and east of the County. A number of traffic volume increases, associated with recent growth and the commuting patterns, occur in the northern part of the County. Table 5-1 Traffic Trends on Federal-Aid Highways for Selected Road Sections 1988 Route # From To 1997 ADT 2003 ADT 2005 ADT ADT 460 Suffolk Windsor 12,845 16,000 14,000 34, Southampton Windsor 9,435 9,700 10,000 24, Route 258 Newport News 25, ,000 27,000 30, Route 258 Suffolk 13,815 19,000 12,000 15,000 32/258 Benns Church 10 Smithfield Bartlett 16,500 23,000 23,000 25,000 Benns Church 15,390 22,000 25,000 26,000 Source: Virginia Department of Transportation ADT Count for 1988, 1997, 2003 and Routes 10 and 32 from Smithfield to Route 17 carry average daily traffic volumes of 26,000 and 25,000 respectively (see Traffic Counts, Map 5-2). This represents an increase of approximately 51 percent and 69 percent on each of these routes over the past 17 years. In the Windsor area, Route 460 traffic from Windsor east to Suffolk had grown by 25 percent from 12,845 vehicles per day in 1988 to 16,000 vehicles per day in 1997and by 2005, the volume increased to 34,000 vehicles per day, an increase of 113 percent since VDOT staff predicts another 500 freight trucks will travel this route when new port operations at Portsmouth beginning in Route 58 Business, leading south into Franklin, carried some 8,900 vehicles per day in 2005 reflecting little change from traffic counts on this route some 16 years earlier. Traffic volumes on Route 258 from Smithfield to Isle of Wight also increased approximately 23% over the 17 year period Comprehensive Plan 5-3 Isle of Wight County, Virginia

135 Capacity Analysis Levels of service are often used as measures of system performance in transportation planning analysis and to define public policy concerning highway performance. They are also used in traffic impact analyses to determine local traffic impacts of proposed developments. Definitions of level of service differ for intersections and roadway segments, for city streets, and for controlled access highways. In urban and suburban areas, where intersections are closely spaced, traffic signals usually govern arterial and street capacity. Route 10 in the Smithfield area is an example of this situation. Thus, in urban and suburban locations, roadway adequacy is assessed at intersections in the traffic impact analysis process. Level of service reflects driver satisfaction with a number of factors that influence the degree of congestion, including speed, travel time, traffic interruption, freedom to maneuver, safety, driving comfort and delays. Six levels of service used to describe highway flow conditions are defined below: LOS A LOS B LOS C LOS D LOS E LOS F represents a free flow of traffic with low volumes and high speeds with little or no delays. Drivers are virtually unaffected by others in the traffic stream. is in the range of stable flow, but the presence of other users in the traffic stream begins to be noticeable. LOS B affords above average conditions. is also in the range of stable flows but marks the beginning of the range of flow in which the operation of individual users becomes significantly affected by interactions with others in the traffic stream. LOS C is normally utilized as a measure of average conditions for design of facilities in suburban locations. It is also considered acceptable in rural locations. represents high density but stable flow. Speed and freedom to maneuver are severely restricted and the driver experiences a generally poor level of comfort. Small increases in traffic flow will generally cause operation problems at this level. represents operating conditions at or near the capacity level. Operations at this level are usually unstable, because small increases in flow or minor perturbations within the traffic stream will cause breakdowns in flow. is used to characterize demand volumes which exceed roadway capacity as complete congestion occurs. Under these conditions motorists seek other routes in order to bypass congestion, thus impacting adjacent streets. Table 5-2 lists the existing level of service (LOS) for selected intersections in the County. Based on the traffic volumes identified on Map 5-2 and the LOS indicators, the County's highway system generally contains excess capacity to accommodate future growth. It is also clear from these analyses that the existing conditions for many of the intersections and road sections warrant the targeting of programmed State short and long-range transportation improvement projects. For example, the intersection of Route 258 and Route 620 were operating Comprehensive Plan 5-4 Isle of Wight County, Virginia

136 at LOS D in The intersection of Route 704 (Battery Park Road) and Route 669 (Nike Park Road), also in the northern part of the County, is currently nearing capacity. Intersections noted as Level of Service D along the 258 corridor at its juncture with Route 606 and Route 620 are scheduled for intersection improvements by VDOT over the next several years. Table 5-2 Existing Level of Service (LOS) for Selected Intersections - Isle of Wight County Intersection Level of Service (LOS Year of Study Route 10 Route 258 C 1997 Route Route 655 B 1997 Route Route 620 D 1997 Route Route 669 E 1997 Route Route 676 B 1997 Route Route 606 D 1997 Map 5-3 shows the road sections that have been identified as below LOS C. (LOS analysis performed by Redman/Johnston Associates, Ltd. generally used the highway system planning technique for rural two-lane highways described in the Highway Capacity Manual, Special Report 209, Transportation Research Board). The procedure is intended for general planning and policy studies. Traffic, geometric and terrain data have been generally classified. The planning criteria also assume a typical mix of 14 percent trucks, 4 percent RVs and no buses. A 60/40 directional split is used, along with percent no passing zone values of 40 percent for rolling terrain since State Highways generally meet minimum design standards. Ideal geometrics of twelve foot lanes, six foot shoulders and 60 miles per hour (mph) design speed were used. Since conditions will vary within the County, an operational analysis would need to be conducted for precise design treatments or specific impact analysis.) A portion of Route 10/258 is operating at LOS D; much of Route 258 south of Smithfield is rated at LOS D. Though the Smithfield area is the most noteworthy in terms of limited capacity, other areas of the County need to be monitored for capacity constraints when considering future land uses. Development in the Newport Development Service District, coupled with growth in the Town of Smithfield have resulted in substantial increases in traffic volumes utilizing sections of Battery Park Road, Nike Park Road, and Smith Neck Road among others. These road sections provide an alternate route to and from the Route 17 corridor and the Town of Smithfield for commuting patterns to Newport News. A study performed of this corridor by HRPDC in 1997/98 cites increases in traffic using these routes and recommends improvements in the corridor to support growing traffic volumes. As of 2006, no substantial changes have been made to County roadways that would alleviate the low LOS found at the intersections listed in Table 5-2. With the increased growth in population and development, LOS on these and other roadways may be significantly hindered. Also, the County recognizes that traffic has increased on several secondary roads that are being utilized as through-ways while drivers are bypassing the major highways. Drivers are using the throughways to decrease travel time and as a convenience. These through-ways are: Route 603 (West Blackwater Road/Shiloh Drive/Everets Bridge Road) Comprehensive Plan 5-5 Isle of Wight County, Virginia

137 Route 620 (Broadwater Road/Foursquare Road/Scott s Factory Road/Turner Drive) Route 638 (Cut Thru Road/Five Forks Road) Route 644 (Fire Tower Road/Red House Road/Bowling Road/Turner Drive) The increased traffic raises concerns for LOS and safety on these roadways and all roads in the County. A Highway Master Plan will provide a current Level of Service study for the County s major intersections and establish improvement projects for these intersections and other roadways. Safety Annually, the Traffic Engineering Division of VDOT monitors and summarizes motor vehicle accidents that occur along identified road sections. The accident, injury and death rates are calculated by dividing the total number of accidents, people injured, or people killed by the annual vehicle miles of travel at a location. Rates are expressed per 100 million vehicle miles of travel. The accident rates for primary highways in the County are shown in Table 5-3. Table 5-3 also shows that the highest rates are in or around the towns of Smithfield and Windsor. The accident rate is used for establishing priorities only and not for comparing the safety performance of different intersection and road design types. High accident road sections, for the purpose of this analysis, include those road sections that exceed the State average accident and/or injury rates. The highest crash rate in the County occurs on US Route 258 Business followed by Route 10 Business in Smithfield.; The highest injury rates occur on US Route 258 Business and the Route 58 Business corridor at the southern end of the County. Accident trends have moved in various directions for the listed roadways with most having increased accident, slight or no changes in crash rates and sharply decreased injury rates. The exception is US Route 258 Business, which experienced increases in each of the three categories. None of these road sections has been identified by VDOT for inclusion in the federally funded Hazard Elimination Program. VDOT has placed rumble strips in the center of Route 460 to alert drivers who may attempt to crossover the centerline of the highway. More precautions may be needed, since VDOT states that tractor-trailer combinations make up 16% of the traffic sharing this roadway. Comprehensive Plan 5-6 Isle of Wight County, Virginia

138 Table 5-3 Accident Rates for Selected Primary Routes - Isle of Wight County Route# From To Total Accidents Crash Rate Injury Rate SR 10 Surry Co. Line Suffolk Corp. Limits SR 10 Bus. US 17 US 258 Bus.. US 58 Bus. US 258 US 460 Route 10 (Old Stage Highway) US 258/10 (Benns Church Boulevard) Suffolk Corp. Newport News Corp Limits Limits US 258 Bus. Route 10 Bus Southampton Co. Line Southampton Co. Line Southampton Co. Line Suffolk Corp. Limits Newport News Corp Limits Suffolk Corp. Limits Note: US 258 formerly SR 260 in Isle of Wight County begins at the Suffolk City limits Source: Virginia Department of Transportation, Accident Rates, 2004 Commuter Patterns Although work trips generally represent about 28 percent of all trip purposes, they provide data during a time of day in which transportation facilities are most heavily used. Information on commuting patterns provided by the Virginia Employment Commission indicate that Isle of Wight County is a net exporter of commuters. Of the 13,803 residents in the work force in 2000, only 5,118 work in the County. The remaining 8,942 residents in the work force are employed outside the County. At the same time some 5,937 residents in other locations commute to work places in the County. Commuting patterns to the Virginia Beach-Norfolk-Newport News Standard Metropolitan Statistical Areas show that the greatest number of trips originating in Isle of Wight County (2,544 or 29.3 percent) are destined to job locations in the City of Newport News. The next largest share of out commuters is to the City of Suffolk (1,284, or 15 percent). A significant number commuted to Hampton (1,160), Portsmouth (787) and Norfolk (674) as well. Some 255 residents commute to work locations beyond the regional planning district. Many new residents moving into Isle of Wight County are oriented to long-distance commuting and subsequently generate the greatest impact on the arterial routes serving the area, including Routes 17, 10 and 460. Thus, commuter trips will continue to contribute to a major proportion of congestion. One objective of the County might be to examine ways to encourage a reduction in the use of single-occupancy vehicles. To maintain quality transportation service in Isle of Wight County, strategies must be developed to provide incentives that would encourage commuters to switch to higher-occupancy alternatives. Traffic congestion, reduced travel times and costs are major issues that will face Isle of Wight County as the existing excess highway capacity is rapidly depleted by future growth. Comprehensive Plan 5-7 Isle of Wight County, Virginia

139 Hurricane Evacuation Routes Being on the Atlantic seaboard, the Hampton Roads area is prone to being affected by hurricanes. The Virginia Department of Emergency Management (VDEM) and the Virginia Department of Transportation (VDOT) have created an evacuation plan for most of the communities in Hampton Roads. The plan requires, as the need arises, that large numbers of evacuees travel on the principal and minor arterials through the County to escape the dangers of a hurricane. Upon notification to evacuate, residents in southern Hampton Roads are to evacuate using the designated routes through Isle of Wight County. These evacuation routes are U.S. Route 17, U.S. Route 460, U.S. Route 258 and State Route 10. Currently, Isle of Wight County is not included in the Hampton Roads Evacuation Plan even though large numbers of evacuees are expected to pass through the County. Isle of Wight is not included in the plan by VDEM or VDOT because the County is not deemed to be at high risk like the cities to the east. Since the evacuation plan requires that hundreds of thousands of Hampton Roads residents evacuate through the Isle of Wight, County officials are concerned about the impact this will have on the County during a disaster and question the adequacy of the evacuation routes within Isle of Wight. These concerns will be addressed in the Hazard Mitigation Plan which the County adopted in Highway Improvements Through its Six Year Improvement Program, VDOT sets priorities for the funding and construction of improvements to the Primary and Secondary Highway Systems in Isle of Wight County. Additional priorities are set by the Hampton Roads Planning Organization for those areas located in the northeastern portion of the County. The FY Program identifies the following projects: Bridge replacement and repairs/modifications to approaches to the Route 58 bridge over the Blackwater River. Intersection improvements along the Route 258 corridor at its intersections with Route 460, Route 620 just south of Smithfield and Route 606 just north of Windsor. Safety improvements to the Route 10 corridor to construct three lanes from Cypress Creek Bridge to Battery Park Road in the Town of Smithfield. Reconstruction of Route 603 (West Blackwater Road west of Windsor to the County line at the Blackwater River) to upgrade the roadway to current standards. Reconstruction will take place in phases over the next three years. Improve intersection alignment at Battery Park Road (Route 699) and Nike Park Road (Route 704). Major widening of a section of Route 258 from the existing two-lane roadway to a threelane roadway providing a two-way center turn lane with curb and gutter. The project area is the roadway from Westside Elementary School to Route 620 and involves approximately a mile of roadway within both Smithfield and the County. Over the years the County and the State have jointly developed a Capital Improvement Program Comprehensive Plan 5-8 Isle of Wight County, Virginia

140 for the Secondary Highway System in the County. Funding for this six-year program in past years has totaled over six million dollars. The projects are widely distributed throughout the County. The focus of the program has been to maintain and improve the secondary road system by resurfacing, reconstructing existing facilities and improving access in the rural areas. Many of these reconstruction and widening projects, including the last two identified in the State program listed above, will make incremental increases to the capacity of rural highways. Other Transportation Facilities and Services Public Transportation/Ridesharing In 1982, the Southeastern Virginia Planning District Commission (SVPDC) prepared a feasibility study of public transportation and ridesharing in the region which includes Isle of Wight. Through a demand analysis, the Smithfield area was categorized as a Priority 2" sub-area and the Windsor area a Priority 3" in terms of potential for transit service. Among the highway routes evaluated, Smithfield to Franklin ranked as a Priority 4" (lowest). Public transportation services are currently limited to special populations (the elderly) and are special purpose in nature to support the provision of services to older residents by social service agencies. Rail Transportation Norfolk Southern Corporation offers County freight, passenger and piggyback service in the County. CSX Corporation also offers freight and piggyback service in the County. Both lines serve County industrial sites. Currently, passenger service is provided by Amtrak, which provides service to Richmond and points north and south along the eastern seaboard. The closest passenger station is located in Newport News. Regional efforts are underway to determine the feasibility of establishing high speed rail along the Route 460 corridor. Air Transportation Norfolk International Airport, approximately 40 miles from the County, offers 200 flights daily via seven airlines. Newport News/Williamsburg International Airport, located on the peninsula and approximately 25 miles from the County, offers 23 flights daily via three airlines. Both airports handle air freight traffic. There are also two municipal airports which serve County residents. John Beverly Rose Airport is a general aviation airport at the southern end of the County. This airport has a 4,977 foot paved, lighted runway, three T-hangars that can accommodate 22 small aircraft and four large aircraft hangars with a total of 56,000 square feet of storage space. The other facility is the nearby Hampton Roads Airport, a general aviation facility. Both airports have fuel and maintenance services available. The Orbit Air Strip and Aberdeen Field Airport are two private air facilities within the County but these facilities do not provide any aircraft servicing. Water Transportation There are presently no commercial port facilities located in Isle of Wight County. The James River, with its 35 - foot channel at the County's northern boundary, offers direct access to major port facilities nearby in Hampton Roads, where the river's channel deepens to 45 feet. The local Pagan River has a 10 - foot channel. Comprehensive Plan 5-9 Isle of Wight County, Virginia

141 Transportation Improvements and Studies Route 460 Location Study In March of 2003, VDOT began a three year study called the Route 460 Location Study. The purpose of the study was to consider future improvements to Route 460 from Prince George County to the City of Suffolk. Currently, Route 460 is a four-lane undivided highway (principal arterial) that passes through a number of towns and rural communities including Windsor and Zuni. The study focused on: Safety and mobility issues Accommodation of future increased truck traffic Reduction of traffic delays Provide adequate emergency evacuation capability Improve the strategic military reliability of the roadway Meet improvements required by Federal and State legislation Meet economic development plans of localities transversed by Route 460 The study considered five alternatives which include no build, simple upgrade to the existing roadway, a southern alignment, a northern alignment, and an alternative utilizing the existing roadway with incorporation of a bypass around each locality. The Commonwealth Transportation Board, utilizing information from the study, chose the southern alignment. In mid-2006, VDOT began seeking an engineering firm to design and construct the new alignment. Richmond to Hampton Roads Passenger Rail Study The Virginia Department of Rail and Public Transportation (DRPT) has initiated a study to investigate the establishment of a high speed passenger rail service from Richmond to the Hampton Roads area. The impetus for a high-speed rail service is the projected increase in population and employment, increased traffic congestion and increased automobile emissions in the region. The proposed rail system would serve as an extension of the Southeast High Speed Rail Corridor that provides service along the eastern United States. This study is of great interest to Isle of Wight officials and citizens because of one of the rail routes considered. The southern alternative routes the railway along the Route 460 corridor that traverses the County. The other alternative proposes a northern route along the Interstate 64 corridor between Newport News and Richmond. In early 2006, a Tier 1 Draft Environmental Impact Study was being prepared, which examined: Air Quality Capital and Operating Costs Historic Properties Indirect Impacts Noise Park, Recreation and Open Space Quality of wetlands and streams Ridership Social and Economic Impacts Comprehensive Plan 5-10 Isle of Wight County, Virginia

142 Threatened and endangered species The study is expected to be completed in late 2006, but final decisions are not expected for several years. Route 258 Corridor Study In 1994, VDOT completed a study that proposed improvements and alignment changes for Route 258. This minor arterial is an undivided two lane highway that is the County s major north-south roadway. It connects Smithfield, Isle of Wight, Windsor and Franklin. The improvements presented by the study included increasing lanes to two in each direction and separating traffic by a median. The changes in alignment are to allow feasibility of the improvements, improve safety and line of sight and improve traffic movement for anticipated increased volumes. Implementation of the proposed improvements would help alleviate the traffic utilizing secondary roads as through ways. Benns Church Intersection/realignment The Board of Supervisors adopted the Benns Church Activity Center Roadmap for Growth in The master plan contains a transportation component that specifies the realignment and relocation of the intersection of Benns Church Boulevard and Brewer s Neck Boulevard. The realignment would coincide with the Route 258 Corridor Study plan to bring Route 258 to the Benns Church area. Bicycle and Pedestrian Access The 2006 Bicycle and Pedestrian Master Plan is set out in the Appendix of this document and is hereby incorporated into this Comprehensive Plan. The following provides an overview of this special element, while the plan itself is contained in the appendices of this document. This plan should be consulted for specific proposals in the affected areas. In January 2001, the Board of Supervisors directed County staff to present a recommendation on how to approach bicycle and pedestrian planning in Isle of Wight County (IOW). The IOW Bicycle Committee was formed with representatives from each district. In August 2005, the IOW Bicycle Committee recommended, unanimously, to request that the Board hire a consulting firm to develop a bike and pedestrian plan for Isle of Wight County. The Committee worked with the consultant to develop the Master Plan between January 2006 and October The Board of Supervisors adopted the Bicycle and Pedestrian master plan in October The 2006 Bicycle and Pedestrian Master Plan emphasizes connectivity within the County and accomplishes the following: 1. Identifies existing opportunities for bicycle and pedestrian travel within Isle of Wight. 2. Provides a master plan of recommended routes that will enable and encourage citizens to travel, within the County, between recreation facilities, residential areas, public areas and commercial entities, by pedestrian travel or bicycle. The plan should address particularly Comprehensive Plan 5-11 Isle of Wight County, Virginia

143 Issues those areas of high growth and population density within the County. The plan should also include the incorporated towns of Smithfield and Windsor. 3. Incorporates a public involvement effort to inform the community and includes the public s ideas into a realistic plan the County can implement. 4. Identifies a plan that can be phased to meet funding availability. Phases of the plan will be prioritized. 5. Identifies funding sources for the various bikeway and pedestrian projects. 6. Identifies items such as environmental concerns, easements, permits, historical resources documentation and regulatory approvals necessary to construct proposed routes. 7. Addresses current and future Virginia Department of Transportation projects that are designated in the six year plan. Isle of Wight County's transportation system for the year 2030 requires special consideration in view of several emerging issues: Increased development along the U.S. 17 corridor in the northern part of the County needs to be properly managed in order to maintain safe and efficient operation. Also of concern is the increase in traffic lights between the Bartlett Intersection and the James River Bridge and the affect they have on traffic flow. Development patterns in recent years have created a series of subdivisions which lack interconnection in the County. Greater street system connectivity between and among developments can reduce dependence on one route for access to and from residential developments and effectively enhance the capacity of local street systems and primary and secondary road systems in the County. However, efforts to connect existing street systems, particularly in existing developed neighborhoods will require sensitive treatment to avoid impacts to the community. Increased through-traffic, combined with increased local traffic on Routes 17, 460, 10 and 258, may require additional capacity and realignment be added to these highways to enhance traffic flow. Most county secondary roads have limited capacity to support substantial increases in traffic volumes as a result of local land uses. Greater control over access should be exercised to preserve or enhance their capacity to support increases in traffic volumes over time. Periodic changes or reductions in the level of federal funding for roadways places more financial responsibility at the state, County and local levels, as well as with private developers, to fund new roadways and roadway improvements. Roadway construction funds must, therefore, be carefully expended, and road needs carefully identified and programmed. Comprehensive Plan 5-12 Isle of Wight County, Virginia

144 Concerns are likely to grow regarding the ability of the existing roads to serve current and projected increases in traffic volumes as a result of future development. These likely future concerns underscore the need now for greater control of access along primary and secondary routes in the County. Current development patterns will not support a major investment in transit service in the County. If transit is ever to become a viable alternative travel mode in Isle of Wight County, the land use plan must establish areas along major transportation corridors at high enough residential and employment densities to support such service. Walking/hiking trails and bike trails are few in number in the County. Such facilities have not been a key component of the County transportation program in the past. Trail systems can serve to connect neighborhoods to one another and to key public facilities and provide an alternative means of transport; on foot or on bike. Such facilities are most important within the County development service districts. They diversify transportation options and provide recreational amenities that enhance the quality of life for residents. The County needs to elevate the status of pedestrian and bike facilities as a component of its overall transportation program in future years. The Pedestrian and Bicycle Facilities Master Plan, adopted in October 2006, provides a number of recommendations in this regard. Congestion of the County's arterials is not solely the product of too much volume, but also of too many conflicting turning movements at intersections and driveways. This side friction inhibits the safe and efficient flow of traffic. The addition of the Interstate 664 crossing has provided some benefit to the County by facilitating the free movement of commuters to and from the Hampton Roads-Newport News area, thus relieving some burden on the James River Bridge crossing and traffic volumes on the Route 17 corridor. County economic development benefits may ultimately be derived from this improved linkage to economic growth within the region. The closure of the Kings Highway Bridge on Route 125 now requires a 19-mile detour which routes increased traffic on Route 10 North, then onto Route 258/Route 32, to Route 17 South, back to Kings Highway. The bridge was closed in March 2005, and funding to repair the double swing span drawbridge was not available as of Transportation Goals and Objectives GOAL: To provide for the safe and efficient movement of people and goods throughout the County. Objectives Specific objectives designed to support efforts to achieve this goal include: Plan road system improvements to support and enhance the Comprehensive Plan and Future Land Use Plan. Comprehensive Plan 5-13 Isle of Wight County, Virginia

145 Plan for a highway and street system within Development Service Districts that supplements or replaces, where appropriate, the public road system through the preparation of a Highway Master Plan. Improve existing transportation facilities efficiently to meet increased demand. Require development to pay its fair share of the costs associated with any increases in demand on transportation facilities. Develop a circulation system that encourages the separation of through traffic from local traffic and enhances connections between neighborhoods within the development service districts. Require that subdivision roads be planned and constructed according to County and State Department of Transportation standards. Protect highway capacity by limiting or controlling access along principal corridors; discourage strip development on secondary corridors. Decrease levels of commuter traffic during the a.m. and p.m. peak traffic hours through techniques such as car pooling, staggering work schedules, and telecommuting, etc. Preserve and enhance opportunities for greater industrial use of the County's rail and airport facilities. Decrease the need for automobile trips by encouraging mixed-use developments, pedestrian pathways and bike paths. Provide a smooth flow of traffic at the Bartlett Intersection, Brewer s Neck Boulevard and Carrollton Boulevard, by realignment or re-engineering. Implementation A number of implementation measures are recommended to enhance transportation facilities in Isle of Wight County. Many measures take the form of recommended policies that provide a framework to strategically adapt the County's transportation system to address specific development problems unique to a given areas of the County. Implementation measures also include planned improvements in order to create a transportation network that is consistent with the objectives and implementation of the Land Use Plan. The transportation plan cannot succeed without proper support and leadership from County government. The following implementation strategies establish the policy framework from which the County will create and maintain a functioning transportation system within the context of planned growth in the County. Prepare a County Transportation Plan A highway master plan provides the direction needed to prioritize required highway improvements and to assure highway improvement needs are adequately met in future years. Comprehensive Plan 5-14 Isle of Wight County, Virginia

146 The plan should: 1. Identify funding sources while recognizing VDOT limitations. 2. Establish a level of service and a maximum carrying capacity for all existing roads. 3. Develop a county-wide comprehensive road maintenance strategy. Sustain and enhance Capital Programming efforts Capital programming has been recognized as a proactive way of avoiding some of the past transportation capacity problems. To ensure that opportunities for pre-planned expansion are not missed, require the annual revision of the County's Capital Improvements Program to be coordinated with the Comprehensive Plan and any recommended amendments resulting from the annual review of the Plan and planning process. It is the responsibility of the Department of Planning and Zoning to monitor changing growth and development trends in the County and to advise the other County departments and State Highway Administration accordingly. The annual process involving the County and the State Highway Department will evaluate the relationship between the State's available resources and the demands upon the County's road systems created by proposed land uses and land use trends. The County should begin platting rights-of-way for new roads and streets where the land use patterns allow. The annual Capital Improvements Budget should include funds for the design of proposed road improvements so that adequate rights-of-way can be reserved. Funding for design improvements can provide for long-range planning of alignments for many of the secondary road improvements recommended on the Transportation Plan Map (Map 5-4). This will also permit the coordinated completion of the improvement if undertaken by different entities such as private developers. Sustain efforts to assure coordination of the Land Use/Transportation Planning Process Place more emphasis on coordination between the County, VDOT, and HRPDC staffs on matters related to planning and programming improvements and transportation systems management. There are several steps that can be taken to enhance the current transportation planning process: the State and County should work very closely together to evaluate the transportation system implications of the County's new growth plans; elected officials should be major participants in this process; and coordinated State and County transportation management policy should recognize the need to expand upon the current level of commuter ride sharing in order to reduce single-occupant vehicles. This is particularly important at the intersection of major collector highways serving commuter sheds and U.S. Route 17. Utilize Quality of Service/Adequate Public Facilities Standards The County's LOS policies establish a recognizable basis for evaluating alternative plans and/or policies. LOS policies provide the basis and criteria on which to evaluate alternatives and to determine capital requirements. With establishment of LOS policies, the County makes a clear statement to developers and reflects the public's expectations about the quality of highway service it expects to achieve or maintain as growth occurs. With level of service established, the County then has a policy based, quantified capacity measure from which to assess the traffic impacts of new developments. Whether or not a particular development will generate traffic that Comprehensive Plan 5-15 Isle of Wight County, Virginia

147 will exceed the capacity of the road can be determined from analysis, and the question of road impacts is then no longer subjective. Traffic Impact Analysis As part of the zoning process and implementation of the LOS Policy, the County will continue to require a traffic impact analysis of all major new projects. This analysis will be used to determine if post-development traffic levels and patterns will be consistent with the County's Transportation Plan and highway policies and will minimize potential safety and congestion problems. At a minimum, the traffic analyses should include a description of past and present roadway conditions, existing roadway capacity, traffic accidents, existing and projected traffic volumes (ADT and peak a.m. and p.m. traffic), existing and projected levels of service, and existing and proposed sight lines based on facts and reasonable generation factors for the site and the immediately affected road networks and intersections. Where the County has short-term planned improvements scheduled, the development may include such improvements in the traffic impact analysis. Adopt precise standards for the preparation of these analyses. Sustain and enhance Capital Programming efforts Capital programming has been recognized as a proactive way of avoiding some of the past transportation capacity problems and should become a priority for the County. To ensure that opportunities for pre-planned expansion are not missed, require the annual revision of the County's Capital Improvements Program to be coordinated with the Comprehensive Plan and any recommended amendments resulting from the annual review of the Plan and planning process. It is the responsibility of the Department of Planning and Zoning to monitor changing growth and development trends in the County and to advise the other County departments and State Highway Administration accordingly. The annual process involving the County and the State Highway Department will evaluate the relationship between the State's available resources and the demands upon the County's road systems created by proposed land uses and land use trends. The County should begin platting rights-of-way for new roads and streets when the land use patterns allow. The annual Capital Improvements Budget should include funds for the design of proposed road improvements so that adequate rights-of-way can be reserved. Funding for design improvements can provide for long-range planning of alignments for many of the secondary road improvements recommended on the Transportation Plan Map (Map 5-4). This will also permit the coordinated completion of the improvement if undertaken by different entities such as private developers. Construct the realignment and improvements proposed in the Route 258 Corridor Study Include the realignment proposed for the Benns Church Corridor segment. Realigning the highway and building the improvements will enhance traffic circulation, capacity and safety. The improvements will also remove the appeal for drivers to use through-ways in order to transverse the County. Comprehensive Plan 5-16 Isle of Wight County, Virginia

148 Pro-actively Manage Access Create, initiate and support an access management program by utilizing appropriate ordinances to ensure that access opportunity is not unnecessarily pre-empted along key road links or near major intersections, particularly along the designated Highway Corridor Districts. Consider the following techniques in managing access to principal corridor roadways. Limit the number of conflict points by installing physical barriers, modifying driveways, and installing signals at entrances, etc. Separate basic conflict areas by regulating the minimum spacing of driveways, spacing driveways optimally in the permit authorization stage, consolidating access for adjacent properties, buying abutting properties, denying access to small frontage parcels, and requiring access via collector streets or service roads, etc. Minimize the need to decelerate in traffic by geometrically designing access points. Remove turning volumes or queues from sections of the through lanes by pavement marking alterations, geometric design modifications, right-of-way acquisition (including acquisition for such techniques as constructing a service road or bypass road), or requiring adequate internal site circulation. Adopt guidelines for access type and minimum spacing of intersections. Revise zoning and subdivision provisions to require that development project design minimizes left turn movements or conflicts both on the site and in the street. Design driveways in order to achieve clear sight lines based on design speeds as adopted by VDOT. Require that site access and circulation conform to the following standards: o Where reasonable access is available, arrange the vehicular access to the site to avoid traffic use of local residential streets situated in or bordered by residential districts. o Require that the road giving access to the site have sufficient traffic carrying capacity and be suitably improved to accommodate the amount and type of traffic generated by the proposed development. o Where necessary to safeguard against hazards to traffic and pedestrians and/or to avoid traffic congestion, require that provisions be made for turning lanes, traffic directional islands, frontage/service roads, driveways, and traffic controls within the road. o Design access driveways with sufficient capacity to avoid queuing of entering vehicles on any road or street. Manage Commercial and Industrial development form Discourage linear development and encourage interior uses when developing in planned parks Comprehensive Plan 5-17 Isle of Wight County, Virginia

149 where access control is efficient and where interior roads, rather than arterial or collector roads, provide access to each use. This land use technique will discourage shallow strip development. Setting commercial development away from roadways permits effective site design and maximizes the use of each access point. Just as shopping centers, office parks, and industrial parks function on the basis of a known location, so can general commercial. When between two and five commercial uses can use a single access, substantial improvement to the flow of traffic can result. Continue working to develop a trails/bikeway system A trail system development plan should be prepared in conjunction with the greenways program recommended in the Parks and Recreation element of this plan. Trails may be appropriate in certain greenway locations or in locations that capitalize on existing rights-of-way (i.e. Lake Gaston pipeline ROW). Use trails to interconnect neighborhoods and link neighborhoods to park lands, conservation areas, scenic landscapes and historic and cultural sites. Initial projects could involve linking only two parks or linking a series of parks. The Isle of Wight Pedestrian and Bicycle Facilities Master Plan contains maps of the proposed pedestrian trails and bikeways. This plan should be developed to provide recreational facilities and alternative means of transportation for County residents. Integrate Land Uses where appropriate Integrating housing into overall design of large scale employment or commercial service centers will help reduce the need to travel. Homes built in proximity or immediately adjacent to the workplace or shops not only reduce vehicle miles of travel, but also present opportunities for workers to walk or bike to work. This particular measure should be used to support the development of designated Activity Centers within the Development Service Districts. Encourage Proffers Indicate the need for dedication of right-of-ways for new roads, for road extensions, and to widen existing highways, or establish greenways, bikeways and trails through the Transportation Plan and Capital Improvements Program. Conduct Fiscal Impact Analysis for proposed Developments The development of a per unit fiscal impact of residential and commercial development provides a rational basis on which to accept proffers from developers. It is intended that the fiscal impacts be calculated for roads. Though impact fees are not expressly authorized for Isle of Wight County, the detailed impact analysis will establish the basis for such fees once the County is enabled by the State legislature. State enabling legislation does allow for the voluntary funding of off-site road improvements and reimbursements of advances by the governing body (Section E of the Code of Virginia). The standards for determining the reimbursement in State law are basically the same as those that govern the development of impact fees. The fiscal impact analysis should be used as a basis for proffering under this statute. To the extent possible, the County should utilize an impact fee system, requiring developers to pay for transportation improvements based on the estimated amount of traffic their project will generate. Utilize Special Service Districts, where appropriate Comprehensive Plan 5-18 Isle of Wight County, Virginia

150 Formation of a Special Service District can serve as a financing mechanism when service roads are needed to control access along a highway corridor and several property owners benefit from the enhancement in access the service road provides. Reserve Right-of-Way where needed for road construction Preserve rights-of-way for road improvements consistent with the Transportation Plan Map and the State and County capital improvement programming. This includes right-of-way and easements for new roads or widening of existing roads requiring additional capacity. Reserving rights-of-way for future use ensure consistent widths of future roads and roadway improvements. Develop Local Circulation Plans for Activity Centers Traffic circulation plans for each Activity Center and for adjacent portions of the Development Service District should be developed and periodically updated to provide adequate traffic facilities and access control on a smaller scale. Explore Transit Development options Continue to explore future options and costs for development of bus service within the Development Service District that would reduce inter-county/city traffic. Transportation Management Strategies Encourage innovative mechanisms, including private cooperation, and financial support by developers and the business community to be incorporated into financing policies. Transportation Management Authorities (TMAs) have traditionally been a coalition of employers who engage in a wide range of activities including the promotion of ridesharing, the purchasing of vans for vanpools, the financing of area wide street improvements such as signal upgrades, and even the planning for long-range transportation projects. Most TMAs are supported through membership fees, sometimes voluntary, more often mandatory. Most TMAs have been initiated by employers within a defined geographic area. The northern part of the County, including the Route 17 corridor, for example, may be a geographic area base for a TMA as it develops. Some of the County's larger employers, such as International Paper, and Smithfield Foods, who want to reduce the number of employees who drive to work during peak hours, have the option of implementing relatively low-cost transportation management strategies that would reduce the number of peak-period vehicle trips. Newport News Shipbuilding offers an opportunity for employees to initiate their own transportation programs that will help extend the capacity of the James River Bridge. Transportation management strategies selected by employers generally provide employees with incentives either to use alternative commute modes or to commute during non-peak hours. These include: instituting flexible or staggered work hours; Comprehensive Plan 5-19 Isle of Wight County, Virginia

151 facilitating carpool and vanpool formation; setting aside preferred parking locations for carpools and vanpools; providing company-chartered commuter bus service; charging employees for parking; and building on-site bicycle paths and safe storage areas. Not all businesses will immediately understand how they can benefit from trip reduction. Educating the private sector is an important part of developing and selling the concept of transportation systems management. The Transportation Plan Map (Map 5-5) shows the improvements, both planned and needed, to address the identified deficiencies and other transportation objectives. In addition to the highway improvements, new park and ride facilities need to be planned along the Route 17 and Route 460 corridors. These facilities will accommodate the anticipated growth in the Development Service Districts. Given the importance of the Route 258 corridor as the single spine of the major transportation network connecting Route 17/10, Route 460, and Route 58 corridors, long-range planning should provide for preservation and enhancement of its capacity. Map 5-4 identifies alternate alignments for increasing capacity when needed and identifies long-term intersection improvement needs at the Routes 258/460 and Routes 258/58 intersections which may be prompted. A 1994 corridor study prepared by VDOT for the 258 corridor proposed dualization of the route to enhance capacity. Based on projected traffic patterns, these improvements are not considered needed within the short-term (five-year) planning period, so funding has not been made available. However, they are noted as long-term needs to protect rights-of-way from encroachment by development in order to preserve County and State options for their ultimate construction. The alternate B alignment shown on Map 5-4 is a general representation of County intent. The County, as part of the plan, should encourage VDOT to study this alignment and corresponding intersection improvements to determine their feasibility and better define alignment. Summary This plan element has focused on identifying existing and projected capacity of transportation facilities to identify the issues and problems of providing an adequate transportation system in the context of the County's projected growth rate and geographic distribution. The implementation strategies identified in this element of the plan were designed to ensure that the provision of transportation facilities and services is phased with the demand or need and that the provision of services and the construction of facilities encourages a form of development consistent with the Land Use Plan. Some provisions, such as access management and transportation systems management, address the efficient and effective use of facilities; others, such as proffers and capital programming, address the financing of facilities and services. Comprehensive Plan 5-20 Isle of Wight County, Virginia

152 Chapter Six Community Facilities and Services Ensuring that the provision of community services and facilities is phased with the demand or need is a major component of growth management. Community facilities and public services are those minimum facilities and services the County provides for the common good. Generally, public facilities include land, buildings, equipment and whole systems of activity provided by the County on the behalf of the public. The quality of community facilities and services contributes to the quality of life in the County. Some facilities, such as clean drinking water and adequate sewerage disposal are necessities; while others, such as theaters and parks, are highly desirable for cultural and educational enrichment. Background/Issue Identification This section will focus on identifying existing and projected capacity of community facilities to identify the issues and problems of providing these services in the context of the County's projected growth rate and the projected geographic distribution of future development. Analysis of the capacity of various community facilities and services to support growth is based on projected population changes identified in previous sections of this plan. The following is a discussion of the existing capacities and levels of service for selected community facilities and services as well as projected demands. Planned facilities are noted where included in the County's annual financial planning process. Sewer Facilities Prior to 2001, only two public sewer systems provided sewage collection and treatment in the County. The Town of Smithfield operated a sewer system which served developed areas of the Town and parts of the County within immediate proximity to the Town. The Jamestown- Camptown area of the County adjacent to the City of Franklin is tied to the Franklin system. There are some private and developer installed systems existing within the County that provide sewage collection and treatment; but, the majority of the County is served by individual disposal facilities. With the construction of vacuum sewer facilities in the Town of Windsor, completed in 2001, there are now three public sewer systems in Isle of Wight. In 1998 the Town of Smithfield discontinued operation of a 500,000 gallon per day secondary treatment plant. Average daily treatment volumes, prior to discontinuing use was 650, ,000 gallons per day. Combined with effluent from treatment facilities at area meat packing facilities discharging into the Pagan River, a number of water quality concerns emerged and since 1998 all effluent generated by these sources has been routed for treatment to the Nansemond Treatment Facility operated by the Hampton Roads Sanitation District (HRSD). The City of Franklin began treating its collected wastewater in The existing treatment plant provides secondary treatment of 1,600,000 gallons per day which is 80 percent of its treatment capacity of 2,000,000 gallons per day. The effluent is treated by exposure to ultraviolet light in order to disinfect prior to discharge into the Blackwater River. A cooperative intergovernmental agreement between the City of Franklin and Isle of Wight County has allowed Comprehensive Plan 6-1 Isle of Wight County, Virginia

153 the City to accept up to 330,000 gallons per day of wastewater. It is estimated that the average flow from the Jamestown-Camptown area of the County is 160,000 gallons per day resulting in a reserve capacity for the County of 173,000 gallons per day. There are no current plans for modification of wastewater treatment or collection services in this area of the County. In 1997 and 1998, the Hampton Roads Sanitation District (HRSD) constructed sewer interceptors from the regional agency's plant in Suffolk (Nansemond) to locations in the County to provide sewer service to the Town of Smithfield and area meat processing facilities. The northeast interceptor sewer extends from an existing force main on Route 17 at Belleville to the Town of Smithfield. The Town of Windsor began construction of a vacuum wastewater collection facility to serve the Town and adjacent areas in 1999 that became operational in A combination of gravity and vacuum collection facilities discharge into an existing 20 inch HRSD force main with waste treated through agreements with HRSD. The Windsor interceptor force main extends from an existing force main at the intersection of Route 10 and Route 706 in Suffolk along Route 460 to the Town of Windsor. See Map 6-1 for the location of this force main and the system service area. Areas served by the system include the Town of Windsor, three (3) existing mobile home parks including Windsor Manor and Hazelwood West and Twin Ponds mobile home parks, and the Isle of Wight Industrial Park. The estimated cost of system improvements is in excess of five million dollars. The system serves approximately 785 existing residential units and existing commercial uses and will accommodate development of an additional 600 acres in residential, commercial and industrial growth within the ultimate service area. Private package sewage treatment plants serve about two percent of the County's households. Requests for new package plants have increased with development of smaller lot subdivisions. Industries within the County, with the exception of the Smithfield meat processing facilities, treat their sewage using private facilities. International Paper, Inc. treats approximately 30 million gallons per day and discharges effluent to the Blackwater River south of Franklin. Issues The provision of sewerage and sewage disposal facilities is one of the most powerful growth management tools available to County policy makers. This is especially true in Isle of Wight County, where so much of the desirable residential property is unsuitable for development on septic tank disposal systems. The County's ability to expand depends, to a large extent, upon its ability to provide economical sewer service. If sewer capacity cannot keep pace, growth will be restricted in the current sewer service areas within Development Service Districts and pressure for development in the rural areas will increase. The HRSD interceptor in the northern and central parts of the County will ultimately serve a major portion of projected County growth in both of these Development Service Districts. This regional approach to providing sewer service has offered opportunities for cost effective service and eliminated the difficulties associated with getting approvals for additional discharge locations in the Chesapeake Bay ecosystem. A great majority of the residences in the County are served by individual septic tank soil absorption systems. These systems consist of a septic tank which serves as both a settling chamber and sludge storage tank and a drainfield, which allows dispersion of the settled wastewater through the soils for further treatment before it reaches the groundwater table. The unsuitability of the soils for septic systems in the Smithfield, Carrollton, and Rushmere planning Comprehensive Plan 6-2 Isle of Wight County, Virginia

154 areas has made it necessary for development to be on large lots or, at some locations, for development to be forbidden until public sewer facilities can be extended to these areas. Historically, a number of septic systems in these areas have failed. Water Facilities There are a total of 39 community water supply systems (serving 15 or more homes) in Isle of Wight County, twelve of which are owned and operated by the County's Department of Public Utilities. As can be seen from the Water Facilities map (Map 6-2), public water supply systems are very limited or non-existent in the areas located outside the County Development Service Districts. The public water supply systems can absorb additional growth; however, the majority of private water supply systems are not of sufficient capacity to handle increased demands. Forty-five percent of the Isle of Wight County residences are served by community water supply systems. Though the County's Public Utilities Department only owns twelve water supply systems, there are several intergovernmental agreements for water service in the County. In March 1988, Isle of Wight County and the incorporated Town of Smithfield reached an agreement in which the Town agreed to extension of water distribution lines into the County which are then owned and operated by the County. This agreement has extended access to public water system facilities in portions of the Newport Development Service District located near the Town. The Town of Smithfield obtains its water from wells. Average daily use is 650,000 to 700,000 million gallons per day (mg/d) which is roughly 1/3 of its maximum daily withdrawal limit of 2.1 mg/d. Water is stored in overhead tanks with storage capacity totaling 0.62 million gallons. During the past several years, the County has entered into an agreement with the Western Tidewater Water Authority (Isle of Wight County and the City of Suffolk) for water supply to serve the northern development service district. Based on that agreement, a 1,000,000 gallon water storage tank has been constructed in Bartlett. A 16 inch water line extends along the Route 17/258 corridor from the supply source in neighboring Suffolk to the Town of Smithfield. These improvements in infrastructure set the stage for providing public water supply services to the Newport Development Service Districts in future years. The Town of Windsor currently owns and operates a water system which is certified by the State Health Department at an operating capacity of 280,000 gallons per day. The Town s water system consists of five (5) wells with hydropneumatic tanks, two elevated water storage tanks with a combined storage capacity of 450,000 gallons and approximately 17 miles of distribution piping ranging from 2 inches to 10 inches in diameter. The Town is permitted by the Department of Environmental Quality (DEQ) to withdraw a total of 630,000 gallons per day from its wells. Isle of Wight County and the incorporated Town of Windsor reached an agreement in which the Town would sell bulk water to the County to support development of areas near the Town. As a result of that agreement and subsequent development of a Master Plan for water supply, distribution and storage developed in March 1998, the Town/County water system now serves the Town as well as adjacent areas in Isle of Wight County. The County has constructed a 16 inch water main which connects to the Town s water system near the Hidden Acres subdivision and extends east some 4,500 feet along Route 460 to the nearby Shirley T. Holland Commerce Park. Future plans for expansion of water system facilities presently include extension of the 16 inch water main to the Suffolk City Limits and construction of water storage tank at the Comprehensive Plan 6-3 Isle of Wight County, Virginia

155 Commerce Park. As noted earlier, Isle of Wight County and the City of Suffolk have recently joined resources to form the Western Tidewater Water Authority. Presently, however, the newly formed Authority has not fully developed plans to supply the Route 460 corridor between Windsor and Suffolk. The Town Master Water Plan prepared in 1998 recommends Town construction of a new well to increase water supplies and improvements to, as well as expansion of, distribution facilities. Within the southern County area potable water supply is presently provided by multiple privately owned wells and two municipal water systems serving the City of Franklin and the Community of Carrsville respectively. These two municipal distribution systems are not interconnected and each system operates independently of the other. The Camptown Development Service District is served by Isle of Wight County, with water purchased from the City of Franklin. The service area includes the areas along the Route 58 corridor from the Blackwater River to just east of the intersection of Routes 258 and 58, and includes the Camptown community. The distribution system serving this area includes 14,500 linear feet of pipe ranging from 2.5 to 8 inches in diameter and has approximately 175 commercial and residential connections. Billing is based on metered water entering the system from the City of Franklin. County estimates average daily consumption is approximately 120,000 gallons per day (gpd). A contract executed between the County and the City of Franklin in the late 1990's provides for up to 200,000 gpd, averaged monthly. The Community of Carrsville is currently served by two wells which are permitted for approximately 48,800 gpd. Once privately owned, the system is presently operated and maintained by the Isle of Wight County Department of Public Utilities. Pipe sizes in the Carrsville distribution network are not well documented but are reported to range from 1 to 2.5 inches in diameter. The system has a very limited capacity and provides water for only 110 individual connections. In 2006, the County started working to resolve the problem and began the process of drilling two new wells. The existing wells will be abandoned once the new wells are connected to the distribution system due to higher than acceptable levels of fluoride. Due to efforts to target industrial growth in the Camptown DSD and the unavailability of additional water supplies from the City of Franklin, in 1998 the County conducted a water supply study to determine the most efficient means and staging for improvements in this DSD to satisfy projected water supply needs. Consideration was given to five alternative means of satisfying demand. The most cost-effective alternative was determined to be the development of a new water supply system for industrial users. The proposed system would include 2 wells, a 750,000 gallon elevated water storage tank to meet industrial fire-flow demand, and the installation of approximately 5,000 feet of 16 inch water main to terminate at the juncture of Routes 258 and 58. In 1999, the County constructed a 750,000 gallon elevated water tank on Carver Road to provide water storage for the area. The County received a permit from the Virginia Department of Environmental Quality to drill two water wells to increase the water supply in the Camptown area. By 2006, the Board of Supervisors authorized the preparation of a Preliminary Engineering Report, design and construction of the well and associated treatment system. Areas having public supply water systems, utilizing wells, as defined by the Virginia State Health Department include Rescue, Rushmere, Carrsville, Central Hill, Collosse, Zuni, Thomas Park, Day s Point, Tormentor Creek, Bethel Heights, Smithfield Heights and Isle of Wight Courthouse. These public supply systems use wells as their source of water supply and serve 14 or more homes or 25 or more people. It is estimated that average daily use does not exceed 50,000 gallons per day. These systems are small and well suited for isolated service. Many Comprehensive Plan 6-4 Isle of Wight County, Virginia

156 areas have privately operated water systems. Some of these are Cherry Grove Acres, Owens Subdivision, Queen Anne s Court, Riverview, Rushmere Shores, Smithfield Apartments, Wrenn's Mill, Clydesdale, and Twin Ponds. Water from these privately operated wells is pumped to pressure tanks and their respective distribution systems. Several substantial industrial users exist in the County. These users create the greatest water demand in the area and satisfy this demand by privately-owned and operated wells. The three meat packing plants in Smithfield require a combined total of 2.0 to 2.5 million gallons per day. The International Paper wood products plant near Franklin operates 17 wells producing something less than 30 million gallons per day. Eleven miles of the 84 mile water pipeline to bring water into the region from Lake Gaston extends through Isle of Wight County. The County has negotiated access, with the City of Virginia Beach, to purchase 1,000,000 gallons of water per day. Future use of these water supplies in any or all of the three County Development Service Districts will relieve some of the pressure that future growth would otherwise have in demand for, and consumption of, groundwater supplies. Issues In the past, Isle of Wight County has relied solely on groundwater for its potable water supplies. Analysis through completion of water system studies over the past 5 years indicate growing needs for new sources of water supply to support growth in various forms in each of the three County Development Service Districts. A mosaic of small public and private water systems exists throughout the County creating some inefficiencies. The vast majority of water systems in the County are either small private or public systems sized for a limited service area. Some existing neighborhoods and communities require central water systems to correct existing failing wells or to serve expanding populations as well as industrial growth. Ownership, operation and maintenance of central water systems should be dedicated to the County. Shared facilities should only be permitted where supervised or operated by the County. The Lake Gaston pipeline project offers one alternative to groundwater resources; however, it may be an expensive source to develop at this time. The location of the service area will have significant land planning implications. An area of particular concern is the quality of drinking water available for County residents. One identified drinking water quality problem that has impact on the future development of the County is excess fluoride. Among the public water supply systems that are monitored by the State Department of Health, 15 of the 39 have fluoride levels higher than the EPA primary standard of 4 ppm. Seventeen additional systems do not meet the secondary standard of 2 ppm which means there is a risk of discoloration of the teeth in some children. The removal of excess fluoride is an expensive process which many small systems will not be able to afford. Reverse osmosis and electrodialysis are two effective means of fluoride removal. The problem of excess fluoride removal may mean that small community systems will not be able to cost effectively provide high quality potable water; the County should continue to explore the development of alternative drinking water supplies in areas where groundwater levels and quality are decreasing, including fostering interjurisdictional cooperation to develop potable water supplies. The creation of Western Tidewater Water Authority provides one such mechanism and may provide an organizational framework for continuing efforts to provide public water supplies derived from sources other than groundwater supplies. Comprehensive Plan 6-5 Isle of Wight County, Virginia

157 Master Water and Sewer Plan The Board of Supervisors adopted a new Master Water and Sewer Plan in May The Comprehensive Plan hereby incorporates the Master Water and Sewer Plan as adopted May 15, 2008, and as amended from time to time. The Plan establishes standards to ensure that land development coincides with the location and timing of capital facilities as well as establishes a methodology to ensure adequate levels of service for determining the impacts of development and may be amended as conditions change over time. The Board subsequently amended the Comprehensive Plan to include the Master Water and Sewer Plan as a component of Chapter 6, "Community Facilities and Services," in the Comprehensive Plan. The Master Water and Sewer Plan serves as a more detailed part of the Comprehensive Plan that will guide the County's long-range water and sewer utility needs, including source, distribution, treatment and storage capacity through the year Schools and Educational Resources The Isle of Wight County Public School System offers a comprehensive program for grades Kindergarten through twelve, in addition to special programs for gifted students, handicapped students, remedial instruction in basic skills, advanced placement classes, alternative education, preschool, and vocational education. There is also a full complement of extracurricular offerings. Students from the Isle of Wight County Public Schools may attend the Governor's Magnet School for the Performing Arts in Norfolk, based on auditions and review of their work. Another educational opportunity for Isle of Wight students is the Pruden Center for Industry & Technology in Suffolk. The Pruden Center is a regional public school that provides career, vocational and technical education for Isle of Wight and Suffolk students in grades nine through twelve. The school also provides educational opportunities for adults by offering evening classes. At the start of the school year, 5,385 students were enrolled in the County School system which employed approximately 394 teachers. Substantial growth in school enrollment since 1990, from 4,210 students in 1990 to current levels (a 28% increase), contributed to the need for construction of three new school facilities and renovation of all existing school facilities during the decade. In 2005, the new Smithfield Middle School was constructed at the Smithfield High School campus. The existing Smithfield Middle School was changed to Westside Elementary School in Table 6-1 indicates the current enrollment of the County's schools. A distribution of the existing educational facilities is shown on Map 6-3. Table 6-1 Isle of Wight County School Enrollment - September 2006 Educational level Grades Enrollment Elementary K thru 5 2,314 Middle 6 thru 8 1,302 Secondary/High 9 thru 12 1,769 Total 5,385 Source: Isle of Wight County School Administration, October Comprehensive Plan 6-6 Isle of Wight County, Virginia

158 Besides the location of five four-year colleges within easy commuting distance of the County, there are three community colleges nearby. Paul D. Camp Community College, Tidewater Community College and Thomas Nelson Community College offer a variety of one - and two - year vocational, technical and college-level programs with special industrial training courses available. Issues As shown in Table 6-2, County-wide total school enrollment increased by some 491 students, or 10 percent, over the last six years. In recognition of the potential of continued enrollment increases, the County School Administration is currently updating its future enrollment projections to assist in their facilities planning. Table 6-2 Historic School Enrollment for 2000 to 2006* Year Enrollment 4,894 4,945 4,967 5,049 5,111 5,177 5,385 Source: Isle of Wight County School Administration, 2006, and Weldon Cooper Center for Public Service, *Future enrollment projections currently not available. Since some parts of the County are likely to grow more rapidly than others, some overcrowding at selected schools may result through the planning period. For example, continued population growth in the rapidly growing Newport Development Service District may lead to demand for an additional elementary school or classroom additions. The County will need to continually monitor population changes, to assess demand for any additional classrooms over the next 10 to 20 years. Any additional school facilities or expansion of existing schools should be located in one the County Development Service Districts where the most growth is expected to occur. Capital improvements in the form of future school construction should also be based on a school facilities construction needs evaluation and periodic re-evaluation of projections for pupil enrollment to assure such facilities are located and designed to meet the specific needs for which they are intended over their expected life. Public Safety Fire Protection The County is now served by five volunteer fire companies. Volunteer fire companies are presently located in Smithfield, Windsor, Rushmere, Carrollton and Carrsville. By and large, modest expansion of most of these companies will keep pace with projected new development. The American Insurance Association (AIA) recommends that fire stations be located within a three to four mile radius in the urban and semi-urban areas and up to a 10-mile radius in rural areas to provide a desirable level of service. This distance approximates a 7.5 minute response time. The current distribution of fire stations appears to meet AIA standards (See Map 6-4) but with the County s growing population there will be a need for an additional facility in the future. The County is developing a long term plan for fire and rescue stations. The Capital Improvement Plan (CIP) proposes a fire protection facility in the Central Hill area that may be the first established and operated by the County. Comprehensive Plan 6-7 Isle of Wight County, Virginia

159 Emergency Medical Service Emergency Medical Service (EMS) is provided to a majority of the County by two volunteer rescue squads. The Isle of Wight Volunteer Rescue Squad provides service for Smithfield and the northern section of the County. The Windsor Volunteer Rescue Squad covers the central portion of the County. EMS is provided in the southern section of the County by the City of Franklin Fire and Rescue, through a Mutual Aid Contract with the city. The Carrsville Volunteer Fire Department also provides Basic Life Support (BLS) first response service in the southern area. The County has augmented the staff of the volunteer rescue squad by providing part-time medics. This ensures that staffing is available for increased periods of time each day. Law Enforcement Isle of Wight County is served by two major law enforcement agencies: the County Sheriff's Department and the Virginia State Police. These two agencies work together to provide comprehensive police protection to County residents. The County Sheriff s Department is the chief law enforcement agency in the County. There are currently 35 full-time sworn officers and one part-time officer working for the Sheriff's Department which makes it the major law enforcement agency in the County. The number of officers in each section is shown below: 17 road deputies 5 administrative 5 investigations (plus 1 part-time) 4 court services 4 schools (1 D.A.R.E. and 3 School Resource Officers) Expanded Court facilities in the past 10 years have provided some additional space for Sheriff Department functions. The primary function of the Virginia State Police is highway safety enforcement and not that of criminal law enforcement. Currently, there are two troopers jointly assigned to Isle of Wight and Southampton Counties. Several officers at the State Police barracks in Franklin are assigned either primarily or in a shared capacity to Isle of Wight County. These State Police officers serve portions of Southampton County in addition to their assignment in Isle of Wight. Although the sheriff s office has jurisdiction within the towns of Smithfield and Windsor, the Towns have their own police departments. The Town of Smithfield is served by a department that has grown from eight police officers in 1990 to a 2006 total of 21. In late 2001, the Town of Windsor established its own police department by appointing its first police chief and subsequently hired several police officers. Windsor expects to increase the numbers in its police force in the future to expand the services it provides. Issues Deficiencies in facility space for Sheriff Department functions were recognized in the late 1980's and additional facilities in the County Court building were provided in the early 1990's. The International City Managers Association standards call for 1.75 police personnel per thousand of population. Considering 35 Sheriff s deputies to be actively involved in law enforcement, the current level of service is approximately 1.18 police personnel per thousand. Moreover, a substantial portion of the Sheriff's Department's effort is directed toward serving the Courts and Comprehensive Plan 6-8 Isle of Wight County, Virginia

160 other administrative duties. Smithfield s police department is not included in assessing this standard since they serve only within the borders of the Town and the Sheriff s office is responsible for the entire County population including Town residents. Any reduced manpower needs that may be attributable to the County's low crime rate and rural nature are offset by the greater travel time and distances associated with rural service delivery. The current service level indicates a necessity to closely monitor manpower needs and to increase personnel commensurate with the anticipated population growth. Manpower needs will also be influenced by external forces, such as proximity to more urban areas. Given current population projections, by the year 2030, demand or need for approximately 38 additional sworn officers within the Sheriff s Department can be anticipated. Clearly there will be a need to increase law enforcement personnel within the Sheriff s office commensurate with population increases. Along with this increase in personnel will be the possible need to expand administrative offices and detention facilities to support their functions. Issues Where public water supplies exist or are proposed and the densities are high, the systems should be designed to provide fire flow in accordance with rates specified by the County. Water supply can be a serious problem for areas outside public water service areas. In those rural areas, a water supply is provided through the use of the fire departments tanker trucks and/or pumper tankers. Carrollton volunteer fire department has a high volume tanker. A water supply plan in conjunction with the requirement for the installation of dry hydrant systems would eliminate some of the problems associated with fire protection in rural areas. As the population increases along with their activity, the need to protect the public safety of the County citizens also increases. Adequate police and fire protection, ambulance service and emergency management need to be provided within close proximity to the County residents. Areas of dense population and rapid growth need to expand their capability. The farther new development is located from existing facilities, the more it will cost the County to provide those services. If the County is to experience various concentrations of development at multiple diverse points of the County, the existing facilities would be inadequate to cover all areas. New facilities could be added to serve individual areas, but not without substantial costs. If on the other hand, development is located near existing facilities, it may cost the County added expense, but the cost can be absorbed in phased increments to match the growth rate of development. For example, it is much less expensive to put an addition onto an existing firehouse than to acquire land and construct a new firehouse. Distance of existing facilities to growth areas is important to response time in emergency situations. Therefore, police and fire protection should be located to serve proposed concentrated residential development as well as commercial and industrial areas. Even non-emergency services can be made more efficient if located closer to the population concentrations. For example, Sheriff's Deputies currently need to drive to Isle of Wight to process an arrest when many of the apprehensions are made in the northern and southern parts of the County. In some instances other public buildings such as the Rushmere Fire Station or Windsor Town Hall are being used as satellite police stations. Demands for satellite facilities are likely to increase in the future. Comprehensive Plan 6-9 Isle of Wight County, Virginia

161 Health Care Health services are provided to Isle of Wight residents by the County Health Department. General medical services are available at the Louise Obici Memorial Hospital in Suffolk, the Southampton Memorial Hospital near Franklin, and the Riverside Regional Medical Center in Newport News. These facilities and services are supplemented by the Medical Health Care Complex in Norfolk. Facilities located within Isle of Wight County include the Riverside Medical Center, which established health maintenance facilities in the past 10 years and the Smithfield Medical Clinic. Both of these facilities provide a variety of medical specialties. The proposed Benns Grant development project anticipates creating a large health care facility that will provide increased and expanded medical services to County residents. The Isle of Wight Health Department has a staff of 22 full-time and four part-time (custodial ) employees. The Health Department also establishes private contracts with specialists in such medical fields as physical, occupational, and speech therapy, and in the area of geriatrics to provide service to residents of the County. The County is currently served by Riverside Convalescent Center, a 95 bed facility for those requiring more intensive care, located in Smithfield. On the same property is a separate facility, a Home for Adults, with a 34 bed capacity for those requiring fewer services. Nursing home care is also provided through an extension of the Southampton Memorial Hospital in Franklin. In 2000, Tandem Health Care opened a new 114 bed nursing home facility in Windsor. Issues Within the planning period, nursing home facilities in Isle of Wight will be one area of health care to become the focus of growing interest among providers, consumers and policy makers. The State's and County s elderly population will continue to increase at a rate faster than any other age group. Isle of Wight s elderly population will require specialized health care services that are very limited or non-existent within the County. The Board of Supervisors has noted this issue and has discussed their concern. The County s need for more diverse health care services extend beyond the needs of the elderly population. These needs are many but include a 24-hour emergency care facility, an acute care facility and an ambulatory surgical facility. As the County s population grows, the number of people needing these facilities increases requiring an increasing number of people who can support the operation of such facilities. Library Facilities The Blackwater Regional Library serves a four-county, two-city region with additional service provided by a bookmobile. Each county and city, including Isle of Wight, contributes funds annually for the operation of the library facilities and its bookmobile service. Three branches of the Blackwater Regional Library serve the County and are located in Smithfield, Windsor and Carrollton. By pooling their library resources, the County, the Town of Smithfield and the Blackwater Regional Library System are able to provide citizens with professional staff and services that would be cost prohibitive if each were to attempt to pay for them separately. The Smithfield Branch originated in 1925 by citizens of Smithfield. In 1974 the library became part of the Walter Cecil Rawls Regional Library System which is now Blackwater Regional Library. This library facility is located in the old Smithfield High School building on James Comprehensive Plan 6-10 Isle of Wight County, Virginia

162 Street. It is the largest of the County s three libraries having 9,900 square feet of space. This branch currently houses over 39,000 volumes and provides meeting and conference rooms for the community. The Carrollton Branch was established in 1984 and moved to its present location on New Towne Haven Road, adjacent to Carrollton Elementary School in This library is a 5,500 square foot facility housing over 31,000 volumes. In 1995, the third library branch was opened in the Town of Windsor on Duke Street. This branch is the smallest in the County, but having over 17,600 volumes in just over 2,200 square feet of space, makes it the most crowded. Issues The County s population has grown by more than 6,000 people since 1990 and is expected to grow in the future. The increased population has caused a rise in library usage throughout the County where each library has experienced increases in circulation, patron count and computer sessions in the last five years. The Smithfield Branch has seen circulation increase by 37%, patron count rise by 96% and computer sessions increase by 114%. The Carrollton Branch experienced increases in circulation, patron count and computer sessions of 44%, 140% and 232% respectively. The Windsor Branch incurred increases of 119%, 41% and 22% for circulation, patron count, and computer sessions. The direct correlation between increased library usage and increased population is unknown but population growth should be considered a factor. The population projections contained in this Plan indicate that approximately 11,772 additional people are expected in the County by This growth should be considered when planning for the future growth of the County s libraries. Using guidelines and standards provided by the Library of Virginia, the County should average.6 square feet of library space per capita. Using the County s 2000 Census population of 29,728 people, the County should have 17,836 square feet of library space. Currently, the County has 17,600 square feet collectively in its three libraries. Using the 2030 projected population from the Weldon Cooper Center of 41,500 people, the County should have 24,900 square feet of library space, or 7,300 additional square feet. Besides planning for future library building space, the County should work collaboratively with the Blackwater Regional Library system to develop additional library resource needs, such as computers, patron programs, special collection storage space, and meeting room facilities, to name a few. Solid Waste Disposal The Southeastern Public Service Authority of Virginia (SPSA) handles all municipal solid waste generated in Southeastern Virginia. The system includes the cities of Chesapeake, Franklin, Norfolk, Portsmouth, Suffolk, and Virginia Beach, and the counties of Isle of Wight and Southampton. The SPSA Regional Landfill, located in the City of Suffolk, became operational in January 1985 The landfill consists of five cells covering 308 acres and receives approximately 1,500 tons of waste per day. Four of the five cells have reached existing permitted contour elevations and are no longer receiving waste. However, SPSA is negotiating with the City of Suffolk to increase the permitted contour elevations, thereby increasing the life expectancy of the landfill. In its present configuration, the life expectancy of the landfill is 8 years and is expected to reach capacity in The SPSA s Regional Solid Waste Management Plan proposed expansion of the landfill will increase life expectancy to Comprehensive Plan 6-11 Isle of Wight County, Virginia

163 Isle of Wight County generated 18,520 tons of waste in 1999 and by 2003 waste had decreased to 17,871 tons. Recycling is a proven factor in reducing the amount of landfill waste. Until 2004, the County participated in the SPSA s curbside recycling program but discontinued participation due to rising cost of the program. The County continues to participate in recycling by providing recycling bins at each of its convenience centers. It is believed that extensive participation in recycling can increase the life of the landfill by 3 to 5 years. The County has five full service convenience centers where residents bring waste for disposal. These centers are conveniently located throughout the County. Each Center is staffed with an attendant to assist residents and to keep each center clean. These staffed centers generally have at least one 40 cubic yard container, several 20 and 30 cubic yard containers and a 40 cubic yard compactor. All future residential developments are required to have curbside solid waste collection, and as the population density of the County increases, it may be feasible that the County consider County-wide curbside service in the next five years. The SPSA operates a refuse transfer station on Four Square Road which is designed to handle 150 tons of waste daily. In 2006, the transfer was averaging 97 tons per day at a cost of $57 per ton to dispose of in the SPSA landfill. The facility contains a Household Hazardous Waste Collection area for residents to dispose of unwanted chemicals (such as paint, insecticides and household cleaners) on the third Friday of each month from 9 a.m. until noon. Issues The County will be generating 66,000 cubic yards more solid waste per year than it is currently generating due to the future growth. With limitations on the current landfill and the lead time required to design and construct a new landfill, it is imperative that this regional problem be addressed in an acceptable manner. To meet the growing needs of member localities, the SPSA plans to expand its landfill in order to increase capacity and life expectancy. Recyclable materials that would otherwise become solid waste can be collected, separated, or processed and returned to the marketplace in the form of raw materials or products. The recycling of reusable waste materials can substantially reduce the required capacity of future landfills by 10 to 15 percent. Building and construction waste, typically comprising ten percent of the waste load, can be recycled or disposed of by alternative means. SPSA has noted that the biggest problems with landfill capacity are associated with its use for disposal of yard waste. Administrative Facilities Administrative facilities deal with functions of general government administration, legislative processes (Board of Supervisors) and judicial processes (District, Circuit Court, Juvenile and Domestic Relations). The basic activities of general government administration are billing and collecting taxes and fees for county services, permits, and licenses and the day-to-day general operations of county government. All administrative functions are primarily located in the Courthouse complex on U.S The complex is near the geographic center of the County. The five buildings in the Courthouse complex that house general administrative activities are the County Administration Building, Public Safety and General District Court Building, Community Development Building, Social Services Building, and the Circuit Court Building. Issues Comprehensive Plan 6-12 Isle of Wight County, Virginia

164 Based on nationally derived indicators, the County will need approximately 24 additional administrative employees and 11,500 square feet of additional office space to provide services to future residents. The CIP recognizes the County s need for additional space to accommodate increased administrative services required by the growth in population. Community Facilities Goals and Objectives GOAL: To provide an equitable system of community facilities, public services and utilities that is consistent with citizens' needs and that encourages a form of development consistent with the Comprehensive Plan. Objectives Meet community facilities and services needs (schools, water, sewer, parks, etc.) of existing development as a first priority. Encourage adaptive and shared use/reuse of community facilities by two or more government agencies and by public and private sectors. Coordinate expansion of facilities with the County Growth Management Plan such that the availability of facilities satisfies demand prompted by future development. Review the performance and effectiveness of existing facilities and proceed with changes or expansion as necessary and affordable. Develop needed facilities in a cost-effective manner, such as giving priority to expanding facilities rather than creating new facilities whenever possible. Ensure that the costs of additional public facilities and services required by new development is equitably borne by those benefiting from the improvements. Where appropriate, require dedication of land for community facilities or civic uses (community buildings, libraries, post offices, schools, child care centers, or recreational facilities) as part of the development approval process. Encourage the location of community facilities and structures that support civic uses in future developments to occupy prominent sites or locations within neighborhoods, particularly within the development service district activity centers. Ensure historically established, privately owned, utility systems provide adequate service at reasonable rates. Implementation There are an array of alternatives available for achieving the objectives relating to the provision of facilities to manage and accommodate growth. This section provides a brief discussion of the general techniques recommended. Comprehensive Plan 6-13 Isle of Wight County, Virginia

165 Development Service Districts The Development Service Districts established in the growth management plan are based on the premise that new development can be serviced most efficiently if it is limited to certain areas within the County. The key to the success of a Development District is in the availability of services and capital improvements; therefore, provision of adequate sewerage capacity, water, roads and schools is mandatory in order for the districts to manage the planned growth. It is essential, for example, that these areas have access to adequate sewer if they are to develop at the intensities necessary to manage and define growth within the County. In an effort to further improve cost effectiveness in the provision of facilities and services and limit the extent of their distribution, this plan has reduced the size of the Development Service Districts that were initially established in 1991 to better concentrate development activity, and in turn limit the size of facility service areas. Capital Improvements Programming The County s Capital Improvements Program is a primary tool by which Comprehensive Plan growth management objectives are implemented. For example, a well designed capital improvements plan will provides for the orderly extension of sewer and water at a rate needed to serve planned growth. The capital improvements plan will provide the vehicle for the County to set priorities and to make the most efficient use of available funds. Capital improvements programming is the tool which should be used to guide growth toward predetermined areas of the County and at predetermined rates. Periodic update of the Capital Improvements Program also permits the County to identify those projects which though needed may be unaffordable and therefore can serve to guide developers in proffering conditions for the provision of public facilities. County Sewer and Water Master Plan The County recently updated its Sewer and Water Master Plan in May The original Sewer and Water Master Plan was developed in 1991 to allow the County to plan for supplying the needs within each DSD. Subsequent development activities, annexations, agreements with other governmental entities and changes to the Comprehensive Plan have significantly altered planning parameters and utility requirements. The Master Plan addresses these recent changes to demand requirements and outlines future consumption/usage requirement projections for the next 27 years. The Plan includes recommendations for planning new facilities to meet future needs and a Financial Operating Plan to propose recommended funding. Voluntary Proffers Voluntary proffers provide a direct means of obtaining the needed capital improvements to service new developments. The County will need to continue to use proffers to help defray the costs of expanding public services and facilities. Off-site improvements of public facilities and dedication of land but not cash contributions can be used to offset the impacts of a proposed development associated with a rezoning. (Section Code of Virginia.) Fiscal Impact Analysis The development of a per unit fiscal impact of residential and commercial development would provide a rational basis on which to accept proffers from developers. It is intended that the fiscal impacts be calculated for water and sewage facilities, parks, roads and schools, as well as for Comprehensive Plan 6-14 Isle of Wight County, Virginia

166 more public welfare needs such as police, fire, and emergency medical facilities. It is intended that the impacts be calculated based on accepted methodologies and following the standards described below. Generally, the court decisions upholding impact fees or development exactions require that they meet a three-part standard. First, new development must demand new capital facilities. Secondly, a rational nexus or close relationship must exist between this new development and the need for these new facilities. Finally, there must be some assurance that sufficient benefit accrues to the particular development that pays the fees. These tests are similar to the standards set forth by the Virginia General Assembly (Section Code of Virginia) for voluntary proffering. Virginia courts have upheld the use of the proffer system when the above referenced standards are adhered to. Though impact fees are not expressly authorized for Isle of Wight County, the detailed impact analysis will establish the basis for such fees once the County is enabled by the State legislature. Isle of Wight County may now use, to some degree, impact fees for water, sewerage and drainage control. (Section Code of Virginia.) Adequate Public Facilities Standards Adequate facilities standards will help control the development process by showing that sufficient infrastructure and services are present or will be provided. These standards can ensure that land development coincides with the location and timing of capital facilities. Standards for water, waste treatment, transportation and educational facilities guide the development review process. County-established acceptable levels of service will serve as a basis for determining the impacts of development and for programming capital facilities. The County will need to consider the adequacy of roads, schools, sewerage, storm drainage and water supply for both potable use and fire suppression in the context of each future proposal for development. Minimum standards to determine adequacy need to be established for Isle of Wight County. For example, one of the criteria for determining the adequacy of sewer is that the interceptor is adequate to handle the peak flows calculated by the methodology set forth in the County's Master Plan for Water and Wastewater. The County may need to consider dividing the County into policy areas which may require different levels of service. For example, rural areas may require a Level of Service B for roads, but in urban areas (full service areas) Level of Service D may be tolerated. Though Isle of Wight County is not currently empowered to deny approval of subdivisions based on the lack of adequate public facilities, the State law (Section ) does provide for the means of achieving adequate facilities objectives voluntarily through proffers as part of the rezoning process for development. The County should continue to seek the authority to implement an adequate public facilities program and ordinance as a tool to facilitate achievement of growth management objectives. Special Taxing Districts The County could use special taxing districts to provide certain additional public services for an area exclusively benefiting from such services. Isle of Wight County has the authority under the Virginia Water and Sewer Act to create Public Service Authorities for the purpose of providing any or all of the utilities and services described in the Act. Comprehensive Plan 6-15 Isle of Wight County, Virginia

167 Summary This plan element has focused on identifying existing and projected capacity of community facilities to identify the issues and problems of providing these services in the context of the County's projected development trends. In keeping with growth management objectives, most investments in community facilities and services will be targeted within the Development Service Districts where the greatest demand is expected to occur. The implementation strategies identified in this element of the plan are designed to ensure that the provision of community services and facilities is phased with the demand or need prompted by development and that the provision of services encourages a form of development consistent with the Land Use Plan. Some, such as development service districts and special taxing districts, address the efficient delivery of services geographically, and others, such as proffers and capital programming, address the financing of facilities and services. Comprehensive Plan 6-16 Isle of Wight County, Virginia

168 Chapter Seven Housing and Community Development During the 1990s, changing economic conditions significantly improved the housing market of Isle of Wight County. From 1970 to 1988, the County experienced a significant growth in population at a time in which annual housing costs were increasing at almost twice the rate of family income. These trends began to change towards the end of the 1980s. In the period between 1988 and 1992, the County s per capita income increased 16.3 percent, from $14,969 to $17,405, the second highest average earnings in the Hampton Roads area. As family and per capita income began to rise, housing cost increases in the region began to slow, closing the gap between housing affordability and availability that had been prevalent in the region through the 1970s and 1980s. By 2005, housing costs in the region were 6 percent above the national average, and the County s per capita income reached an all time high of $30,692 (source: Bureau of Economic Analysis ). From 2003 to 2005 housing prices increased by just over 20 percent and affordable housing became increasingly scarce. Background Information This section identifies the characteristics and trends of the Isle of Wight housing market. The Census Bureau indicated an increase of 1,386 housing units from 1970 to 1980 and an increase of 2,098 housing units through the period 1980 to In 1990, there were a total of approximately 9,753 housing units in the County. By 2000, this number had increased to 12,066 housing units, or an increase of 2,313 units since The characteristics of the housing units accommodating the County's households are shown in Table 7-1. The percentage of owner-occupied units has been on the rise since 1970, when only approximately 60 percent of all housing was owner-occupied. By 1980, this number had risen to 71 percent. In 1990, this number increased again to almost 74 percent. By 2000, that statistic had surpassed 75 percent. These trends generally imply a more stable local housing situation. The increase in ownership is believed due in large measure to basic changes in the income and socio-economic level of the households migrating into the County. From 1990 to 2000, total personal income earnings increased on average 4.6 percent each year. Given these economic trends, it is not surprising that the single-family detached home is the dominant unit in the County s housing market, comprising three-fourths of all residential units. Between 1990 and 2000, there was an increase of 29.5 percent in single-family detached homes. In November 2005, the average price for a single-family home in the region was $248,925. The number of multi-family units rose by over 29 percent between 1990 and 2000, a sizeable expansion in the housing market for moderate income and newly formed families, who look to the multi-family unit as a more practical place to live. Comprehensive Plan 7-1 Isle of Wight County, Virginia

169 Table 7-1 Housing Status and Units per Structure -- Isle of Wight County 1980 % of total units 1990 % of total units 2000 % of total units Total Units 7, , , Owner Occupied 5, , , Renter Occupied 1, , , Total Vacant Units in Structure 1 unit 6, , , units & 4 units or more units Manufactured homes (new) 1, , , Other Total Units 7,660 9,753 12,066 Source:, 1980, 1990 & 2000 U.S. Census, Isle of Wight County Planning Department, RJA (includes Towns of Smithfield and Windsor) The manufactured home continues to be a significant factor in the County's overall housing picture. The proportion of manufactured homes in the total housing stock increased from 8.1 percent to 13.2 percent between 1970 and This trend continued to rise until 1990, when 20 percent of the housing stock was in manufactured homes. By 2000, the percentage of manufactured homes in the County s housing stock had decreased slightly to 17.7 percent, which could be an indication of the increase in availability of affordable single and multi family housing units that year. Table 7-2 Recent Development Trends -- Residential Building Permits Isle of Wight County Building Permit 1990 to 1997 % of Total Permits 1998 to 2005 % of Total Permits Single Family Units 1,678 76% 2,686 74% Multi-Family Units % 232 6% Manufactured Homes (New) % % TOTAL 2, , Source: Isle of Wight County Department of Planning and Department of Inspections, RJA Comprehensive Plan 7-2 Isle of Wight County, Virginia

170 In the early to mid-1980s, housing values and the cost of living in Isle of Wight County rose significantly. These observations are substantiated when the median family income is compared with the value of owner occupied housing in the County in 1980 and 1986 (see Figure 7-1). The median value of owner occupied housing in Isle of Wight County increased 90 percent from 1980 to 1986, while the median family income during that time rose only 55 percent, showing a relative loss in purchasing power of the housing consumer. As the 1980s came to a close, the increase in median family income began to keep pace with the increase in housing values. The median value of owner occupied housing increased 12 percent from 1986 to 1990 and the median family income during that time increased 11 percent. By the early 1990s, the negative purchasing power trend of the early 80s had reversed, with median family income increasing by 18 percent from 1990 to 1997, while median housing values rose 17 percent. In 2005, median family income was $59,100, a 30.2 percent increase over 2000, while the median home value was $215,000, a 66.3 percent increase over 2000 and a 36.1 percent increase over median family income in Figure 7-1 Purchasing Power in Hampton Roads , , ,000 Dollars 150, ,000 50,000 39,000 16,862 74,135 83,200 97,989 26,231 29,168 34, ,300 45,387 59, Median Value Median Income Source: RJA (2001), HUD (2005), HRPDC (2005) Issues Affordable Housing The increase in availability of affordable housing in Isle of Wight County since the 1980s is attributable to a decrease in housing costs, a highly productive housing market, and an increase in median family income, all of which have contributed to improved housing opportunities for moderate to high income families. There still exists a need to improve affordable housing availability for the County s low income families and low income elderly residents. The accepted standard for the consideration of affordable housing is that no more than 30 percent of household income is spent on rent or mortgage. The 2000 U.S. Census indicated for Isle of Wight that 32.2 percent of renters paid more than 30 percent of their household income for rent. Of the renters having an income of less than $10,000 per year, 63.4 percent paid more than 30 Comprehensive Plan 7-3 Isle of Wight County, Virginia

171 percent of their income. For homeowners, nearly 20 percent made mortgage payments higher than the standard. In 2005, the National Low Income Housing Coalition (NLIHC) issued Out of Reach, a report on the gap between housing costs and income of poor people in the United States. Statistics for Isle of Wight County illustrate the disparity between income and housing costs for the County s low income families (see Table 7-3 to Table 7-5). As of 2005, the average cost of a 950 square foot, two bedroom, two bath apartment in the Hampton Roads region is $852 per month (source: NLIHC, 2005). Table 7-3 illustrates that, while housing conditions have improved in the last decade, the average rental household would have to expend more than 80% of their monthly income on rent, nearly three times the accepted standard of 30%. Table 7-3 Family Income (2005) Location Area Median Income (AMI) Maximum Affordable Monthly Housing Cost by % of Family Area Median Income (HUD, 2005) Annual Monthly 30% 50% 80% 100% Virginia $65,464 $5,455 $491 $818 $1,309 $1,637 Isle of Wight $59,100 $4,925 $443 $739 $1,182 $1,478 Source: NLIHC, Out of Reach, 2005 Tables 7-5 and 7-6 illustrate that the maximum affordable housing cost per month of needy families with children falls well below the region s fair market rents, and well below the 30% standard associated with those rents. Low income families in the County are reliant on housing subsidy programs offered by HUD and other government agencies to bridge the gap between income and housing costs. Table Fair Market Rents by Number of Bedrooms Location Zero One Two Three Four Virginia $672 $741 $852 $1,125 $1,401 Isle of Wight $672 $706 $811 $1,118 $1,401 Source: NLIHC, Out of Reach, 2005 Comprehensive Plan 7-4 Isle of Wight County, Virginia

172 Location Table 7-5 Affordability for TANF* Single Parent Family of 3 with No Earnings Monthly TANF State Grant Annual Maximum Affordable Housing Cost Per Month Virginia $292 $3,504 $87.60 Isle of Wight $292 $3,504 $87.60 * Temporary Assistance for Needy Families. Source: Isle of Wight County Department of Social Services The Isle of Wight County Department of Social Services administers the HUD Section 8 housing program in many of the County s multi-family housing complexes; however some complexes administer HUD Section 8 independently. Of the 906 multi-family units in Isle of Wight County available in 2006, approximately 250, or 28 percent, are secured with HUD Section 8 program vouchers. There is currently a waiting period of between eight and nine years for a Section 8 program voucher, which the County s Social Services Department attributes to both lack of funding for the program and an insufficient quantity of affordable housing. The availability of affordable housing for low income elderly residents has increased significantly since In 1990, the SVPDC estimated that the need for very low income households, age 62 and older, and requiring housing assistance to be almost twice the number of units available. From 1990 to 2000, the percentage of persons 65 or older living below the poverty level has decreased by 35 percent, to about 20 percent currently. At the same time, the number of housing units available to these households has risen substantially. Since 1990, there have been three housing complexes built to house the low income elderly residents of Isle of Wight County. Covenant Place, built in 1993, is a 40-unit apartment complex that provides housing through the HUD Section 202 PRAC program. It is currently filled to capacity, but its management office reports that there is a short waiting list for available units. Springdale Apartments Phase I, built in 1995, contains 40 units and is also funded by the Section 202 program. In 1998, in response to a growing number of applicants waiting for admission, Springdale Apartments Phase II was built. Phase II provided an additional 40 units to the complex, and provided housing for all applicants on the waiting list. Both Phase I and Phase II are currently filled to capacity, but less than 10 people are on the waiting list for available units. The low number of applicants waiting for admission to Covenant Place and Springdale Apartments is an indication of the County s improved response to the housing needs of low income elderly residents since the 1980s. Community Development Block Grant Isle of Wight County has been approved for and received funds in order to participate in the Federal Community Development Block Grant (CDBG) Program. The CDBG was established by the Federal Department of Housing and Urban Development (HUD) with the goal of providing decent housing and a suitable living environment for citizens throughout the nation. The Virginia Department of Housing and Community Development administers the program at the State level. The two CDBG programs the County is currently implementing are described below: Jamestown/Camptown Comprehensive Plan 7-5 Isle of Wight County, Virginia

173 In 1997, Isle of Wight recognized that the Jamestown/Camptown neighborhood was a likely candidate for CDBG funding. This neighborhood is in the southern most portion of the County and is east of the City of Franklin and adjacent to the International Paper mill. A vast majority of the housing needed varying degrees of rehabilitation in order to improve the condition of housing. Improvement of the neighborhood s infrastructure was also planned for the project. Many of the houses had deficiencies due to deferred maintenance. A majority of residents were low- and moderate-low income households whose income was less than 80% of the area median income. The project s goal was to assist these residents with obtaining loans to fund maintenance and rehabilitation on individual houses. In 1998, the County applied for and received 1.25 million dollars for a CDBG. The voluntary participants received varying loans and the County assisted in obtaining contractor services to perform rehabilitation. The rehabilitation and infrastructure improvement portions of the project have been completed but the County is currently managing the loan administration for individual participants. The project provided: Rehabilitation for 31 houses Construction of four new houses (Provided by a non-profit organization) Upgraded water and sewer lines Improved storm water drainage Street and pedestrian improvements Booker T. Estates In 2004, Isle of Wight County identified the Booker T. Estates neighborhood as a very likely candidate for a CDBG. This neighborhood mirrors the situation once found in the Jamestown/Camptown Neighborhood with two exceptions. The houses in Booker T. Estates currently receive water from a private system and utilize septic systems. In 2005, the County was awarded $4,776,158 from Federal, State and private sources. The County has agreed to provide another $1,092,889 for the project. The project looks to make necessary repairs to and upgrade plumbing for individual homes. The entire community will be hooked up to the County water and sewer systems. Workforce Housing Strategy In 2007, a joint task force between the Town of Smithfield and the County developed a recommended workforce housing strategy. An Isle of Wight County Task Force on Workforce Housing was formed with members coming from the respective Planning Commissions, the development community and non-profit organizations. With the guidance of a workforce housing consultant, the Task Force created a report with policy recommendations to be utilized in evaluating new developments for incorporation of workforce housing sales prices and rents to serve the target population. The final report also provides a definition of workforce housing and presents a variety of tools for increasing affordable housing in the County. The Board accepted the Final Report of the Isle of Wight County Task Force on Workforce Housing on September 20, 2007, with the condition that the Workforce Housing Program be a voluntary program. Comprehensive Plan 7-6 Isle of Wight County, Virginia

174 Rental Housing Subsidy Programs Affordable rental housing in Isle of Wight is subsidized through the following: Department of Housing and Urban Development (HUD) Section 221 (d)(3) provides mortgage insurance to help finance the construction or substantial rehabilitation of large multi-family (5 or more units) rental or cooperative housing projects for low and moderate income families. Section 8 Existing Certificates and Moderate Rehabilitation Housing provides assistance on behalf of households occupying physically adequate, moderate-cost rental housing of their own choosing in the private market. Federal payment per unit equals the difference between the government-established Fair Market Rents and thirty (30) percent of the tenant's income. This program is administered through the Department of Social Services. Section 8 New Construction and Substantial Rehabilitation subsidizes rents of lower-income households occupying public and privately developed projects. Federal payment per unit equals the difference between the government-established Fair Market Rents and thirty (30) percent of the tenant's income. In Isle of Wight, this Program is administered through the Department of Social Services. Section 202 PRAC (Project Rental Assistance Contract) subsidizes rents of lower-income elderly residents occupying public and privately developed projects. Section 811 provides funding to non-profit organizations to develop rental housing for persons with disabilities. The program provides rental housing with the availability of supportive services that allow persons with disabilities to live as independently as possible. Farmers Home Administration (FmHA) Section 515 of the Housing Act of 1949 authorizes FmHA to make or insure loans to finance the purchase, construction, or rehabilitation of rental and cooperative housing in rural areas for occupancy by the elderly, the handicapped, or low and moderate income families. The purchase of a site and the provision of essential housing-related facilities may be included in a loan where appropriate. The 1983 amendments to the Act require that, to the extent that rental assistance programs are available, all units must be occupied by very low income persons (income below 50% of the median). Comprehensive Plan 7-7 Isle of Wight County, Virginia

175 Table 7-6 Affordable Rental Housing (Multi-Family Units) -- Isle of Wight County Name, Location Subsidy Program Available Public or Private # of Units Church Manor Apartments, Smithfield Section 221 (d)3 Public 50 Jersey Park Apartments, Smithfield Section 8 Public 80 Windsor Apartments, Windsor Section 515 (FmHA) Public 40 Woods Edge, Smithfield Section 515 (FmHA) Private 60 Covenant Place, Smithfield Section 202 PRAC Public (Disabled and elderly only) Bradford Mews Apartments, Smithfield Section 8 Private 120 Riverside Assisted Living, Smithfield Section 202 PRAC Private 60 Cedar Street Apartments, Smithfield Section 8 Private/Public 24 Springdale Apartments Phases I & II, Windsor Section 202 PRAC Public 80 Morris Creek Landing Apartments, Smithfield None Private 88 Source: Directory of Subsidized Apartment Complexes in Southeastern Virginia, Sixth Edition, May 1986; Isle of Wight County Department of Social Services; RJA. Housing Conditions The condition of the housing stock in Isle of Wight, as of 2000, is characterized as follows: 40 Age of the Housing Stock -- According to the 2000 Census, 10.4 percent of the County s housing stock was built in 1939 or earlier, 12.1 percent between 1940 and 1959, 28 percent between 1960 to 1979, 21.3 percent was built between 1980 and 1989, while 28.2 percent was built between 1990 and March Plumbing and Kitchen Facilities -- In 2000, approximately 1 percent of the housing units in Isle of Wight County were without complete plumbing, and 1 percent lacked complete kitchen facilities. Heating Equipment 3.4 percent of the housing in 2000 lacked central heating and were heated exclusively with fireplace, woodstove, or portable heaters (electric or kerosene). The County s housing stock appears to be in reasonably good condition, with characteristics typical of a rural area. In the 1980s, due to the fact that a significant proportion of the housing was associated with exurban migration, conventionally built housing stock was priced beyond affordability for people with relatively modest means. In the 1990s, the rise in median family income in the area, combined with a strong economy, low interest rates, and the resultant boom in the private housing market, all contributed to an improved accessibility to quality housing stock for the County s growing population. By the mid 2000s, the favorable housing market changed as housing prices rapidly increased and affordable housing became out of reach for a greater number of would-be homebuyers. The high proportion of manufactured homes that were being located in the County during the 1980s provided a substantial pool of affordable housing in lieu of more conventional Comprehensive Plan 7-8 Isle of Wight County, Virginia

176 multi-family structures. However, the scattered sites of manufactured homes in the County made it difficult for the County to control the quality and location of manufactured homes on individual lots. The increased availability of new, conventional multi-family structures (apartments and condominiums) in the 1990s resulted in a substantial decrease in the number of new manufactured homes in the County. The number of building permits issued for new manufactured homes between 1982 and 1989 was five times the number of permits issues for new manufactured homes between 1990 and The number of new multi-family housing units built between 1990 and 1997 was almost four times the number built between 1982 and The increase in availability of multi-family housing over manufactured homes provides the County with greater control in monitoring and improving the quality of housing for new families and low or moderate income families who are not able to afford single family homes. Housing Availability Isle of Wight's housing stock is in generally good condition; however, some families are illhoused, and there is a continuing need for new units to accommodate families of modest means. Efforts by the private developer community in association with County and State agencies began to increase the number, quality and variety of housing units available in the County during recent years. One housing production requirement must be kept in mind. The effective operation of the housing transfer process involves a continuous creation and rapid turnover of vacancies. There must be an ever-available reservoir of standard housing vacancies to broaden the choices available to those seeking new quarters. This reservoir includes new units produced speculatively for sale or rent and used units put on the market as families are disbanded, move out of the area, or transfer within the area. Although new units obviously are not produced specifically for a vacancy reservoir, the maintenance of an adequate vacancy reserve must be taken into account in estimating new production requirements. As population grows, the size of the vacancy reserve must also grow. However, the rate of vacancies (as a percent of the total housing stock) may remain relatively stable. Appropriate target rates may vary with the area, but a common standard is 1 percent for owner-occupied and 5 percent for renter-occupied units. In 1980, about five percent of the rental units were vacant and ready to be rented, and about 2.5 percent of the owner occupied units were available for sale, indicating an adequate vacancy reservoir. In 1990, the percentage of available vacant rental units grew to 8.1%, while the percentage of available owner occupied units fell to 1.3%, still above common standards. By 2000, the available rental units decreased to 5.2% while available owner occupied units grew to 2.2%. These indicators still show that the County's vacancy reservoir is not a major area of concern in the overall housing picture. A Hampton Roads Housing Study was prepared by the Southeastern Virginia Planning District Commission in January of This study evaluated some of the factors controlling the availability of housing. The pent-up demand for housing in the region was measured. An index of the pent-up demand for housing was developed. This index is the annual population change summed over a period of six successive years divided by the sum of residential building permits over the same six year period. The resulting index figure expresses the changing relationship between the growth in population and the building of residential space to accommodate that growth. The higher the ratio becomes, the greater the pent-up demand for housing, since it indicates that relatively little construction has occurred relative to the growth in population. In 1985, the index for Isle of Wight was For comparison, the City of Franklin at -0.2, Comprehensive Plan 7-9 Isle of Wight County, Virginia

177 Southampton County at and Suffolk at 1.19 had significantly less pent-up demand. Using calculations based on U.S. Census estimates and residential building permits totals from 1992 to 1997, the estimated index of the pent-up demand for housing in Isle of Wight County was at 1.95 in 1997, an indication that residential building within the County is more apace with population growth. From 1992 to 1997, 1,276 single-family units, 287 multi-family units, and 182 new manufactured homes were added to the County s housing inventory, which increased the County s available housing stock by a total of 1,745 units. From 1998 to 2003, another 2,240 housing units were added to give the County an index of It must be noted that only 4 multi-family units were created during that six-year period. The following is a summary of the problems and issues related to housing described above: Although there was a substantial increase in the County s multi-family rental housing stock in the early 1990s, there was still a disparity between household income and the available monthly rent costs of most low-income households in renter-occupied units. This situation became more acute given that only four multi-family units were built between 1998 and In 2004 and 2005, a total of 228 units were constructed; thereby, increasing the County s inventory for multi-family housing. The lack of affordable rental housing is most acute within the lowest income households, especially single parent households. The continued increase, although at a slower rate than the previous decade, of building permits for manufactured homes indicates that many lower income families still prefer any form of single family unit over the multi-family unit, and indicates a need for more small, affordable housing units for those families. Housing Goals & Objectives Objectives Improve housing opportunities for lower income segments of the population as an GOAL: To provide residential neighborhoods that offer a variety of housing densities, types, sizes, costs, and locations to accommodate existing and future needs. alternative to manufactured homes. Provide assistance to upgrade existing housing that is deficient in plumbing and sanitation facilities to qualified property owners. Direct manufactured home development to approved parks and subdivisions. Provide assistance to qualified property owners to rehabilitate or remove substandard housing. Protect residential neighborhoods from incompatible activities and land uses. Comprehensive Plan 7-10 Isle of Wight County, Virginia

178 Require manufactured home parks to be safe, sanitary, and pleasing places to live. Preserve historic and/or architecturally significant buildings, homes, and properties. Locate higher density residential development in locations that correspond to the availability of employment, commercial services, public utilities and facilities, and transportation routes. Discourage residential development in areas dominated by environmentally sensitive features or agricultural operations. Accommodate future residential development in balance with other land uses. Encourage forms of development that integrate housing, shops, work places, schools, parks and civic facilities essential to the daily life of their residents. Encourage development of neighborhoods that contain a diversity of housing types to enable citizens from a wide range of economic levels and age groups to live within its boundaries. Implementation There are a variety of implementation alternatives available to local governments for the provision of affordable housing. The following implementation techniques have been selected to implement the objectives identified above. Flexibility in Housing Types Foster land use patterns that reduce unit land costs and encourage flexibility in housing types. This can be achieved through planned residential development and cluster development provisions in the County's zoning ordinance. This strategy will also be implemented by one of the basic concepts of the Land Use Plan which is to allow maximum flexibility in configuring lots into clusters rather than relying on minimum lot sizes to determine the desired density. This flexibility also allows for maximizing efficiency in providing infrastructure to the homesites. The creation of a Development Service District (DSD) in close proximity to places of employment is consistent with housing objectives. The DSDs will be capable of accommodating higher density development with adequate road systems and public facilities. The Land Use Plan encourages development in the Community Centers throughout the County thereby providing flexibility in location of housing, as well as housing diversity. Finally, the Land Use Plan allows for multi-family housing to be permitted in the Activity Centers and DSDs and other appropriate locations without increasing overall permitted densities. Organize or Utilize a Nonprofit Housing Organization Non-profit housing organizations serve low-income families whose housing needs are not adequately being served by the for-profit sector or by government programs. According to the Virginia Housing Development Authority, the number of non-profit housing organizations (NHOs) in Virginia has increased steadily in the past. In 1996, there were 233 charitable Comprehensive Plan 7-11 Isle of Wight County, Virginia

179 organizations registered in Virginia that provided housing or shelter services, more than double the amount that existed in According to the Virginia Housing Directory, the number of charitable organizations working to provide affordable housing had increased to 341. NHOs provide a variety of services, including housing referral and counseling, housing construction, even childcare. Most of the NHOs surveyed in Virginia were involved in singlefamily housing development or rehabilitation, but NHOs create a wide range of housing, including multi-family apartments, shelters, single-room occupancy group facilities, and transitional housing. NHOs are partnerships between government (most often local, but also state and federal), financial organizations, foundations, and regional housing organizations such as the Virginia Housing Development Authority. Very low income families in Isle of Wight County face the greatest challenge in finding affordable housing, and would be well served by a local NHO. The County is a member of the Western Tidewater HOME Consortium. The Consortium is a regional organization that offers two separate housing programs to participants who have an annual income at or below 80% of the area median income. The first program is the owneroccupied rehabilitation program which provides a ten-year 0 percent interest deferred forgivable loan to eligible homeowners for improvements to their homes. The second program is the direct homebuyer assistance program. This provides down payment and closing cost assistance and/or provides gap financing in the form of a deferred forgivable loan. These programs allow the Western Tidewater HOME Consortium to reach its goal of providing decent affordable housing to lower income households. The Consortium is funded by the HOME Investment Partnerships Program, which is a HUD grant program. Utilize Federal and State Programs Continue to use Federal and State programs to help meet Isle of Wight County's housing needs. The following housing programs should be used by the County to assist residents with low to moderate incomes. Virginia Housing Partnership Program -- Isle of Wight is eligible to apply for either a block grant or grant for specific project under this program. Eligible activities include single and multi-family rehabilitation, energy loans, and funding for emergency home repairs. Virginia Housing Production Program -- Loans are provided to non-profit organizations or for-profit developers to construct single-family homes. Small Cities Community Development Block Grant (CDBG) -- Funds are passed through the State Department of Housing and Community Development for a variety of housing related projects such as housing rehabilitation programs. HUD Section 236 Program -- subsidizes mortgages for rental housing projects and provides rent supplements which are subsidy payments to the owners of private rental housing on behalf of lower-income tenants. HUD Section 202 Housing for Elderly and Handicapped -- provides direct loans for the development of rental housing for the elderly and handicapped. Projects also receive Section 8 subsidies. Comprehensive Plan 7-12 Isle of Wight County, Virginia

180 HUD Section 8 Housing Vouchers -- provides rent subsidy payments to be based on a newly established payment standard rather than on actual unit rents. The standard is to be based on the Fair Market Rents set for the Section 8 Existing Housing Program. Families renting units above or below the new payment standard will pay more or less than 30 percent of adjusted income for rent. Bonus Densities for Workforce Housing Grant bonus densities to planned development projects to encourage the provision of more affordable housing. Bonus densities would allow a slightly higher density over the base density in exchange for providing affordable housing. This is recommended in order to encourage the production of housing for low-income residents. The density of development within certain districts may be increased with the following guidelines: The units provided must meet all conditions with regard to income qualifications and other standards that may be established by the County to ensure that the units are bona fide affordable housing. The bonus for low-income housing should not be permitted where subsidized units constitute more than 20 percent of a development, except in the case of a development of less than l0 dwelling units. Home Occupations Permit home occupations with performance standards to ensure protection to residential neighborhoods. This technique will allow a small businessman the ability to afford adequate housing which he could not afford if he had to locate his business on separate premises. Isle of Wight County currently provides for home occupations in some zoning districts. With stricter performance standards included in the zoning ordinance to control the scale and appearance of the operation, certain home occupations can be permitted by right. Consequently, those truly innocuous uses may be permitted and the Board of Zoning Appeals can focus on those home occupations that can potentially disrupt a neighborhood. Manufactured Homes The 1990 Isle of Wight County Comprehensive Plan contained the following implementation objective: Mobile homes will continue to be permitted in mobile home parks and subdivisions through conditional zoning in the Development District where the infrastructure can support the density. Individual mobile homes on scattered sites will be permitted in the Agricultural and Rural Conservation Districts to provide temporary shelter in case of emergency, for farm employees and family members, and for temporary shelter while building a home. Since the 1990 Plan was enacted, the County has approved permits for 1,328 manufactured homes. Of that total, 422 were permits for new manufactured homes, and of those, only 21 were located in manufactured home parks. The remaining 401 were located on private lots scattered around the County, contrary to the goal of the 1990 plan to contain manufactured homes within manufactured home subdivisions and parks, which are required to uphold the same standards set Comprehensive Plan 7-13 Isle of Wight County, Virginia

181 forth in the County s Zoning Ordinance, Subdivision Ordinance and other applicable ordinances, as those required for other single-family detached dwelling developments. This provision allows the County greater control in monitoring and ensuring adequate housing conditions, road standards, and other related standards for manufactured homes. To continue to permit the location of new manufactured homes on scattered, private sites around the County prevents the County from ensuring that manufactured home locations are safe, sanitary and present a pleasing environment for residents and surrounding neighborhoods. The County also faces a negative fiscal impact by continuing to allow a large proportion of new housing to be in the form of manufactured homes, which generate significantly less revenue for the County. The County needs to renew the goal of its 1990 Comprehensive Plan, and increase efforts to direct manufactured home development to parks and subdivisions. Indoor Plumbing/Rehabilitation Program The Indoor Plumbing/Rehabilitation Program (IP/R) is designed to assist low and moderate income families or individuals with complete indoor plumbing and housing rehabilitation. The Southeastern Tidewater Opportunity Project (STOP) administers the program for the southern Hampton Roads region including Isle of Wight County. Fixed Floor Area Ratio A fixed floor area ratio for single family residential structures in a planned residential development will allow smaller homes to be built on smaller lots. Housing costs can be contained in the small lot single family developments by tying the size of the dwelling unit to the size of the lot by a maximum floor area ratio per lot. This will ensure that the scale of the house is consistent with the lot thus preserving the less dense residential character sought in single family detached housing. Commercial Apartments Permit commercial apartments in the moderately intense commercial use zones in the Activity Centers and Commercial Centers. This type of housing represents a lower cost option for builders since there is no land value associated with the dwelling units. In addition to providing more affordable housing, locating residential uses in commercial areas also provides for the more efficient use of existing infrastructure and government services and greater accessibility to jobs. Because they are used during the hours normally left vacant (the night and early morning hours) greater use is made of existing parking lots. The County should tie increased lot coverage or floor area ratios to the provision of second floor residential units as an additional incentive to increasing affordable housing stock. Housing Code Adopt and enforce a housing code to remove substandard conditions of rental housing. Volunteerism Coordinate local resources to rehabilitate and upgrade existing housing. One approach is to use apprentices in the building trades at the P.D. Pruden Vocational-Technical Center to rehabilitate houses. Self Help Comprehensive Plan 7-14 Isle of Wight County, Virginia

182 Encourage the formation and operation of Self-Help groups. One such organization is Habitat for the Humanity. The County might consider providing funding for these organizations. Designing for Economy Designing for economy can be achieved without sacrificing marketability. The County should proactively educate builders on techniques proven to save money and, when possible, reduce standards that will save money without sacrificing structural strength or aesthetic quality. In most cases current County building codes permit cost saving designs; however, there are opportunities for the County to relax standards. The County needs to evaluate the building code to ensure that necessary impediments are not preventing the use of economical designs. Expedition of the Administrative Process The County can make a direct contribution to affordable housing by expediting their procedures regulating land use and housing construction. A basic step the County should take to promote affordable housing is to review the entire regulatory process from zoning through permitting as it is actually experienced by developers, to identify procedures that can be simplified, abbreviated or improved. Some of the features of a regulatory modernization arrangement are as follows: Provide formalized assistance to developers prior to application. Consider expediting reviews and approvals through a development coordination office, possibly in the County Administrator's Office. Use administrative hearings to assist legislative bodies, or appointed boards or commissions. Prepare a variety of policy manuals to be made available to builders and developers as a unified and ready source of information. Use over the counter or one stop permitting when possible, particularly on small projects or projects that do not require planning commission approval. Use private consultants to augment County planning and engineering staff during periods of intense permit activity. Provide for interdepartmental coordination for complex projects possibly through the County Administrator's office or the Department of Planning and Zoning where umbrella authority exists to break free any problem areas. Review legislative procedures to explore means of reducing processing time. Virginia Housing Fund The Virginia Housing Fund (VHF) is a non-governmental source of funds provided by the Virginia Housing Development Authority (VHDA). VHF multifamily loans are designed to provide permanent financing for projects that serve low-income persons otherwise not fundable; to finance rental projects with two or more units, and to finance projects that expand or preserve Comprehensive Plan 7-15 Isle of Wight County, Virginia

183 the stock of quality affordable housing. One hundred percent of the units funded by a VHF loan must be set aside for persons at or below 150 percent of the area median income. Preference is given to projects that will provide at least 40 percent of the units at or below 60 percent of the area median income. VHF funds for multifamily projects average about $7 million each year. Currently, the VHF is limited to non-profit, minority, and any rural area developers. The maximum loan amount is $950,000 per project, which was established in order to fund multiple projects. However, the VHDA may increase or decrease the amount to finance projects that could not otherwise be financed by other sources. VHF loans can be used only as a permanent take-out loan for new construction, rehabilitation only, acquisition and rehabilitation, or refinancing with rehabilitation. All rehabilitation projects must have hard construction costs (i.e., total contract costs) of at least $7,500 per unit. Summary As the population of Isle of Wight County has grown and prospered, so has its housing inventory. Even though the area median income has increased to $59,100, the rise in housing costs have still out-paced increases in income; therefore, some Isle of Wight residents still may not have the means to own a home that is modern, comfortable, and a good value. The low-income residents of the County, and those families whose economic conditions confine them to rental housing, have more options today than ever before, but continue to be underserved by County, State and Federal housing programs. Isle of Wight County s efforts to accommodate the needs of all residents have improved significantly in the last decade; however, in those areas where government housing programs have failed to keep pace with County goals for low-income residents, the County should seek alternative forms of assistance to assure that its housing goals for all residents are achieved. Comprehensive Plan 7-16 Isle of Wight County, Virginia

184 Chapter Eight Parks, Recreation, and Open Space Outdoor recreation contributes to both the physical fitness and mental well-being of County residents and visitors. Recreation sites, facilities and open space are important components of Isle of Wight County's quality of life. The mission statement of the County Department of Parks and Recreation, which highlights quality of life, states: Our mission is to provide leisure experiences that will have a positive impact on the quality of life for Isle of Wight County residents and visitors. The continued acquisition and development of outdoor recreation sites and facilities will be necessary to satisfy future demands prompted by population growth and changing demographics. By 2006, increased leisure time, a rise in living standards and an expanding population have contributed to increases in recreational program participation and expectations of a higher level of activities. Unless these kinds of changes in community and individual recreation needs are continually considered in planning parks facilities and programs, attendance will decline and public support will be withdrawn. While the primary focus of local government has traditionally been to provide parks, there has been an emerging emphasis on recreation planning as a tool to accomplish a number of other related community development objectives. This emerging emphasis includes utilization and development of programs within the Department of Parks and Recreation to: achieve environmental resource management objectives; provide environmental interpretive facilities; provide creative play areas that are often educational or interpretive in nature; integrate arts, culture, senior citizen, daycare, and adult education programs with traditional recreation and open space planning; and manage the County s inventory of historic sites and museums. In planning for recreation and open space in Isle of Wight County, an important distinction must be kept in mind: recreation areas, such as community parks and boat landings, are used actively for recreation while open space areas are managed for natural resources protection. Combined in creative land planning and management programs, they can be mutually supportive toward achieving their respective objectives. The following section of the Isle of Wight County Comprehensive Plan reviews and analyzes current Parks and Recreation facilities. An inventory of existing recreation areas and facilities in the County has been compiled and compared to projected demands for facilities through Current recreation and open space issues and implementation options are explored. Consideration has been given to demographic changes that may influence the future location of recreation sites and facilities. Needs for improvement of existing facilities, the acquisition of additional park land and the construction of new facilities in existing and future parks are identified. Goals and objectives for parks, recreation facilities, and preservation of open space are provided. Recommended actions to implement the objectives are provided when considered appropriate. Comprehensive Plan 8-1 Isle of Wight County, Virginia

185 Background Information Isle of Wight County has 21 public/semi-public recreation/open space sites which include parks, a wildlife preserve, schools, and a roller skating rink, some of these sites are more developed than others. A public facility is open for anyone to utilize while a semi-public facility limits usage to members only but membership is open to anyone. In addition, some support a wider range of activities from active sports to more passive recreational pursuits, while others, such as the skating rink, are more single purpose in nature. The Isle of Wight County Parks and Recreation Department was initially created as the County Public Recreation Authority in From its original mission to redevelop a surplus Nike missile site into a public park, the agency has evolved to become the leisure service provider for the entire County. Currently the department is responsible for the management of 24 structures totaling 48,912 square feet on 561 acres of park property. Today, facilities managed by the department are quite diverse and range from park facilities that provide a broad number of recreational amenities and offerings to specialized facilities such as an historic parks and a museum. Table 8-1 provides an overview of the size and characteristics of some of these park facilities. Of the 21 park facility locations identified (see Map 8-1), eight are school sites which fall under the jurisdiction of the Isle of Wight County School Board. Already practiced by the County, multi-use of school facilities serves to maximize use of available resources with the minimum expense. In the case of a public school, multi-use indicates that the facility is being utilized by the School Board during regular school hours, extra-curricular activities included, and by the Public Recreation Facilities Authority (for sponsored recreation programs) at other times. In addition to the recreational facilities provided by the County, three organizations provide semi-public facilities for the use of County residents. The Luter Family YMCA has an indoor swimming pool, fitness center and full gymnasium, and provides a wide range of athletic and sports activities. The County is providing funds to assist the YMCA with its pool expansion project. The Windsor Athletic Association owns and operates five ballfields at which varying levels of little league baseball and softball are played. The Smithfield Recreation Association owns and operates three little league baseball field at Beale Park. Comprehensive Plan 8-2 Isle of Wight County, Virginia

186 Table 8-1 Size and Characteristics of Major County Park Facilities Site Size Park Features Carrollton Nike Park Nike Park Road Fort Boykin Historic Park 7410 Fort Boykin Trail Otelia J. Rainey Center and Camptown Park Carver Road Isle of Wight Museum 103 Main Street 150 acres General recreation facility with approximately 90 acres developed to include; tennis courts (lighted), baseball/softball fields (lighted), basketball court, sand volleyball court, fishing pier, playground areas, picnic shelter, picnic areas, walking trail, mountain bike trail, soccer complex, public restrooms, open space, and maintenance compound. Buildings consist of an administrative office/recreation hall, senior citizen services center and ceramic building. 14 acres Fort Boykin was constructed in 1623 and predates the establishment of the County. Picnic shelter, picnic area, information kiosk, public restrooms, several gardens, and self guided walking tour highlighting significant historical and natural features. Fort dates back to acres Basketball courts (lighted), tennis courts (lighted), picnic shelter, baseball/softball field, walking trail, playground areas, public restrooms, and open space. Community Center (2,000 square ft.) includes meeting activity rooms, kitchen, offices and restrooms. N/A The Isle of Wight County Museum is an 8,000 square foot local history museum dedicated to manage, maintain, exhibit and interpret collections related to the history of Isle of Wight County. The Museum features seven galleries with exhibits that include a gallery designed to look like a country store in the early 1900s; exhibitions on Native American and colonial history; extensive information on the Smithfield ham industry as well as the oldest Smithfield ham; a war memorial gallery honoring our service men and women; a waterman's exhibit; a mini-theater featuring a local history film entitled "Peanuts, Pigs & Progress, the Story of Isle of Wight County"; revolving displays in the Main Gallery (formerly the Bank of Smithfield) and a gift shop featuring an extensive collection of books, children's toys, jewelry, silver and gifts. periodically. Traveling exhibits and special events are sponsored Boykin s Tavern Monument Circle Isle of Wight/Franklin Skating Rink Walters Highway Riverview Park James Street Robinson Park Duke Street Jones Creek Boat Ramp Boundary Lane Heritage Park and Joel C. Bradshaw Fairgrounds Courthouse Highway Hardy District Park Tyler s Beach Road Tylers Beach Boat Ramp Tyler s Beach Road Fort Huger Lawnes Neck Drive/Talcott Terrace The former tavern and private residence is now a Virginia Historic Landmark and County museum. 2 acres Full service 12,000 square foot facility includes roller skating rink featuring pro shop, snack bar, game room, rental skates, entertainment lighting and sound system, skate repair facilities, restrooms and administrative offices. The facility is owned by the County. 27 acres Features tennis courts (lighted), basketball courts (lighted), exercise court and trail, baseball field, memorial garden, playground, and a senior activities area including shelter and gazebo. An 800 square foot building includes restrooms, storage space and facilities for the Head Start program..5 acres Playground, seating area with game table, landscaping, and parking. 8 Two public boat ramps with fixed docks, parking area and open space and an 80 ft. public fishing pier and floating dock to accommodate canoe and kayaks. Public restrooms within a permanent facility. 262 acres Thirty-five acres of fenced area designated fair grounds, open and wooded space. Buildings consist of the fair headquarters log cabin, three storage sheds and three admissions buildings. 50 acres Currently undeveloped. Design process will include community meetings to obtain citizen input. 13 acres Public access to the James River on a single ramp, harbor, 440 ft. fixed docks and public beach. A portable toilet is available. 22 acres Historic facility that was a military installation during the Civil War. The park includes restoration of the original fort, walking trails, and interpretive signage. Comprehensive Plan 8-3 Isle of Wight County, Virginia

187 Carrollton Elementary School New Towne Haven Lane Carrsville Elementary School 5355 Carrsville Highway 2 acres Baseball/softball field, 5,000 sq. ft gymnasium. 2 acres Baseball/softball field. Park Facilities continued Site Size Park Features Hardy Elementary School Multi-purpose room Hardy Circle Smithfield High/Middle 780 seat auditorium. School 14171/14175 Turner Drive Westside Elementary School 5 acres Baseball/softball fields and 10,000 sq. ft. gymnasium 800 Main St. Windsor Elementary School Softball field and gymnasium Courthouse Hwy Windsor Middle School 3 acres Baseball/Softball fields, 10,000 square foot building/gymnasium North Court Street Windsor High School 24 Church Street 3 acres Tennis Courts (lighted) and Baseball/softball field. Source: Isle of Wight Parks and Recreation, 2005 Among the sites managed by the County Parks and Recreation Department, the three major facilities are Carrollton Nike Park located on Route 699 east of Smithfield, the Otelia J. Rainey Center and Camptown Park located at the southern tip of the County on Route 1603, and Heritage Park and Joel C. Bradshaw Fairgrounds located on Route 258 just north of Windsor. The Carrollton Nike Park provides activities, including baseball, softball, basketball, tennis, playgrounds, and picnicking. Approximately half of the site is developed leaving the remainder as open space or land for potential future facilities expansion. The Camptown Park facilities include play fields, basketball, playgrounds and picnicking. Heritage Park, currently being developed, will be a district park. Map 8-1 shows the location of these three sites and the other 18 public/semi-public sites in the County. A facility available for entertainment uses is the Smithfield Center, which is owned by the Town of Smithfield. The facility provides space for small to large events such as meetings, parties and other indoor events. A number of improvements or facility upgrades at many of these facilities have been accomplished in the past few years or are currently underway. Noteworthy improvements include: Ballfield upgrades and installation of waterlines at Camptown Park were completed in New signage and erosion control/beach replenishment at Fort Boykin Historic Park. This project created a public beach at Fort Boykin and was completed in Development and adoption of the Recreation Facilities Master Plan for Carrollton Nike Park to include building replacement, a nature trail footbridge, and renovation of soccer fields. The plan was completed in 2001, and a copy may be obtained from the Department of Parks and Recreation. Development and adoption of the Recreation Facilities Master Plan for Heritage Park for Comprehensive Plan 8-4 Isle of Wight County, Virginia

188 the initial and complete development of facilities to include the Joel C. Bradshaw Fairgrounds. The plan was completed in 2001 and a copy may be obtained from the Department of Parks and Recreation. Construction of public beach facilities at Tylers Beach was completed in Replacement of playground equipment, improved landscaping and building repairs at Riverview Park completed in Improvements to Jones Creek Boat Ramp including completion of floating dock, installation of fishing pier and installation of permanent restroom facilities were completed in In 2000, developed the Nike Skate Park for inline skating, skateboards and bicycles at Carrollton Nike Park utilizing space that was developed as outdoor basketball courts. Skateboarding and inline skating have become fast growing sports. Beyond these more immediate improvements and facility upgrades, the Department of Parks and Recreation will be involved in an aggressive Capital Improvements Program. A number of projects have been identified to provide additional park locations or facility improvements over the next 15 years. They include: Developing Heritage Park and the Joel C. Bradshaw Fairgrounds per the guidance of the Recreation Facilities Master Plan and the Capital Improvement Plan (CIP) of Parks and Recreation. The plans propose future facilities to include restroom facilities, a trail system, picnic areas, a playground complex, a soccer field complex and continued development of the fairgrounds. Development is currently taking place and is expected to be fully completed by Continue construction of improvements to Carrollton Nike Park following the guidelines of the Master Plan and CIP. Improvements include upgrades to soccer and ball fields, construction of a new community center, picnic shelters and gymnasium. Completion of this project is expected in Develop a neighborhood park to serve the Hardy District on property provided to the County by a recent development agreement. This park will be developed with guidance from citizen input obtained at community meetings. Development of the park is expected to be completed in Continued improvements to Tylers Beach, including construction of restroom facilities and a beach bulkhead. This project is scheduled for fiscal year 2014/15. Development of a community park in Zuni. This park will be developed to meet the needs of residents in the Zuni area. The expected start date for this project is 2008 and is to be completed in Future planned improvement and construction projects will add 16 buildings and structures to the County park system which will total over 139,000 square feet in new facilities. Comprehensive Plan 8-5 Isle of Wight County, Virginia

189 Bicycle and Pedestrian Trail System In January 2001, the Board of Supervisors directed County staff to present a recommendation on how to approach bicycle and pedestrian planning in Isle of Wight County. The Isle of Wight Bicycle Committee was formed with representatives from each district. The Master Bicycle and Pedestrian Trail Plan was adopted by the Board of Supervisors in October This plan is a component of the Comprehensive Plan. This trail system is explained in more detail in Chapter 5: Transportation. It is intended to be used as a nonvehicular mode of transportation for citizens and visitors to Isle Of Wight County. The bike and pedestrian access plan has many objectives centered on connecting residents and visitors with programs and facilities. One objective of the plan is to ensure we connect neighborhoods, future and established, with parks and recreation facilities. This is a priority particularly in the most populated of districts within Isle of Wight County. Issues A recreation need exists when the demand is greater than the supply of acres or facilities to satisfy that need. If the need can be identified before it occurs, the possibility exists to meet the need in advance of deficiency. Needs can be met by either public or private agencies. The Virginia Department of Conservation and Recreation, Division of Parks and Recreation (VDPR) has established a hierarchy of park types and general standards for each park type. These standards, located in Appendix A of the 2002 Virginia Outdoors Plan, give ranges for park size and service area and detailed information regarding typical administrative responsibility, purpose, and character of the park type, general location recommendations, and facilities that should or could be in different types of parks. Recreation Land The VDPR's park area standards (Table 8-2) recommend a minimum of 10 acres of recreation land for each 1,000 persons in a community, one-quarter of which should be available to meet needs for active recreation. This does not include large regional and State parks, golf courses and other special recreation areas, but does provide for all park needs at the neighborhood, community and district park scale. In rural counties like Isle of Wight where the population density is not always great enough to feasibly meet state standards, more detailed geographic analysis, and assessment of need in the context of specific areas of the County and the expressed needs of residents provides a better indicator of park and recreation facility needs. Nevertheless, utilizing State guidelines provides a good general indication of demand or need for parkland in the County and provides a general basis for prioritizing needs for acquisition of parkland. Park lands are generally operated by a government agency, but private neighborhood parks and playgrounds are becoming more common and can help meet the demands for those types of parks. Utilizing these state standards as guidelines, Isle of Wight County should have approximately 830 acres of recreational area by 2030 (Table 8-3), with 206 acres available for active recreation to meet recreation needs. Comprehensive Plan 8-6 Isle of Wight County, Virginia

190 Table 8-2 Park Area Standards Park Type Service Radius Minimum Size (acres) Urban/Suburban Rural Acres Per 1,000 population Neighborhood 2 miles miles 5 3 Playground/Play lot 2 miles Community 1 miles 3-7 miles 20 3 District 5-7 miles miles 50 4 Regional 25 miles 25 miles 100 Variable State 1 hour 50 miles TOTAL 20 acres/1000 population Source: Virginia Department of Conservation and Recreation, Division of Parks and Recreation, Virginia Outdoors Plan: Appendix A, 2002 Park Type Table 8-3 Projected Future Demand/Need for Parkland Existing Recommended 2010 needs 2020 needs Parkland Acres per 1,000 (acres) (acres) (acres) population 2030 needs (acres) Population: 33,800 37,500 41,500 Neighborhood Playground/Play lot Community District Regional State Total Source: Isle of Wight County Department of Parks and Recreation Virginia Department of Conservation and Recreation, Division of Parks and Recreation, 2002 There are a total of 2,179 acres of public/semi-public lands in the County. The State-owned Ragged Island Wildlife Preserve consists of 1,475 acres of open space with minimum recreation activities available (canoeing and two miles of foot trails). Because it is a wildlife preserve and not a state park, its 1,475 acres is not counted in Table 8-3 under existing state park acreage. The primary purpose of school facilities is education and not recreation, therefore the 152 acres making up public school facilities in the County are not considered in existing park acreage in Table 8-3. In Isle of Wight, Robinson Park is currently the only public or quasi-public neighborhood park. It is owned by Windsor while maintained by County Parks and Recreation. Beale Park and the Comprehensive Plan 8-7 Isle of Wight County, Virginia

191 Windsor Athletic Association facility are the only private parks in the County. The other park types in the County are community parks: Riverview Park, Otelia J. Rainey Center and Camptown Park and Hardy District Park. The district parks in the County included Carrollton Nike Park, Fort Boykins Historic Park, Heritage Park and Joel C. Bradshaw Fairgrounds, and Tylers Beach Boat Ramp. Subtracting the existing park acreage from the year 2005 acreage needs in Table 8-3, indicates the County is currently deficient in neighborhood and community parks. Actually, the County is deficient in district parkland since the majority of the property acquired for district park use is not yet developed as parkland although it is credited as parkland in Table 8-3. Nevertheless, future park improvements in this central County location should satisfy future needs for a larger County-wide park facility. Noteworthy is the deficiency in three areas: State Parkland available for recreation use in the County. Facilities and/or access to facilities for affordable housing. Park facilities in rural areas especially in the Isle of Wight Courthouse area. When planning for the location of future recreational sites to make up existing deficiencies and provide for projected future demands beyond the year 2005, the County must consider not only the total acreage needed but also ensure that a variety of park types are offered which are distributed equitably throughout the County. Recreation Facilities In addition to parkland, the County needs to satisfy needs for recreational facilities within park areas to truly meet resident s current and projected needs. Table 8-4 summarizes the number and types of recreational facilities in the County. It includes a listing of private facilities that can be identified in addition to the complete listing of public/semi-public facilities. This inventory provides a basis to evaluate facility availability to support residents needs and can be used as a tool to assess current availability of facilities against future facility needs that will be prompted by population growth in future years. In 1988, the HRPDC, formerly the Southeastern Virginia Planning District Commission (SVPDC) calculated current recreational facilities needs for Isle of Wight County using a Population Ratio Facility Standards methodology. This was based on State recommended standards (or National standards when State standards were unavailable) detailing the number of people per given activity unit. For example, the population ratio standard for a Junior Olympic swimming pool is 10,000 people per pool. If the population of a given area was 20,000, two pools would be needed. This method, though useful, does not take into consideration the socioeconomic, geographic and cultural differences between localities. Table 8-5 provides a limited assessment of projected future need for a limited number of County recreation facilities utilizing the Population Ratio methodology. Comprehensive Plan 8-8 Isle of Wight County, Virginia

192 Table 8-4 Summary Inventory of Recreation Facilities - Isle of Wight County* Facility type Public and Semi-Public Private Total Auditorium (fixed seats) 1,100-1,100 Basketball goals (#) Baseball/softball (fields) Boating (# of ramps) Bicycles (Rental) Camping, Tent (sites) Camping, Trailer (sites) Canoes: Rentals (#of) Canoe Trails (miles) Equestrian Facilities/Trails (miles) 0/0 5/4 5/4 Football (fields) Fitness Courses (miles) Freshwater fishing (acres) Fishing Piers (linear ft.) Foot Trails (miles) Golf Courses (holes) Indoor Swimming Pools (number) Multi-use fields (fields) Pavilions (number) Picnicking (tables) Playgrounds (number) Roller Rinks (number) 1-1 Marina Slips (number) Spectator Sports (seats) 4,605-4,605 Outdoor Swimming Pools (number) Swimming Beach (feet) 1, ,500 Tennis (courts) Running Track (yards) Volleyball (courts) *Note: Figures shown are best available estimates based on review of existing sources of information Sources: Southeastern Virginia Recreation Facilities Inventory, Isle of Wight County, SVPDC, Feb Virginia Outdoor Recreation Plan, Virginia Department of Conservation and Recreation, 2002 Department of Parks and Recreation, Isle of Wight County, Virginia, 2005 Comprehensive Plan 8-9 Isle of Wight County, Virginia

193 Table 8-5 Recreation Facility Needs: * Facility/Activity type Existing Supply Min. Need Peak Need Min. Need Peak Need Min. Need Peak Need Auditorium (fixed seats) 1, Basketball Courts (#) Baseball/softball (fields) Boating Access (ramps) Bicycle Trails Football (fields) Foot Trails (miles) Golf Courses (holes) Picnicking (tables) Swimming Pools (number) Swimming Beach (acres) Tennis (courts) *Note: Determination of needs based on best available information concerning recreation participation rates for various activities. Facility needs may exist even though the existing supply may exceed the minimum need shown due to existing supply being privately owned or provided in only a limited number of locations. Local demand for facilities may also be greater than participation rates would indicate. Source: Isle of Wight Department of Parks and Recreation and Department of Planning and Zoning As noted earlier, less densely populated areas may not require the same number of facilities per person but, by using state standards in calculations, a guideline can be obtained in order to set priorities. Table 8-6 identifies facility development standards developed by the National Recreation and Parks Association (NRPA) which provides an alternative means guiding County decisions regarding demand or need for alternative recreation facilities. In the final analysis, while these guidelines are useful, ascertaining demand and need for recreation facilities should be most influenced by the specific local interests and expectations of County residents. In addition to obtaining a given number of facilities, the facilities should be of a quality that meets, as a minimum, state space and capacity standards. The quality of existing facilities naturally varies; therefore, the existence of a given facility (i.e., basketball court) does not automatically exclude it from needing an upgrade (i.e., lighting of the court). Upgrading of facilities includes resurfacing of paved areas (tennis courts, basketball courts), lighting, providing restroom facilities, and providing directional signs (trails). Many of the projects recently completed or planned for the next few years by the County Parks and Recreation Department (see previous discussion) are designed to address many of the recreation facility needs identified. Comprehensive Plan 8-10 Isle of Wight County, Virginia

194 Table 8-6 NRPA Suggested Facility Development Standards, 1990 Activity/Facility No. of Units Per Population Playground/Play lot 1 Playground per 500 to 2,500 Basketball 1 court per 5,000 Baseball 1 field per 5,000 Softball 1 field per 5,000 (if also used for youth baseball) Tennis 1 court per 2,000 Volleyball 1 court per 5,000 Soccer 1 field per 10,000 Trails 90 hikers/day/mile Swimming Pools 25 meter/ 1 per 10, meter/ 1 per 20,000 (Should accommodate 3 to 5% of total population at a time) (27 square ft. per swimmer) Golf (18 hole standard) 1 per 50,000 Source: Recreation Park and Open Space Standards and Guidelines, NRPA, 1990 In order to have more locally specific needs identified, actual County participation rates determined from a survey of residents is needed. The Virginia Department of Parks and Recreation and Virginia Commonwealth University conducted such a survey statewide which included a sample of residents from the Tidewater region in 2000 as part of its effort to develop the State Outdoor Recreation Plan. The 2000 Virginia Outdoors Survey was designed to elicit more detailed information regarding major resource-based recreational activities. For example, boating questions sought to determine type of boats used and whether they could be hand-launched or required a ramp, and what other activities were enjoyed while boating. Questions also were asked about the types of facilities and programs that should be provided within Virginia's state parks. Certain questions were designed to gain information about the types of outdoor recreational areas/facilities most in demand and to determine the public's attitudes toward the protection of open space and rare, threatened, or endangered species. A summary of the survey, with the questionnaire, can be obtained by contacting the Department of Conservation and Recreation, Division of Planning and Recreation Resources, 203 Governor Street, Suite 326, Richmond, VA One of the most significant findings of the 2000 Virginia Outdoors Survey was the popularity of water-based recreation. Four of the top-ranked 10 activities are water-oriented, thus requiring access to the state's waters for participation. Virginians are concerned about improved water access, as 56 percent of respondents ranked the provision of additional access to water for fishing, boating, and swimming as the most important outdoor recreation resource need. The popularity of trail-based activities also was demonstrated as the next two highest ranked needs were hiking/walking trails and bicycle trails at 54 percent and 40 percent, respectively. Another interesting trend identified in the survey is the growing popularity of visiting natural areas (27%), visiting gardens (22%), and nature study (11%). These activities were added to the survey in 1992 and have shown an increase in popularity since then. The rise in the appeal of these activities reflects the public's interest in the environment and natural resources. It is also Comprehensive Plan 8-11 Isle of Wight County, Virginia

195 interesting to note that environmental education ranked as one of the most important services the state should provide through its parks. The survey found that the highest participation rates occur in those activities located close to home. For example, walking for pleasure has an average per person participation rate of 99 times per year. Field sports, such as softball and soccer, have participation rates of 30.7 and 47.5 times per year, respectively. Court games, such as basketball and tennis, have participation rates of 39.4 and 25.5 times per year, respectively. Playground use has a participation rate of 41.7 times per year. All these activities have an average travel time of less than 30 minutes, showing their need to be located close to home. While the frequency of participation for many of these activities is quite high, a relatively small percentage of the total population participates on a regular basis. For example, only 16.2 percent of the population plays tennis, and approximately 10.1 percent and 15.4 percent of the population plays softball and basketball, respectively. On the other hand, resource-based activities generally draw a larger segment of the population, who tend to participate less frequently. For example, 44.3 percent of the population visits the beach, 42.3 percent participate in fishing, 40.9 percent participate in boating, and 31 percent of the population camps an average of seven times per year. Travel times for these resource-based activities are also significantly greater (an average of 1.5 hours). Evaluation of these trends together with assessment of the availability of recreation facilities in the County suggest that future focus on acquisition of public beach facilities, together with development of greenways to protect natural areas and accommodate additional walking/biking trails in appropriate greenway sections should be priorities over the next 10 years. There is presently little public waterfront access or parks available in Isle of Wight County along the James River or its tributaries. The County needs to acquire and develop land along the County shoreline to provide public beach access and to support more passive recreation uses in the form of greenways for public use. In addition, the State should assess potential for developing a small portion of the Ragged Island Wildlife Preserve or to purchase additional lands adjacent to current holdings that are suitable for recreational use, especially as it is located near a planned Development Service District (see Land Use Plan chapter). Comprehensive Plan 8-12 Isle of Wight County, Virginia

196 Parks, Recreation and Open Space Goals and Objectives Isle of Wight County s park offerings and recreation programs have grown substantially in recent years. The County should seek opportunities to diversify recreation offerings beyond those that satisfy the active recreation interests of residents. This includes development of passive or natural parks and greenways that offer facilities for environmental interpretation, protect natural resources, and support broader environmental protection objectives. The County s fastest growing demographic is the senior population. The Department of Parks and Recreation will need to be proactive to meet the needs of this growing demographic. GOALS: To create a physical and social environment which is conducive to residents enjoyment of recreational opportunities by providing parks, recreation areas and facilities, and open space that meet or exceed the changing cultural and recreational needs of County residents; and To provide recreation sites, programs and facilities which meet or exceed community needs for active recreation pursuits and diversifies programming. To provide a broad range of natural park sites that offer facilities for environmental interpretation and appreciation of the County s natural features and qualities. Objectives Provide residents opportunities for hiking and biking; Maintain an accurate inventory of recreational facilities and improvements; Coordinate expansion of existing recreational facilities and development of new park sites and facilities such that their development corresponds to locations that will sustain residential growth; Provide park and recreational facilities within or at close proximately to affordable housing; Plan community facilities with the capability of adaptive and flex-use/reuse (e.g., convertible schools, school libraries and County branch libraries, and multi-use public auditoriums) by two or more government agencies and by public and private sectors. An example of this can be found at the former Smithfield High School building that now houses the Smithfield Library, the Luter Family YMCA and the Smithfield campus of Paul D. Camp Community College. Recreation centers should be planned in new school construction; Provide pedestrian and bike access between neighborhoods and park and recreational facilities; Comprehensive Plan 8-13 Isle of Wight County, Virginia

197 Provide adequate public waterfront access and develop facilities for swimming, boating and fishing activities for current and future residents; Encourage private sector development of commercial recreation facilities (golf course facilities, indoor pool facilities and tennis and other racket sports court facilities) that meet community recreation needs and complement the system of public parks, facilities, and program currently available in the County. Develop needed public recreation facilities in a cost effective manner such as giving priority to expanding facility units and activity types at an existing location, when appropriate or cost-effective, rather than creating new facilities and/or new locations; Ensure that the costs of additional public recreational facilities and programs recommended due to new development are equitably borne by those benefiting. Examine opportunities to utilize requirements for recreational land dedication, levy a fee-in-lieu of recreation land dedication or institute a park and recreation fee; Work with County residents to identify areas for equine access and activities; Coordinate natural resource protection efforts with future opportunities for County park, open space and recreational land uses. Establish methods to acquire, develop and maintain open space buffers for development of trail corridors, particularly in greenways adjacent to stream corridors or former rail rights-of-way which offer leisure recreation facilities, protect sensitive environmental resources and enhance the quality of life for County residents. Where possible select locations for trail construction that foster use of greenways and provide opportunities to establish an interconnected system of trails and greenways over time. Seek opportunities to work with community organizations to develop special recreation facilities or interpretive facilities that highlight heritage resources, agricultural products, or special environmental features in Isle of Wight County. Plan programs and facilities that meet the needs of the adult and growing senior population. Implementation The following implementation recommendations list a variety of techniques that the County can use in order to achieve the objectives regarding recreation and open space. Acquire and develop more public beach facilities The County has only two public beaches, one at Tylers Beach and the other at Fort Boykin. These beaches are small and have few amenities. The County should develop existing beaches more fully while taking advantage of its abundant shoreline and creating more public beach facilities. Development of facilities could include a public beach area, a picnic area with a shelter, a play area, a walking trail, public rest rooms and a parking area. Comprehensive Plan 8-14 Isle of Wight County, Virginia

198 Establish a Greenways Program The County needs to establish a greenways program. Such a program would map proposed greenway locations in advance of development and secure right-of-way and or easements as a condition of development approval to establish greenways over time. Such a program would also aggressively pursue funding from both public and private sources to purchase easements or secure easement through donations. Greenways serve a number of purposes above and beyond the recreation benefits they provide which underscore the support they provide to implement transportation, environmental, and economic elements of this Comprehensive Plan. Depending on their location and the purposes for which they are designed, greenways can be managed to protect water resources along shorelines and adjacent Resource Protection Areas as defined by the Chesapeake Bay Preservation Act. Greenways can also afford protection to surface water impoundments, satisfy recreation needs, provide alternative transportation, protect scenic resources, or protect sensitive environmental resources. Many serve a combination of these purposes. Greenway benefits are many and varied. Greenways can: Connect people, communities, and countryside. Provide for hiking, biking, picnicking, fishing and other recreational activities. Provide important open space resources that soften urban and suburban landscapes by providing buffers in developed areas. Link important cultural and historic sites-fostering greater awareness and appreciation for them. Provide refuge and safe migration routes for wildlife. Provide alternative transportation routes by providing bike and pedestrian facilities. Reduce flood damage and costs related to damage. Improve water quality by buffering streams and trapping pollutants. Enhance economic development and tourism. Several publications and resource materials have emerged to assist the County in efforts to develop greenways including the publication Greenways: A Guide to Planning, Design and Development, available through Island Press. Funded by the National Recreation Trails Act, a component of Intermodal Surface Transportation Efficiency Act (ISTEA), the Virginia Recreational Trails Fund Program was established to provide and maintain recreation trails and related facilities. Administered by the Department of Conservation and Recreation (DCR), grant funding may be provided to government agencies, and private organizations for trail system development. Non-profit organizations like The Conservation Fund s American Greenways Program and the National Park Service s Rivers and Trails Assistance Program provide technical assistance and funding for greenways. Develop trail system A trail system development plan should be prepared in conjunction with the greenways program. Trails may be appropriate in certain greenway locations or in locations that capitalize on existing rights-of-way. (i.e. Lake Gaston pipeline right-of-way) Use trails to link park lands, conservation areas, scenic landscapes and historic/cultural sites. Initial projects could involve linking only two parks or linking a series of parks. One such project could involve using public Comprehensive Plan 8-15 Isle of Wight County, Virginia

199 rights-of-way (i.e., shoulders of roads) to link a series of parks in the northern part of the County making approximately a 20-mile round trip trail. Those parks could include Carrollton Nike Park, Riverview Park, and Tyler's Beach, with an extension going to Fort Boykins Historic Park. The trails systems should provide interconnectivity between the towns and can include areas of denser populated areas. Plan and develop additional neighborhood park facilities in locations targeted for residential growth. Examine prospects for requiring dedication of recreation land or a fee in lieu of land dedication as well as institution of a park and recreation fee to provide dedicated funding sources for parks and recreation facilities. A fee in lieu of providing park land or recreation facilities would be required of subdivisions that are exempted or can be exempted from such requirements. The fee, which should be collected at the time lots are recorded, would be used to establish new park sites or the improvements needed to support recreation activities in existing park locations. Funds might be dedicated for improvements within various districts of the County, consistent with the location of the subdivision approved and the added demand generated by new development. An in-lieu fee, while not intended to offset all added demand for park land in the County, will assist the County in meeting its acquisition needs and contribute to the cost of providing added recreation land in the county by requiring development that prompts added expenditures for park land to bear a more proportionate part of the cost. Park and Recreation fees are payments made by developers to finance the costs of off-site infrastructure that will be needed to serve new residents. Some counties have adopted a recreation fee that is in addition to any required open space or recreation land dedication requirements in subdivisions. The park and recreation fees are intended to address the impacts of development on the need for regional as opposed to neighborhood recreation facilities. Periodically evaluate status of recreational program offerings Periodically evaluate the status of recreational facilities and programs to determine if available facilities and programs are meeting the communities' recreational interests and if park designs and program creativeness provide challenge and self-renewal to the user. This can be accomplished through regular surveys of County citizens and facilities users. Maintain an accurate inventory of recreation land and facilities Continue to maintain an inventory of both public and private facilities. By keeping an overall view (public and private) of facilities and programs, the County can ensure that needs are met in a timely and cost-efficient manner. Balance Parks and Recreation facilities distribution Available parks and park types need to be distributed proportionally around the County such that the needs are located where the users reside. This will require the County's Public Recreation Facilities Authority to maintain records of existing population centers and be aware of where new development in the County will occur. Comprehensive Plan 8-16 Isle of Wight County, Virginia

200 Acquire land and develop neighborhood park facilities ( 5 acres in size) in the area of the Newport Development Service District. Growth in recent years and growth currently planned for these areas of the County will continue to prompt demand for additional neighborhood park facilities. Park offerings should complement those available at Nike Park. Develop the neighborhood park facility in the Hardy District Develop the newly acquired Hardy District Park to meet the needs of the residents of the district. The County has recently held community meetings in order to seek input from citizens. Develop property obtained by the Hazard Mitigation Grant Program Acquisition Project The County will acquire several parcels of property through a grant funded by the Federal Emergency Management Agency (FEMA). The property will be acquired, on a voluntary basis, from property owners whose structures were damaged or destroyed by recent flooding. Upon acquisition, the County must designate the property as open space and utilize it as such. Development of the property will involve citizen input in the decision making process. Utilize recreation programs to promote environmental awareness Increase promotion and awareness of the natural environment through nature interpretation and nature oriented facilities which build public awareness and appreciation of environmental resources in the County. Explore funding methods for acquiring or ensuring the protection of specific environmentally sensitive areas to be set aside as open space. Special User Groups Ensure the availability of a variety of programs for people of all ages and for special user groups such as the physically disabled. The design of the facility should include innovation such that the facility is completely accessible to the physically disabled when planning new facilities or upgrading existing facilities. Continue to engage interest groups in recreation facilities planning. In order to maximize facilities' use, involve individuals from special interest groups, such as a senior citizen or a physically disabled person, who can provide technical assistance with recreation program and facility planning. Utilize Federal and State resources to enhance recreation programming and facility offerings. Seek Federal and State assistance to secure both Community and Regional Park sites and facilities at a scale necessary to meet the demands brought on by County growth. Take advantage of recreation consultation and workshops offered by the Department of Conservation and Recreation to become better informed about how to streamline local departmental operations and best methods of developing, operation, and maintaining park and recreation programs. Comprehensive Plan 8-17 Isle of Wight County, Virginia

201 Seek cost-effective means of acquiring needed parkland. In order to ensure that public recreational land is available when needed, acquire or manage lands with significant conservation or recreation value before encroaching development and rising land values preclude this possibility. This includes such methods as the County's reaching an agreement with utility companies in which the use of utility easements as potential outdoor recreation and open space areas (e.g. hiking and equestrian trails) is encouraged. Explore land contracting options that allow the County to purchase land today but pay for it over a protracted period of time. Annual payments, as opposed to a lump sum payment, creates certain tax advantages for the seller while eliminating the necessity of the County government needing to raise the entire purchase price at one time. Utilize alternate density zoning to maintain open space. Encourage developers to utilize alternate density zoning by reducing lot size and/or consolidating lot layout in order to provide compensating amounts of open space within the subdivision. Although no increase in the number of lots is allowed, consolidation of layout can save the developer utility costs, and the County acquires significant open space at no cost. Ensure funding in the County's Capital Improvements Program to meet future recreational needs. Encourage cooperative programming of recreation offerings. Encourage public and private organizations who offer recreation opportunities to work together to insure that all available recreation resources are effectively and broadly used by County residents in an effective manner. Promote shared use of facilities for recreation benefits. Promote shared use of facilities by two or more governmental agencies and by the public and private sectors to maximize utilization of existing facilities and minimize costs of building and/or maintaining duplicate facilities. Encourage private investment in recreation facilities. To ease the County's responsibility of providing recreational facilities, encourage private enterprises to invest in recreational facilities (e.g. swimming pools and golf courses). Maintain volunteer programs. Volunteer programs increase manpower at a minimum cost. The community benefits from the citizen involvement, and volunteers gain job experience as well as become aware of the problems and rewards associated with community park and recreation work. Maintain the system of user fees. User fees generate revenues to assist in supporting park maintenance, operational costs and facility improvement needs. Periodically re-assess user fees to determine which facilities and Comprehensive Plan 8-18 Isle of Wight County, Virginia

202 programs should charge a user fee and how much that fee should be. Utilize Recreation sites and facilities to support tourism. Capitalize on tourism in the area through publication of recreation site locations and activities, public waterfront access locations, and programs and events to be held in the County. Develop bikeway and pedestrian system. Continue the process of creating County-wide bicycle and pedestrian trails systems. This will meet both the recreational and alternative transportation needs of citizens. Summary The County will always strive to meet the recreational needs of its citizens. By having a far reaching vision and being dynamic in its approach, the County can accomplish this task. The County must assess both available assets and the growing and changing population in order to satisfactorily serve County residents. As with all the elements of this Plan, demands for facilities will increase and change as the County continues to grow. Periodic evaluation will be needed in order to ensure that facilities and programs continue to be maintained or established in the most efficient manner. Comprehensive Plan 8-19 Isle of Wight County, Virginia

203 Chapter Nine Economic Development Background and Issues In the broadest sense, economic development refers to the changes in an economy over time that occur due to growth and expansion. Economies develop due to simultaneous interactions among increasing populations, increasing numbers of employers and workers, and increasing numbers of businesses which provide goods and services for local consumption, and export. Economic diversification refers to a more directed type of economic development resulting in a more stable and resilient economy which provides quality jobs in businesses acceptable to the local community. Diverse economies are characterized by many different types of businesses and industries interlinked by mutual suppliers and consumers. These economies often export goods and services to other population centers. Such an economy will be more resilient, stable and less vulnerable to the regional and national economic fluctuations caused by State and Federal policies over which local governments have little control. For a number of years, Isle of Wight County has developed and promoted various policies and programs to stimulate local economic development. Unfortunately, the County does not have control over many of the factors which affect the local economy. For example, Isle of Wight County has little control over federal policies affecting interest rates, the existence of certain natural resources that constrain economic development or market prices for products. Fortunately, the County does have some control over other factors such as: the local educational system which enhances local work force qualities; the provision of industrial, commercial, and office sites; and the efficient provision of local services to support the needs of the business community. Also, the County can promote the formation, survival, and expansion of local businesses by reducing the costs of doing business and by correcting market imperfections which inhibit new or small business development disproportionally. Economic development programs should emphasize these types of variables. The promotion of exported goods and services such as paper, lumber, and food products, in the economy, as well as a decrease of imports, such as clothing, furniture, and office supplies, merit special attention in a local economic development program. Importing products and services from other areas may cause a leakage of money from the local economy. The multiplier effect of that money then employs individuals elsewhere rather than locally. Alternatively, an increase in exports, including both services and manufactured products, brings money from elsewhere into the local economy and increases local employment, both directly and indirectly. The three basic sources of job creation are as follow: (1) retention and expansion of existing businesses; (2) recruitment of relocating businesses; and, (3) formation of new businesses. Research has shown that more jobs are created within a local economy through the birth of new businesses and expansion of existing businesses than recruitment of relocating businesses. Local economic development programs need to address each of these methods of job creation to provide a balanced approach to local economic diversification. Isle of Wight County's economic development program is an integral component of the County's Comprehensive Plan 9-1 Isle of Wight County, Virginia

204 Comprehensive Plan. The County's economic development strategy has direct consequences for land use, transportation, housing and provision of community facilities and services. The ability to pay for the costs of growth and to manage growth effectively is related to the balance achieved between commercial/industrial employment opportunities and residential development. The following points indicate some of the important links between economic development and other aspects of growth management. Local economic development can affect the type and quality of residential development in the County. The growth of the County's internal employment base can affect the location, timing, type, and quality of residential development. New commercial, office and industrial developments providing jobs for County residents will generate different housing demands than if Isle of Wight continues to develop as a bedroom community for residents who work elsewhere in the region. Different local industries will generate different housing demands depending upon prevailing wages. Employment opportunities within Isle of Wight County will present different transportation and infrastructure requirements than those based upon increased out-migration to jobs. The extent to which Isle of Wight County's growth is dependent upon employment expansion beyond the County's borders, specifically on the Peninsula and in other areas of Hampton Roads, has direct consequences for the County's present transportation and infrastructure (sewer and water) requirements. Encouraging future economic development within the County will require transportation system improvements and increased availability of sewer and water service in key areas of Isle of Wight. Economic development is linked directly to the issue of paying for the costs of growth. The ability to support a wide range of community facilities and services is dependent, in large part, on the non-residential development that the County can sustain and attract. To the extent that local commercial/industrial development does not occur, more reliance must be placed upon residential property taxes to pay for needed services, affecting both present and future home owners. The County needs to create a balance of development that allows funding of the needed services while lessening the cost impacts to individual developments. The character of the County's development, from its land use patterns to the incomes and lifestyles of its residents, is a function of the economic development that can be encouraged within the County's borders. Most County residents recognize that Isle of Wight is poised for continued growth by virtue of its proximity to Hampton Roads. The character and form of growth and development in the County will in large part be shaped by the local economy. Previous County surveys have indicated that most County residents believe future growth should pay a fair-share of its costs. It should be noted that industrial development provides increased tax revenues while reducing the burden on residential real estate taxes. This element illustrates how the economic development program can aid in increasing the County s viability while providing a means to improve both the quality of life and welfare of County residents. The desired future mix of residential and non-residential development in Isle of Wight will have a strong impact on the character of the Comprehensive Plan 9-2 Isle of Wight County, Virginia

205 county and the quality of life of County residents. Economic Development Initiatives A formal Economic Development Program was initiated in Isle of Wight County in The County has an Industrial Development Authority which is primarily responsible for administering Industrial Revenue Bonds and the development of industrial property. The Authority has provided low cost financing for the Smithfield Foods/Richmond Cold Storage facility; Smithfield Station; International Paper and others. The Virginia Economic Development Partnership (VDEP) assists localities like Isle of Wight with prospects and industrial training. The Partnership also offers funding for industrial access roads and provides for small community block grants and revolving loans. VEDP assisted the County with the site location and expansion of Cost Plus and the location of the Johnson Development and Montague Farms. They assisted Cost Plus with workforce training and provided Industrial Access Road funds and CDBG assistance for development of the facility. Other County businesses that have been aided by VEDP include Smithfield Foods, which received workforce training and Franklin Equipment, which obtained Export Training and assistance. In recent years the County has been a member government of the Hampton Roads Economic Development Alliance, an organization which promotes economic development region-wide. The primary responsibilities of the Isle of Wight Office of Economic Development are to: facilitate existing business retention and expansion; attract new businesses and industries to the County; marketing and public relations; and assist the County in the acquisition of sites for future business and industrial opportunities. The Office of Economic Development and its Director are responsible for promoting Isle of Wight's overall economic development program. The County Office of Economic Development completed a Strategic Plan for Economic Development in September 2000, to establish a work program for economic development programming efforts over the next several years. This plan was updated in 2003 in order to include greater scope and discussion of a number of primary issues. The Regional Economy Three words can be used to describe the Hampton Roads economy: intricate, vibrant and unique. The local economy is influenced by a seemingly infinite number of variables. The diverse grouping of market pressures can make it difficult to understand how changes to the financial environment might impact the region. Broadly defined, the economy is a system or range of economic activity in a country, region or community. It encapsulates the production, development and management of wealth into one single network. The Gross Domestic Product (GDP) is the best measurement in one single number. GDP is the total market value of goods and services that are produced by a nation within a specified time period. By comparison, the Gross Regional Product (GRP) is the total value added in production by the labor and property located within a region, such as Hampton Roads. These measures provide us with indicators that represent the size, and in some cases, the well being of an economy. Hampton Roads competes with both foreign and domestic markets for jobs in agriculture, trade, manufacturing, services, finance and a host of other industries. The most competitive markets tend to be those in close proximity to the region that have similar comparative advantages and market structures. These include: Charlotte, NC, Orlando, FL, Greensboro, NC, Raleigh- Durham, NC, Jacksonville, FL, and Richmond, VA, on a comparative size basis as regards GRP; Comprehensive Plan 9-3 Isle of Wight County, Virginia

206 the larger economies of Washington D.C., Atlanta, GA, Baltimore, MD, and Tampa, FL; and Greenville, SC, Roanoke, VA, Charleston, SC, and Charlottesville, NC which are smaller. Over the past decade, Hampton Roads has seen a continued annual economic growth of approximately 3.3percent, in spite of a national economic downturn. It appears that the local economy has begun to move in a more independent manner in recent years. From 1999 to 2002 Hampton Roads has out performed the majority of its competitors as well as the nation. Increases in defense spending have contributed to this strong growth. Hampton Roads experienced strong employment growth from the latter half of the nineties through the beginning of the current decade. Employment growth slowed through 2002 but appears to have begun to recover thereafter, out-pacing national employment after Increased military spending helped to insulate Hampton Roads from the national economic slowdown. Because of its counter cyclical nature, local defense spending insulates the regional market, limiting aggressive growth and restricting sharp declines. Regional economic behavior is heavily influenced by its sector composition. Historically, employment in the goods sector has been large in the region. Today, services have grown more important, mirroring a national trend. Professional services, retail trade and government employment are the three largest industrial sectors in Hampton Roads. Leading occupations are associated with tourism, the ports, shipbuilding, retail and construction. Unemployment rates reflect both the general well-being of the labor force and its ability to meet the needs of employers. Hampton Roads and Virginia have historically had low unemployment rates. This reflects, in part, the military presence. When comparing employment and income statistics, it is important to consider employment to population ratios. At 60.8 percent, Hampton Roads is near the average of comparable metro areas. Washington D.C. ranks the highest at 69.7 percent and Greenville the lowest at 55.4 percent. After increasing substantially over the past decade, Hampton Roads employment to population ratio has reached a plateau. As a greater share of our aging workforce retires, there will be increased downward pressure on this ratio. Per capita income is the most widely available statistic on economic well-being. Here, Hampton Roads does not compare favorably with competing metro areas and the nation. Low wages can make it difficult for employers to attract talented employees. However, they also make it easier for economic developers to attract businesses. Local per capita income, compared to the nation, was on a downward trend from 1986 through Beginning in 2004 it began a relative rise due, in part, to increased defense spending and an increasing employment to population ration. The Local Economy Overall, it can be said that Isle of Wight County is operating in the midst of a very healthy and growing regional economy. The County's economy has traditionally been anchored by jobs in the manufacturing sector of the economy. In 1990, total employment in the county provided 11,717 jobs. Approximately 33 percent of these jobs were in manufacturing. Other job sectors have grown at a faster rate than manufacturing in recent years since approximately 34 percent of all jobs in the County in 1979 were in manufacturing and 86 percent of the manufacturing positions at that time were in three plants: International Paper, Gwaltney and Smithfield Packing. The 2000 Census indicated that only 25.4 percent of all jobs in the County are in manufacturing. The estimated breakdown of employment within the County by industry sector is shown in Comprehensive Plan 9-4 Isle of Wight County, Virginia

207 Figure 9-2. Recent trends indicate the County economy has diversified somewhat in recent years. In 1990, manufacturing jobs represented roughly 33 percent of all jobs in the County, and by 2000, represented just over 25 percent of all jobs. As shown in Table 9-1, manufacturing jobs still represented the largest percentage of the total job base, but that percentage did decline during that timeframe. Figure 9-1: County Employment by Industry Sector % 5% 4% 3% 24% 6% 7% 7% 13% 8% 8% 9% Manufacturing 3,573 Retail/Wholesale Trade 1,788 Health Services 1,284 Construction 1,161 Transportation/Public Utililties 1,091 Educational Services 1,010 Professional and Related Services 950 Entertainment and Recreation 800 Public Administration 799 Finance/Ins./Real Estates 637 Other Services 604 Agriculture and Mining 388 Source: U.S. Census 2000 The decline in manufacturing jobs as a percent of all jobs was due to the loss of some manufacturing jobs but is mostly attributed to the substantial increases in jobs in other sectors. Growth in the health services sector was greatest during the period (563 new jobs), followed by substantial job gains in the areas of professional and related services as well as entertainment and recreation. Overall, from 1990 to 2000 the County sustained a near 22 percent increase in total employment. Total employment in the County in 2004 is estimated at 15,790 by the Virginia Employment Commission, an increase of over 9 percent from 2000 levels, reflecting sustained job growth in recent years. Comprehensive Plan 9-5 Isle of Wight County, Virginia

208 Industry Sector Table 9-1 Changes in Non-Farm Employment by Industry # Employed 1990 Percent of Total Employment 1990 # Employed 2000 Percent of Total Employment 2000 Change in Sector Employment Change in Percent of Total by Sector Manufacturing 3, % 3, % % Wholesale/Retail Trade 1,954 Health Services Construction Trans/Public Utilities Educational Services Professional and Related Services Entertainment and Recreation Public Administration Finance/Ins./Real Estate Other Services Total Source: US Census, 1990 and % 1, % 1, % 1, % 1, % 1, % % % % % % 9.1% 8.2% 7.7% 7.2% 6.7% 5.7% 5.7% 4.5% 4.3% 11, % 14, % 2, % % % % % % % % % % 21.84% Isle of Wight County has been characterized as having a high rate of commuting by County residents to work locations in other jurisdictions in the region. According to the Virginia Employment Commission, approximately 36 percent of the workforce in Isle of Wight, or 5,118 workers, lived and worked in the County in Approximately 63 percent of workforce lived in the County and commuted to work outside the County. Major out-of-county work destinations include Newport News and Suffolk (roughly 18 percent and 9 percent of the County labor force, respectively). Roughly 57 percent of the County's internal 11,055 jobs are filled by incoming commuters from surrounding jurisdictions. (See Table 9-2) Since workers commuting to jobs in the County total 6,681 persons, and residents commuting to work locations outside the County total 8,851 persons, there is some indication that the County has become a bedroom community. The labor sheds (areas from which employers derive their supply of workers) for the County's two largest employers, International Paper and Smithfield Foods, extend far into nearby jurisdictions so that Isle of Wight residents must compete with them for jobs which statistically and jurisdictionally are in Isle of Wight. Comprehensive Plan 9-6 Isle of Wight County, Virginia

209 Table 9-2 Workforce Commuter Characteristics, 2000 Commuting Patterns Live and work in the area 5,118 In-Commuters 6,681 Out-Commuters 8,851 Net In-Commuters (In-Commuters minus Out-Commuters) Commuting Patterns 5118, 25% 8851, 43% Live and work in the area In-Commuters Out-Commuters 6681, 32% Source: Virginia Employment Commission Because these labor sheds are off-center, they provide a more limited range of job opportunities than may be suspected, and many residents must commute beyond the County's borders to find employment. Unless measures are taken to provide a better dispersal of job opportunities in the County, this pattern of commuting will persist as the County adds new residents. As the County sustains projected increases in population, efforts to increase and diversify the County job base will be required to maintain a sustainable job/housing balance. Current projections for future employment in the County developed in 2004 by HRPDC suggest that County employment levels may increase by as many as jobs through the period The County used to be a net producer of jobs and had more jobs within its borders than total residents employed. In 1979, it was estimated that there were 1,330 more jobs available in the County than people working. In 1990, there were 2,359 more employees living in Isle of Wight than there were jobs available. By 2000, that gap had widened to 3,005. As Isle of Wight continues to grow as a bedroom community, more County residents are commuting to work Comprehensive Plan 9-7 Isle of Wight County, Virginia

210 elsewhere in the region. Between 1992 and 2004, per capita income in Isle of Wight increased from $17,858 to $30,692. This represents an 72 percent increase during the twelve year period. During the same period, per capita income for the State increased 73 percent, and per capita income for the U.S. rose 58 percent. Per capita income in Isle of Wight is growing at a faster rate than the nation but still sustains a slower rate than the State. Table 9-3 Per Capita Income Jurisdiction Percent Increase Isle of Wight County $17,858 $21,466 $27,837 $30,692 72% Virginia $20,909 $25,255 $31,087 $36,160 73% United States $20,854 $24,175 $29,845 $33,050 58% Source: US Census and U.S. Department of Commerce, Bureau of Economic Analysis, November Isle of Wight County is geographically located so that it is constantly affected by larger and/or more densely populated neighbors. These include Franklin, Newport News, Hampton and Suffolk and, to a lesser degree, Portsmouth, Chesapeake, Virginia Beach and Norfolk. Within reasonable commuting distance of the County are numerous industrial employment centers of 400 workers or more, plus government and trade oriented opportunities. A good highway system within the County and throughout Hampton Roads expedites movement to, from, and within the region. Thus, job commuting in and around Isle of Wight has traditionally been at a high level. The County s Economic Development Plan In 2003, the Isle of Wight Office of Economic Development updated its Strategic Plan for Economic Development. The plan outlines objectives and expresses the program for economic development for sustained growth within the County. The 2003 plan presents the advantages the County has for sustaining and attracting new business development. Also, the plan outlines the barriers that could impede economic growth. The strengths are as follows: Roadways an abundance of state highways that provide access within the County and to other localities in the Hampton Roads area. Rail system service is provided to both the Windsor and Camptown Services Districts. Land large tracts of affordable undeveloped property. Water plentiful water resources available for business and residential development. Location proximity to markets, transportation, technology resources and abundant labor as situated on the edge of a metropolitan area. Diverse population a balance of lifelong residents and newcomers, workers in manufacturing and professional jobs and commuters into and out of the County. Comprehensive Plan 9-8 Isle of Wight County, Virginia

211 Low tax rate among the most affordable in Hampton Roads. Early in development with an increase in residents the attraction of retail and service businesses are expected to follow. Quality of life a healthy local economy, low crime rate, rural vistas and excellent recreational opportunities. The 2003 Strategic Plan for Economic Development outlined the weaknesses within the County perceived as barriers to economic development and County growth. Infrastructure these are the lack of internal roadways, extensive utilities and contemporary technology. Commitment to economic development the County lacks a community wide, coordinated approach. Fragmented community not all residents are in agreement concerning the amount of growth the County needs. Image/name recognition the name Isle of Wight does not stand out in the region or the State. Child care few child care providers exist in the County. Schools the growing population has placed pressure to build new schools while regionally low teacher wages have created staffing problems. Lodging residential growth has increased demand on a tight housing market decreasing housing affordability for the workforce. Access to health care there is no hospital and too few health care providers. Skilled workforce the County is perceived to lack a workforce with advanced skills. Lack of amenities cultural and recreational opportunities are limited. Emergency services Emergency and fire services are provided by volunteers. Comprehensive Plan 9-9 Isle of Wight County, Virginia

212 Economic Development Goals and Objectives GOAL: To diversify and expand the County's economic base to provide a broad range of employment and commercial opportunities within the framework of the County's overall growth management goals and objectives. The goals and objectives of Isle of Wight's economic development program are based on several important County needs. The County needs to diversify its economic base so as not to be so dependent on only two major industry types, meat packing and paper and wood products, thus enabling the County to endure any downturns in the economy which might negatively impact these industries. The County needs to expand its non-residential tax base in order to keep local residential property taxes down as demand for additional and improved public services and facilities continues to rise. There is a need to provide local jobs with competitive wages for existing County residents so that young people entering the work force will not have to leave the County for employment. Retail and service businesses are lacking in the County. There is a need to locally expand this sector of the economy so that retail dollars are not lost to other communities. However, this goal needs expansion and clarification to be clearly understood. Local objectives for economic growth should consider the type and quality of jobs desired in the community. Other factors which should be considered include; the prevailing wages offered by a company, the impacts on the local environment, and compatibility with the rural and residential characteristics of the County. Objectives Strengthen local business/industry retention efforts and assist existing businesses and industries to expand within Isle of Wight. Attract more service oriented businesses to meet the needs of the increased population created by additional residential development. Attract businesses and industries to Isle of Wight which would complement the County and its existing economic base. Encourage and promote the start-up and growth of new businesses in the County. Pro-actively support the County s Agricultural Economy and develop a rural/agricultural business strategy. Develop business support services to help local businesses. Provide appropriately zoned land areas suitable for future industrial and commercial growth within designated Development Service Districts and Activity Centers. Assign Comprehensive Plan 9-10 Isle of Wight County, Virginia

213 priority to the adequate provision of infrastructure to areas designated for future industrial and commercial development (i.e. roads, water, and sewer systems). Promote the balanced development of residential, commercial, and industrial land uses and activities within the County. Ensure that future commercial/industrial development is located, designed, and built so as to be compatible with surrounding residential development and the rural character of the County. Ensure that future commercial/industrial development is located, designed, built, and operated so as not to degrade the County's natural environment. Promote additional tourism/travel related development which take advantage of the rural, scenic, and historic qualities of Isle of Wight. Utilize existing assets and partnerships to develop and employ the local workforce and enhance workforce capability. Implementation The following recommendations are designed to broadly support and enhance all sectors of Isle of Wight County s economy. Site Identification Identify potential sites within the County for industrial, commercial and office development based on the following locational and market criteria: location within designated Development Service Districts, Activity Centers, and to a limited degree, Community Centers; availability of public services (water and sewer); access to major transportation routes; and compatibility with surrounding development. The Benn s Church and Carrollton Development Service Districts have generally been identified as appropriate for additional industrial, retail, office and service businesses due to proximity to major residential population centers. The Windsor Development Service District has generally been identified as appropriate for additional industrial development, particularly warehousing and distribution businesses due to excellent highway and rail proximity. The Camptown Development Service District has generally been identified as appropriate for additional industrial development due to the location of existing industries in the Franklin area. Community centers are generally identified as appropriate for limited commercial activity oriented to servicing the needs of the local community and surrounding rural areas. Sewer Line Extension Extend Hampton Roads Sanitation District (HRSD) sewer lines or other cost-effective means to provide public sewer facilities within the designated Development Service Districts to accommodate economic development. Tie in to residential subdivisions in the DSD not currently on the HRSD sewer system. Education Strive to provide a high quality public education system. Comprehensive Plan 9-11 Isle of Wight County, Virginia

214 Job Opportunities Demonstrate a positive interest in existing and new industries and an increased variety of job opportunities. Business Attraction Emphasize the attraction and growth of businesses that maintain and enhance the County's valued quality of life, including environmental quality. Establish a regional niche. Develop a target industries list that reflects community values/priorities. Support and foster growth of entrepreneurial business opportunities. Linkage Promote an increased linkage among new and expanding businesses by promoting the local purchase of goods and services. Public/Private Partnerships Form public/private partnerships to provide well-serviced and properly located industrial sites that can be developed quickly. Land Preservation Preserve large sites particularly suited for industrial parks exclusively for appropriate industrial uses, particularly light and medium manufacturing activities situated in a campus like setting. Tourism Industry Continue to emphasize and promote tourism as a clean, exporting industry. This should be accomplished through coordination with local, regional and State tourism development boards, organizations and agencies. Develop a tourism strategic plan based on the recommendations of the task force convened under the Smithfield-Isle of Wight Tourism Bureau. Exportation Assist and encourage all local businesses to identify and penetrate new domestic and foreign export markets. Recruitment of Export Businesses Target recruitment efforts to growth industries which will become major exporters. Warehousing and distribution businesses have been identified as activities that the County should try to attract. Training Programs Work with local businesses to encourage the continuation of career preparation and employment orientation for area residents through ongoing training programs. Comprehensive Plan 9-12 Isle of Wight County, Virginia

215 Quality of Life Preservation Preserve and protect important aspects of the County's quality of life, such as public parks, quality secondary education, quality residential neighborhoods, environmental quality, and agriculture and open spaces. Inter-agency Cooperation The Board of Supervisors, Planning Commission, Board of Zoning Appeals, Department of Planning and Zoning, Office of Economic Development, and other County boards and agencies should work closely together to coordinate policies and activities relating to economic development. Better coordination and cooperation should increase efficiency and minimize potential policy conflicts. Business Recruitment Decisions concerning business relocation or expansion are made primarily by company executives. Local recruiters supply these individuals with information concerning the community, its people, the economy, local government and the taxing structure, proximity to markets, available sites and infrastructure, etc. The Isle of Wight Office of Economic Development has compiled all of this information and makes it available upon request. Business recruitment efforts should focus on those industries and businesses which will provide family-wage jobs and require skill levels commensurate with those existing in the County labor force. Recruit to fill Needs Focus recruitment efforts on industries and businesses which can provide needed supplies and services to existing businesses and thus replace the importation of such supplies and services. Marketing Continue to keep the County Office of Economic Development's marketing materials and information current so that businesses interested in the County can be supplied with up-to-date information for decision-making purposes. Economy Diversification Focus on recruiting businesses and industries which complement the strengths of the local economic base and also provide diversity to the local economy. Agency Cooperation Continue to work with the local Chamber of Commerce in a cooperative spirit in its efforts to attract new industry to Isle of Wight. Expansion of Existing Businesses Comprehensive Plan 9-13 Isle of Wight County, Virginia

216 Expansion of existing businesses is a major creator of jobs and investment in any community. The County should focus efforts to assist and support local business growth. The following implementation recommendations can be applied to these businesses. Export Markets Assist local businesses to locate new export markets. Import Reduction Encourage existing businesses to develop new products to reduce imports, and support the research and development programs of local businesses. Expansion Provide existing businesses with opportunities to expand, using available incentives for financing, provision of land and utilities, and other factors such as tax abatement and tax increment financing. Formation of New Businesses and Survival of Small Businesses In the past several years, the entrepreneur and small business person have been elevated to a prominent position in economic development policies at all levels of government. Small and new businesses tend to provide most of the employment growth in a community, and they tend to produce more innovations than large companies. New and small companies are often interested in growth and expansion, while existing large companies need to pay attention to maintaining their size and dominance in their respective markets. Small businesses are often faced with a more difficult or expensive process when obtaining the products, supplies, and information they need to survive and grow. Many start-up small businesses do not survive the first five years. The chances of them surviving and prospering are enhanced proportionally with the amount of assistance provided them. For these reasons, the promotion of new business formation and small business survival is a good place for the use of public resources and assistance. Promotion Encourage the formation of a Coordinating Committee to identify and promote the various small and new business programs available in Isle of Wight County, including Small Business Administration programs and loans. Public/Private Partnerships Coordinate public/private partnerships to establish incubator facilities for new and small businesses. This would help to reduce the need for start-up capital and expensive overhead costs which often prohibit many entrepreneurs. Small Business Assistance Help develop programs to assist small businesses with marketing of products and services. Roundtable seminars and conferences would provide small business entrepreneurs an opportunity to meet to discuss common problems and share solutions. Comprehensive Plan 9-14 Isle of Wight County, Virginia

217 New Business Assistance Assist local entrepreneurs to locate and acquire financing to start new businesses. Programs to match local entrepreneurs to venture capital sources and low interest loan programs should be instituted. Increase Capital Work with the local finance and banking community to increase the availability of seed and start-up capital for new and small businesses. Management Guidance Work through the Office of Economic Development to provide small and new businesses with the necessary management and marketing guidance to facilitate success. Agricultural Business Strategy Purchase of Agricultural Conservation Easements Program Maintain the program to encourage farmers to continue agricultural use of their property. The program provides a source of income for participating farmers. Assistance to Farmers Provide additional commercial by-right uses to be authorized for the rural economy. Encourage the leasing of unused farm acreage for agriculture and the maintenance and rehabilitation of farm labor housing. Initiatives for Increasing the Rural Economy Provide opportunities for agricultural biotechnology companies and encourage new businesses appropriate for location in a rural setting. Secure the Natural Resource Base of Rural Land Adopt additional agricultural by-right uses and remove unnecessary use-oriented impediments. Examples of this would be to allow conversion of old farm houses to Bed and Breakfast facilities and retail greenhouse operations on farms as permitted uses. Encourage the use of large lot subdivisions that include open space easements and strengthen the opportunities for cluster residential development. Summary Improving the quality of life for Isle of Wight County residents should be the overriding concern of the County's economic development program. Implicit to this concern is the premise that neither economic growth per se nor industrial development itself is always desirable. Rather, the improved welfare of County residents as measured by changes in unemployment, real incomes, standard of living, and environmental quality should be the ultimate goal of economic Comprehensive Plan 9-15 Isle of Wight County, Virginia

218 development efforts. Simple aggregate growth or industrial expansion is acceptable only when consistent with these goals and objectives. In order to maintain a high quality of life for County residents, commercial and industrial development should be reasonably encouraged due to its ability to generate revenue while having lesser impacts on County infrastructure and services than the impacts created by residential development. Comprehensive Plan 9-16 Isle of Wight County, Virginia

219 Chapter Ten Historic and Cultural Preservation History is an important part of Isle of Wight County s cultural heritage and it can be kept alive through education and preservation, both of which take many forms and vary in intensity. Museums and historic structures and sites of significant importance maintain a community s identity and are valuable resources deserving of special attention. Historic resources are also helping to invigorate local economies through tourism initiatives. By building a tourist economy based on historical exploration and education, local governments can find new ways of adapting old structures and sites while simultaneously improving and diversifying their regional economies. This is often called heritage tourism. For the purposes of a comprehensive plan, the past is a building block for the future, and it must incorporate the past as a key element for planning. Historic sites and structures honor the past and also can provide a place for leisure activities and public recreation. The County s restoration of historic Boykins Tavern in 2000, is an excellent example of adaptive reuse of historic structures. Another prime example of re-use is the establishment of the Isle of Wight County Museum in the nearly 100 year old building of the former Bank of Smithfield. Other examples of the adaptive re-use of historic structures include restoration of old homes as museums for the public or refurbished as offices serving a functional use. They also can be restored, so that they are comfortable homes of today. A number of public and private programs exist to help groups and individuals either temporarily or permanently protect historic resources considered significant. The continued preservation and enhancement of historic resources through sensitive land use planning and other administrative means ultimately provides Isle of Wight County with a number of benefits, which include: Promotion of a strong sense of community pride and tradition for County residents; Community revitalization through the renovation or adaptive reuse of historic sites and structures; Increased property values and tax revenues as a result of renovation and restoration; Increased revenues from heritage tourism; and Recognize and promote cultural and historic heritage of farming in the County. Background Information Isle of Wight County originally was occupied by the Warrosquoyacke Indians. Captain John Smith, during his early excursions into lands which would become Virginia, encountered the Warrosquoyacke Indians and they proved to be a friendly tribe. Amicable trade relations between the Indians and Smith set the stage for future relations with English-European immigrants in the early 17 th Century and trade between the two cultures flourished. The first permanent English settlement in Isle of Wight was established near the mouth of Lawne s Creek in The County was originally known as Warrosquoyacke, which was later changed to Isle of Wight in the mid-1600s, taking its name from an island off England s coast. Comprehensive Planning 10-1 Isle of Wight County, Virginia

220 As more Europeans moved to the new world in the late 17 th Century, relations eventually soured between the Warrosquoyacke Indians and the English. These strained relations lead to a massacre of colonists by the Indians in 1622 and again in Despite war, disease, and hardship, the colonists persevered in the new world and the area grew as a productive agricultural region. Eventually, Isle of Wight (Warrosquoyacke) would become one of the original eight shires of England s new Virginia colony. Isle of Wight's early agricultural economy was based on tobacco. Other traditional agricultural products include corn, peanuts, cotton, and timber, mainstays of the County's economy since its earliest foundations. Pork products, such as ham and bacon, also are historic sources of employment and production for the region, playing a major role in the County's economy to the present day. The original Warrosquoyacke Shire boundaries encompassed a larger area than Isle of Wight County s present boundaries. In the mid 1600's until the mid-1700s, Isle of Wight was involved in boundary disputes with the Nansemond Shire (the present City of Suffolk), Brunswick, and Southampton. As a consequence, much of the County s original land was lost. Some land governed by the County also was lost over the years through the incorporation of two towns: the Town of Smithfield, which was established in the mid-1600s and incorporated in 1752; and the Town of Windsor, which was incorporated in Historically significant structures and sites, such as the Pitt-Blackwell-Turner House and Homestead (the Goodrich House), represent landmarks that are important components of the County's unique character. Many historically significant structures and sites also have contributed greatly to the County s rich traditions and diversity, such as the Young House, which was home to a number of the County s Clerks who were responsible for saving records during both the Revolutionary War and the Civil War; Hardy's Mill, said to be the oldest grist mill on record in the County; Boykin s Tavern (restored in 2000) and Saint Luke's Church (the Old Brick Church), which is said to be the oldest existing Protestant church of gothic design in America. Other significant historic resources, such as Fort Boykin, have an illustrious past. It was established in 1622 for protection against the Spanish and the Powhatan/Warrosquoyacke Indians and was used in the American Revolution, the War of 1812, and the first year of the American Civil War. Fort Boykin was eventually abandoned in 1862 when its guns were outranged by Yankee gunboats. Historic resources such as Smith's Neck, (land which is the only known original land grant in Isle of Wight County) is today owned in part by direct descendants of the original patent grantee (Lloyd N. King, Jr. and Ollie S. King, III). Other significant historic structures include the Courthouse (1750), the Smithfield Inn and Tavern (1752), the Scott House, the Saunders House, the Purvis House, and Oak Crest. Many of Isle of Wight County s significant historic resources are listed in Table 10-1 and are geographically displayed on Map Map locations correspond to the numbers shown in Table 10-. These unique historic resources are significant components of the social and cultural fabric and community character of the County. At present, not all sites identified in the inventory have been surveyed to determine their historic significance. A number of these sites have no readily identifiable distinguishing features. Historic resources should be viewed as valuable economic commodities for making the County a viable tourist destination. These historic resources should be preserved if their qualities are to continue to influence the appearance, economy, social fabric, and quality of life in Isle of Wight County. Comprehensive Planning 10-2 Isle of Wight County, Virginia

221 Table 10-1 Isle of Wight Historic Sites & Structures Inventory 1. Ashburn House 28. Colonel Benjamin Chapman House 55. Gaol House* 2. Atkinson House 29. Connor House 56. Gibbs-Warren House 3. Archibald Atkinson House* 30. Cornwalis 57. The Glebe 4. Barber s Crossroads House 31. Dr. Merrit Cox House* 58. Gray House 5. Wentworth Barrett House* 32. William Crocker House 59. Great Mill (Baker s or Lee s Mill - site) 6. Barrett-Cowling House* 33. Crocker-Womble House 60. Green-Riddick House 7. Batten-Edwards House 34. Custom House 61. Grinnan House* 8. Bennett s Plantation (The Rocks - site) 35. Custom House (Todd) 62. The Grove* 9. Berry Hill (site) 36. Charles Henry Darden House 63. Hancock-Thomas House 10. Basse s Choice (site) NRHP 37. Thomas Darden House 64. Hardy s Mill (site) 11. Benn s Church (site) 38. Thomas Darden s Old Place 65. Hayden Hall* 12. Bethel Chapel (site) 39. Mill s Daughtrey House 66. Hill Street Baptist Church* 13. Thomas Blow House* 40. Day-Casey House 67. Mrs. Hillyer s House* 14. Bourne-Turner House 41. Day s Point (site) 68. Holleman House 15. Boykin Tavern NRHP 42. Benjamin Drew s Fireproof Storehouse* 69. Homestead (Goodrich House) 16. Brewer s Creek House 43. Duck House 70. Isle of Wight Courthouse* ( , site) 17. Britt-Simpson House* 44. Eason-Whitley House* 71. Isle of Wight Courthouse* ( site) 18. Broadwater Bridge 45. John Edwards House 72. Isle of Wight Courthouse* ( ) 19. Ned Bunkley House 46. Rowland Edwards House 73. Isle of Wight Courthouse* (1800- Present) 20. Burwell s Bay House 47. Eley House 74. Isle of Wight Courthouse Chapel (site) 21. Butler House 48. Elmwood 75. Mary Jackson House* 22. Carroll s Bridge (site) 49. Episcopal Church* 76. Jones House 23. Carroll s Shop 50. Folk House* 77. Charles Driver Jordan House 24. Gray Carroll House 51. Fort Boykin NRHP 78. Joseph Jordan House NRHP 25. Martin Castle House 52. Fort Huger (site) 79. Watson P. Jordan House* 26. Cedar Acres 53. Four Square NRHP 80. Joyner-Jordan House 27. Charles Chapman House 54. Gaming House* 81. King of All Places Note: * means historic sites/structures are located in the Smithfield Historic District; NRHP means historic sites/structures are listed on the National Register of Historic Places. Source: Isle of Wight County Formally Called Warrosquoyacke by Helen Haverty King, Comprehensive Planning 10-3 Isle of Wight County, Virginia

222 Isle of Wight Historic Sites & Structures Inventory 82. Latimer House 103. Henry Pruden House 124. Long Nancy Tynes House 83. Lawne s Creek Settlement (site) 104. Purcell s Bridge 125. Valentine House* 84. Locust Grove 105. Purvis House NRHP 126. Vaughan House 85. Macclesfield (site) 106. Randolph House 127. William H. Vaughan House 86. Marshall-Edwards House 107. St. Luke s Church (Old Brick Church) Historic District NRHP 128. Washington House 87. Mill Swamp Church (site) 108. Sandy Ridge 129. Joseph B. Whitehead 88. Monnefield 109. Henry Saunder s House NRHP 130. Wombwall 89. Mt. Holly Factory 110. Scott House NRHP 131. Samuel Woodley House 90. Oak Grove Academy* 111. Scott s Factory (site) 132. Willis H. Woodley House 91. Oakcrest NRHP 112. Shoal Bay (site) 133. Willis House* 92. Oakwood Square 113. Sinclair House* 134. Wilson-Morrison House* 93. Old Atkinson House* 114. Six Oaks 135. Windsor Castle*NRHP 94. Old Bay Church (site) 115. Smelly-Denson House 136. White House 95. Old Brickhouse (Whitehead)* 116. Smith s Neck (site) 137. White-Jordan House 96. Person House 117. Smithfield Academy* 138. White Marsh House (site) 97. Pierceville House* 118. Smithfield Inn* 139. Jack Whitehead House 98. Pitt-Blackwell-Turner House 119. Storehouse* 140. Wolftrap NRHP 99. Pollard s House 120. Stott House 141. Charles Wrenn s Old Place 100. Pons House (James H.L. Cofer) 121. Strawberry Plains (site) 142. Wrenn s Mill 101. Proctor s Bridge 122. Todd House* 143. Young House 102. Pruden (Burnet Mill) 123. Tynes House 144. Smithfield Historic District 145. Comet School 146. School House Museum Note: * means historic sites/structures are located in the Smithfield Historic District; NRHP means historic sites/structures are listed on the National Register of Historic Places. Source: Isle of Wight County Formally Called Warrosquoyacke by Helen Haverty King, The Archaeological Assessment of Isle of Wight In 2005, the County completed an archaeological assessment which included the Towns of Smithfield and Windsor. The assessment document serves as a planning document for making landuse decisions and planning for survey, evaluation and treatment of archaeological resources. The assessment created an inventory of historic structures and sites through the County. The assessment included the creation of several County-wide maps two of which will specifically be used as planning tools. The first map, considered highly sensitive due to the data exhibited, gives exact location information of known historic structures and archaeological sites listed in the inventory. The information on this map will be utilized by only the County for the purpose of ensuring proposed development will not Comprehensive Planning 10-4 Isle of Wight County, Virginia

223 interfere with or destroy identified historic sites. The second key map indicates the areas of archaeological sensitivity. The assessment report describes each of the three levels of sensitivity. A summary of each is included below: High-sensitivity areas occur within 1.9 miles of the James River and within 1.2 miles of the Blackwater River, where natural ground surfaces are sloped less than 10%, and outside of permanently waterlogged soils such as tidal marshes. Ultra-sensitive zones occur where high-sensitivity areas fall within areas of anticipated development. Moderate-sensitivity areas exist elsewhere in the county where natural ground surfaces are more sloped, outside of permanently water-logged soils such as tidal marshes, and where there has not been any significant amount of landscaping for development. Low-sensitivity areas are those locations that either occur in permanently waterlogged soils such as tidal marshes, and/or have been significantly altered by landscaping for development. The higher the sensitivity of an area the higher the probability of finding an archaeological site. Specific steps must be taken to protect possible archaeological sites in moderate-and high-sensitivity areas. The Zoning Ordinance combined with the data found in the Archaeological Assessment, increases the protection of historic and cultural structures and sites. The Zoning Ordinance requires that prior to rezoning or development of property located in a moderate or high-sensitivity area, a Phase IA Historic and Archeological Study in accordance with and under the discretion of the Virginia Department of Historic Resource shall be conducted. The study will determine if further investigation is required. Complete details of these requirements can be found in the Zoning Ordinance. Issues Isle of Wight County, Virginia has made significant strides in protecting its cultural and historical legacy. In 1982, the County's first Historic District St. Luke's was designated. The second district, Isle of Wight Courthouse, was designated as a Historic District in With the revision of the Zoning Ordinance in 2005, the St. Luke s Historic District was expanded to encompass additional preservation area and the Fort Boykins and Fort Huger Historic Districts were created. Even though much has been done in the County to preserve these important historic sites and structures, many opportunities exist to further protect County historic and heritage resources. This is apparent from the report created as part of the Archaeological Assessment for the County. The report gives information and an inventory for historic structures and archaeological sites within the County. Comprehensive Planning 10-5 Isle of Wight County, Virginia

224 Historic and Cultural Preservation Goals and Objectives Isle of Wight County is the home to numerous historically significant sites and structures, some of which are protected, others only acknowledged as being significant, and many of which are yet to be noted as significant. By preserving the County's heritage, County residents keep their strong community foundation. GOAL: To preserve and enhance the County's rich cultural and historical legacy and its heritage resources. Objectives Maintain the County inventory of historic sites and note those that may have greater significance as well as sites which may have potential archeological significance to maintain the integrity of those areas of the County. Maintain and enhance mechanisms for the preservation or protection of significant and important historic sites, properties, and structures. Increase awareness of and knowledge about Isle of Wight County s historic resources and how they may be preserved. Foster active rehabilitation of historic structures. Provide opportunities for public and County resident interaction with historic and cultural influences to enhance their appreciation of these qualities of County life. Preserve the historical and cultural heritage, contributions, and interests manifested by Isle of Wight s diverse and various groups. Examine opportunities to develop a Heritage Management Plan that identifies the County s core heritage themes and utilizes resources to provide economic benefits through tourism while enhancing the range and quality of County recreational offerings. Consider the establishment of an historic park site to collectively relocate endangered historic structures for preservation and tourism. Consider increasing the current number of Historic Markers funded annually by the County. Evaluate the need to expand the IOW County Museum to increase exhibit display. Preserve and display the County s way of life in a natural setting by establishing a satellite museum in the southern portion of the County. Comprehensive Planning 10-6 Isle of Wight County, Virginia

225 Promote the Virginia Century Farm Program as a way to preserve the cultural and historic aspects of agriculture in the County. Implementation Many historians have long believed that the old is to be appreciated for its beauty and its continuing usefulness, and should be made whole and fresh; the new should fit gracefully into the existing environment. The following strategies are designed to facilitate achieving the Plan goal of preserving and enhancing the County's rich cultural and historic heritage: Inventory Maintain the County s inventory of historic sites and identify opportunities to encourage the creation of additional historic districts. The inventory notes those sites that have greater significance and need for County protection as well as sites which may have potential archeological significance to maintain the integrity of those areas of the County. The inventory should be utilized to alert planners of historic sites in or near proposed developments. Studies should be required to determine and prioritize all properties that could be zoned as Historic Districts. The state s Cost Share Program will assist local governments in the inventory process. Historically Significant Open Space Locate open spaces in developments, urban revitalization projects, and parks to include historical resources. Adaptive Re-Use Promote the adaptive reuse of historic structures for public and private uses including, but not limited to, Bed and Breakfast establishments, gift shops, museums, and studio space for artisans, when such uses minimize exterior structural alteration. Foster active rehabilitation of historic structures by revising County ordinances and regulations that impede the adaptive re-use of historic structures and historic grounds. Encourage re-use of historic grounds as locations for nature study and environmental interpretation. Support Owners Encourage, through the use of various incentives, the preservation of historic structures by property owners. Include local tax incentives for major structural or exterior renovation or the donation of protective historic easements. Local Historic Districts Encourage the establishment of additional local historic districts throughout the County. Include tax incentives and recognition through the awarding of plaques. Nominate qualified County-owned buildings and structures for the National Register of Historic Places and locally designate them as Isle of Wight County Historic Districts. Create historic districts for the Saunder s House and the Scott House. Comprehensive Planning 10-7 Isle of Wight County, Virginia

226 Enhance Route 10 Scenic Road The Route 10 corridor from Smithfield to Surry County was designated a scenic highway. The County, in cooperation with the State, should evaluate opportunities to protect viewsheds and enhance views or develop gateways along the corridor to protect and enhance its scenic qualities. Public Awareness Continue to publish and distribute County guides, rack brochures, and interpretive information that promote recognition, visitation and protection of historic resources. Provide information to the public about local, state, and federal incentives for historic preservation. Provide funding for placement of historic highway markers. Tourism Support and assist in the creation and promotion of a heritage tourism initiative in Isle of Wight County to further enhance the regional economy and attract investment. Historic themes related to Native American culture, early settlement in the County, and the County s history related to the James River represent 3 potential theme areas that might serve as a basis for heritage tourism promotion efforts. This initiative might be undertaken in conjunction with neighboring jurisdictions where similar resources related to a theme are present. In the near term, the County could work with other counties and cities in the region to financially support southern Hampton Roads tourism as a whole and to celebrate Jamestown Tourism represents a broad economic focus for the whole community. By promoting the history of the area, tourism serves as a hospitality referral industry, which in turn enhances the regional economy. The County Tourism department markets to the group-tour industry by developing packages and itineraries, which include neighboring jurisdictions. The County also works closely with the Virginia Tourism Corporation in following their guidelines for Visitor Center operations and for cooperative marketing efforts. The County features three sites, which are among the 200 Civil War interpreted sites along the Virginia Civil War Trail. The Tourism Department, working with Williamsburg, Newport News, and Portsmouth, brings Familiarization Tours to the County for groups interested in historic destinations. Further refining the heritage tourism story of the county and development of interpretive facilities is a logical next step in developing the County tourism industry. Support Organizations Support efforts of preservation and cultural organizations in the County. Encourage open communications and unity of purpose among those organizations. Support local museums to provide more opportunities for historic and cultural interpretation. Assist in maintenance of historic cemeteries like Shoals Bay Cemetery (Hwy 10/Wrenn s Mill Road). Education Encourage school system and community wide participation in an historical resources management program through education and public awareness. Coordinate efforts with the Board of Education to get local schools involved in teaching Isle of Wight County local history as part of the school curriculum. Comprehensive Planning 10-8 Isle of Wight County, Virginia

227 Awareness of Existing Tools Support educational efforts by promoting awareness of existing tools, such as increasing access to and knowledge of the various programs for historic preservation as well as preservation publications by the DHR and the National Trust for Historic Preservation. Review Development Proposals Review development proposals which may adversely affect historic resources when granting permits for development or other forms of land alteration, such as grading and mining. Negotiate mitigation measures where possible to reduce impact. Create a procedure to assist these efforts by providing current information on the location of historic properties to County departments, such as Planning and Zoning, Tourism, Parks and Recreation, Public Works, Board of Education, and other designated departments, boards, and/or commissions. Ensure Compatibility Provide architectural guidelines for new development in Historic districts to ensure compatibility with existing historic structures. Support Archaeological Research Support archaeological research and encourage preservation of historic or archeological resources and artifacts. Certified Local Government The County will continue efforts to become a Certified Local Government (CLG). This is a program in which communities, such as Isle of Wight County, strive to strengthen and expand their local historic preservation programs. The program is administered by the National Park Service through the Virginia Department of Historic Resources (DHR). The program has three goals: Promote viable communities through preservation Recognize and reward communities with sound local preservation programs Establish credentials of quality for local preservation programs The benefits of being designated as a CLG include continued technical assistance from DHR and the National Park Service and eligibility for matching grants to apply to preservation projects. The County has completed two steps toward becoming a CLG. The first is the completion of the archaeological assessment for the entire County in This assessment included an inventory of historic and archaeological sites along with maps that indicate location of these sites. Second, is the inclusion of strengthened standards for the Historic Districts within the Zoning Ordinance recently revised in Comprehensive Planning 10-9 Isle of Wight County, Virginia

228 Historical Resources Division Continue efforts to establish a County Department of Historic Resources. Isle of Wight County is rich in historic assets. Currently, different levels of operation and management of these resources are divided among a number of County departments. The establishment of this new department will place effective management of the County s historic resources under a single County entity. The first step toward this goal was completed when the County hired a Historic Resources Manager in Architectural Survey Continue the process to complete a survey of architectural resources. The survey will serve as a planning document for making land-use decisions and planning for future survey, evaluations and treatment of architectural resources. Federal and State Programs Utilize federal and state programs, such as the National Register of Historic Places, which provide incentives to foster protection or restoration of structures. Cooperate with Virginia s Certified Local Government (CLG) Program for the protection of historic resources and designate priority historic resources for targeted action under the state s Threatened Sites program to assist preservation and protection efforts. Virginia s Department of Historic Resources (DHR) administers state programs for historic preservation and assists local governments to access federal programs for both financial and technical assistance. The DHR produces annual and quarterly publications, which cover new trends in the field and programs to assist property owners. A number of existing federal and state programs are available to assist local governments. These programs provide assistance in protection or preservation, offer tax benefits, and supply professional historical and architectural consulting. Programs include: Federal Programs National Register of Historic Places: The National Register of Historic Places, administered by the National Park Service, is the federal government s official catalogue of objects, buildings, structures, sites, and districts that have significance in American history, architecture, archeology, engineering, and culture. The National Register assists state and local governments, as well as local communities, municipalities, and individual property owners to protect historic structures and sites. Having a property placed on the National Register of Historic Places enables owners to acquire financial benefits and technical assistance for restoration and rehabilitation projects. In order to be considered, a property must be nominated by a State Historic Preservation Officer (SHPO). However, private individuals and organizations often begin the process and document preparation that accompanies nomination. Communities with Certified Local Historic Preservation Programs, (programs developed and approved in conjunction with the State Historic Preservation Office) are called Certified Local Governments (CLGs). CLGs may make recommendations to the SHPO on the eligibility of properties located within their locality. In general, to qualify for listing on the National Register, a property should be at least fifty years old and should possess historic significance in one of the following four recognized aspects of American history: Comprehensive Planning Isle of Wight County, Virginia

229 association with historic events or activities; association with important persons; distinctive design or physical characteristics; or potential to provide important information about prehistory or history. National Historic Landmark: A property being nominated to the National Register may be eligible for National Historic Landmark status as well. A National Historic Landmark is a district, site, building, structure, or object designated by the Secretary of the Interior as having national significance in American history, architecture, archeology, engineering and culture. Because of the larger context of significance, eligibility for National Landmark status is based on a more stringent set of criteria than required for National Register listing (criteria are listed in the Code of Federal Regulations, Title 36, Part 65). Official federal recognition of a property s national significance comes with its designation as a National Historic Landmark by the Secretary of the Interior, a National Monument by the President of the United States, or as a part of the National Park System by the U.S. Congress (National Register Bulletin 15). Federal Rehabilitation Tax Credits: Federal tax credits are income tax credits, which are useful in the restoration of historic properties and help mitigate costs. Tax credits enable property owners of income-producing certified historic structures to acquire financial assistance. Structures must be certified on the National Register of Historic Places or marked as contributing within a designated historic district to be considered as a certified historic structure. Credit amounts cover 20% of associated restoration/rehabilitation costs but work performed must follow the Secretary of the Interior s Standards for Rehabilitation. The National Trust for Historic Preservation Grant and Loan Programs: The National Trust administers various loan and grant programs such as the National Preservation Loan Fund and the Preservation Services Fund. The former provides below-market rate loans to non-profit organizations and government agencies for the acquisition and rehabilitation of historic properties. The Preservation Services Fund provides matching grants to non-profit organizations, universities, and various public agencies for preservation projects. In addition, the Johanna Favrot Fund, administered by the National Trust, offers grants ranging from $2,000-$25,000 to non-profit organizations, government agencies, profit generating businesses, and individual projects that may contribute to preservation efforts. Specific Federal Programs: Many federal agencies are involved in historic preservation initiatives. Among these agencies are the National Park Service, the United States Army Corps of Engineers, the Environmental Protection Agency, and the U.S. Fish and Wildlife Service. Below is a list of specific federal programs that are associated with historic preservation: Historic Preservation Fund Grants-In-Aid: administered by the National Park Service, Department of the Interior. Technical Preservation Services: administered by the National Park Service, Department of the Interior. National Center for Preservation Technology and Training: administered by the National Park Service, Department of the Interior. National Historic Landmark: administered by the National Park Service, Department of the Interior. Comprehensive Planning Isle of Wight County, Virginia

230 National Natural Landmarks Program: administered by the National Park Service, Department of the Interior. Rivers, Trails, and Conservation Assistance: administered by the National Park Service, Department of the Interior. National Maritime Heritage Grants: administered by the National Park Service, Department of the Interior. Federal Transit Formula Grants: administered by the Federal Transit Administration, Department of Transportation. Promotion of the Humanities Federal/State Partnership: National Endowment for the Humanities, the National Foundation of the Arts and Humanities. Promotion of the Arts Leadership Initiatives: National Endowment for the Humanities, the National Foundation of the Arts and Humanities. Promotion of the Arts Grants to Organizations and Individuals: National Endowment for the Humanities, the National Foundation of the Arts and Humanities. Conservation Project Support: administered by the Office of Museum Services, Institute of Museum Library Services, and the National Foundation of the Arts and Humanities. Institute of Museum and Library Services: administered by the Office of Museum Services, Institute of Museum Library Services, and the National Foundation of the Arts and Humanities. Museum Assessment Program: administered by the Office of Museum Services, Institute of Museum Library Services, and the National Foundation of the Arts and Humanities. Museum Leadership Initiatives: administered by the Office of Museum Services, Institute of Museum Library Services, and the National Foundation of the Arts and Humanities. Professional Services Program: administered by the Office of Museum Services, Institute of Museum Library Services, and the National Foundation of the Arts and Humanities. Transportation Equity Act for the 21 st Century (TEA-21) Grants: administered by the Virginia Department of Transportation and the benefiting locality. Virginia Programs Heritage Tourism Program: Heritage tourism already is an important component of Virginia s state economy and its fullest development can be seen in places such as Williamsburg. Developing a heritage tourism program starts with protecting and preserving historical sites and structures. Heritage tourism seeks to build a regional economy based on public/private investment in historic resources and the interpretation of history. It also seeks to educate residents and visitors on the importance of historic preservation. At present, the DHR administers a heritage tourism program to assist local governments in creating a market for their county or region. Historic Preservation Tax Credit Program: Administered by the DHR, the State of Virginia established a tax credit program in 1996 to assist property owners to restore and rehabilitate their historic structures and/or sites (funding assistance varies). Many other federal and state grant programs can be accessed through the DHR. Historic Highway Marker Program: Virginia s Historic Highway Marker Program was started in 1926 to educate the motoring public on the state s rich history. At present, historical markers must Comprehensive Planning Isle of Wight County, Virginia

231 be of state or national significance to receive funding assistance, but legislation also empowers local governments to establish and develop their own historic marker program. Transportation Enhancement Program: Funded by TEA-21 grants and administered by VDOT. The program funds acquisition of historic sites, historic highway programs, historic preservation projects, control and removal of outdoor advertising and archaeological planning and research. The foremost criterion of this grant is for the project to have a connection to transportation history or provide transportation or transportation related facilities. Cost Share Program: Virginia s Cost Share Program assists local governments in the inventory of historic resources. The program also assists local governments to evaluate historic resources during the planning process and educate the public on the importance of their preservation. Planning for the future through comprehensive planning and code provisions enables local governments to more effectively protect valuable historic resources. Certified Local Government Program (CLG): The CLG program assists local governments to improve stewardship programs. It also assists local governments to participate in national preservation programs. In this capacity the DHR acts as the state s Historic Preservation Officer as outlined in the National Historic Preservation Act of 1966, as amended. Technical and financial assistance are available provided a local government has adopted a historic district ordinance that meets state standards. Conservation and Preservation Easements: Historic conservation and preservation easements are a public/private partnership to provide permanent protection to historic sites and structures of state and national significance (sites and structures eligible for listing on Virginia s Landmark Register). Easements currently are held on 200 properties. Confederate Cemetery Grants: Confederate Cemetery Grants provide assistance to maintain and protect the grave sites of Confederate soldiers. Financial assistance is provided to Confederate memorial organizations and cemetery associations at the beginning of each fiscal year. Threatened Sites: Since 1985, the DHR has administered a program to rescue threatened archeological sites in Virginia. Funding assistance is based on whether the site is considered of state or national significance. Evaluations of site eligibility are conducted by the DHR and the Threatened Sites Committee. Summary Isle of Wight County has a past rich in local, state, and national history, from the time of the first settlers to the present. Established as one of the eight original shires in Virginia, Isle of Wight enhanced the growth of the colony and subsequently experienced the founding of America. Efforts already exist to preserve this history for future generations. By supporting existing projects, educating residents, and continuing to expand rehabilitation and preservation efforts, County residents will have a heritage that they can give to their children and which can offer long term economic benefits through tourism. Comprehensive Planning Isle of Wight County, Virginia

232 Chapter Eleven Community Character and Design This chapter addresses the many aspects of development design that are important to Isle of Wight County. Development design can be generally defined as the management of the visual and physical development of the built environment. Primary emphasis is placed on the preservation of the County's rural character. The intention is to respond to growing public concern about the increasing transformation of Isle of Wight's traditional rural landscape to sprawling suburban residential and strip commercial development similar in nature to the land use pattern ringing most of the metropolitan centers throughout the Hampton Roads region and the nation. If measures are not taken, Isle of Wight could become conventionally suburban, with only vestiges of the traditional rural landscape, compact village centers, scattered farms, open fields and forests lingering on to remind us of what we have lost. Managing development design to maintain and enhance the rural character and aesthetics of the County is an important component of Isle of Wight's Comprehensive Plan. Application of development design standards is appropriate anywhere human features are present, and where the physical and visual properties of development can significantly influence the character of the County's rural and suburban areas. Design is particularly important in the form and function of designated plan activity centers, since the greatest amount of future development is expected to occur within these centers. Development design guidance, or the lack thereof, significantly affects real estate values, community pride, a sense of obligation to private property, personal enjoyment and satisfaction, and the overall investment climate in Isle of Wight County. The following goals and objectives, supported by recommended design guidelines recommend use of a number of measures which taken together are designed to enhance the quality of the man-made environment in the County. Community Character Goal and Objectives Goal: To integrate existing and future development forms in a cohesive manner that creates distinct and attractive built environments with a sense of community and neighborhood in appropriate locations and protects rural character in others. Objectives Specific objectives or design principles intended to support efforts to achieve this goal include: Promote design for the pedestrian scale, to create a sense of neighborhood in designated activity centers that support resident needs to live, work, play, and interact. Encourage development design that derives from its context and setting, respects the environment and complements the natural characteristics of the County. In designated activity centers, promote pedestrian friendly design through compact form, Comprehensive Plan 11-1 Isle of Wight County, Virginia

233 layout and development of walkable and attractive streetscapes. Foster transportation options and connectedness. Provide for adequate internal and peripheral open space in future developments. Encourage a mix of land uses while maintaining compatibility in design of structures. Encourage a mix of housing, jobs, and recreation for a variety of incomes in designated activity centers to foster balanced communities, reduce traffic and development costs, and to create better fiscal balance. Develop and promote the use of Development Design Guidelines for: o development in activity centers; o suburban areas within the development districts; o conservation development areas within development districts; and o rural areas of the County. Each of these areas should reflect distinct character and qualities. Guidelines for each of these areas should recommend and illustrate: o design characteristics to be encouraged in each area; and o lotting and building guidelines for building mass, proportion, style, facade treatment, materials, landscaping, streetscape detail, and architecture in each area. The Rural Landscape The rural landscape of Isle of Wight County can be identified as including a network of family farms and distinct village centers disbursed through a patchwork of cultivated fields, natural fringes, and significant forest areas as well as extensive waterfront acreage. Travel is mostly by narrow rural routes with naturalized drainage ditches and swales rather than curb and gutter. Traffic is often slowed behind large farm machinery. The Plan encourages development to focus away from existing rural areas and in the designated Development Service Districts and Village Centers, where County improvements can be concentrated to provide the most efficient use of funds and land area while maintaining the open field vistas and marsh/waterfront views enjoyed by most County residents. Within those areas of the County designated as Rural/Agricultural Conservation Districts, the Plan recognizes the rights of personal property owners and recommends continued use of zoning ordinance and subdivision regulation incentives for cluster development. Through the clustering approach for rural subdivisions, the developer is able to increase base densities and decrease lot sizes in return for setting aside 50 to 70 percent of the overall parcel as open space. The resultant open space would be permanently protected by conservation restrictions for future agricultural use, forestry, or simply community open space. This residential land development approach is specifically designed for rural areas, where local officials and residents are looking for options that involve little public expenditure, are easy to administer, allow full equity for land owners, and recognize the need for reasonable future development while minimizing impacts on existing local character. Comprehensive Plan 11-2 Isle of Wight County, Virginia

234 Villages Centers The Plan designates numerous Village Centers throughout the rural areas of Isle of Wight. These centers are established crossroad communities and villages which have traditionally served as focal points for the surrounding rural community. They play an important functional role in providing homes, limited neighborhood-oriented commercial services and businesses, and civic buildings such as churches, post offices, fire stations, etc. Many of the rural Village Centers throughout Isle of Wight contain historical structures which should be preserved through local historic district zoning. These Villages each have a unique rural character and provide a sense of place with which local residents easily identify. Development design standards for Village Centers help to preserve their rural ambience while still accommodating limited future growth in a responsible manner. The following are recommended development design guidelines for existing and future rural villages/community centers: Permit residential, small-scale commercial, and public/semipublic uses to coexist adjacent to one another as was done in traditional rural villages. Permit new development to match the existing setback patterns of the area to retain the existing character of the area. Place off-street parking lots only to the rear or side of buildings. Reduce the visual impacts of parking areas upon community character through landscaping and buffering requirements. Screen open storage areas, exposed machinery, and outdoor areas used for the storage and collection of rubbish from roads and surrounding land uses. Minimize removal of trees over five inches in diameter, especially along roadways. The need for removal of existing trees can usually be reduced by shifting the site of the building, parking lot, or entrance/exit drives. In addition, encourage planting of new trees along roads to reinforce rural character throughout the County. Control lighting in both height and intensity to maintain rural character. Shield light fixtures to prevent excessive lighting and glare beyond lot lines onto neighboring properties or public ways. Design and build new construction to blend with its surroundings. Make new construction in rural village/community centers compatible and consistent with surrounding buildings in terms of formal characteristics such as height, massing, roof shapes, and door and window proportions. Create signage standards for Village Centers that enhance their unique character. Signs Comprehensive Plan 11-3 Isle of Wight County, Virginia

235 in these areas should relate to pedestrians and to people in slow moving vehicles. High speed, auto-oriented signs are inconsistent with both the scale of existing buildings and the rural village character. Allow for the limited growth of existing Village Centers and provide for the development of additional mixed-use rural villages centers in appropriate rural locations throughout the County. Highway Corridors and Scenic Roadways Certain major highways and roadways throughout the County have been designated in the Plan as important corridors where access and aesthetics should be controlled in order to either avoid unappealing forms of commercial strip-development and resultant traffic congestion, or to preserve scenic rural views. Both of these objectives have great merit for the maintenance and improvement of rural character in Isle of Wight. These highways are: Benns Church Boulevard/Old Stage Highway/Route 10 Bypass (Route 10) Brewers Neck Boulevard (Route 258/32) Carrollton Boulevard (Route 17) Carrsville Highway (Route 58 Business) Courthouse Highway/Walters Highway (Route 258) Great Mill Highway (Route 260) Windsor Boulevard (Route 460) Along designated scenic routes, development should be limited and buffered from roadway view. Signage should also be limited to avoid detracting from rural vistas. Along major County highways such as Routes 17, 10, 32, 258, 460, and 58, limiting access is vital to preserving roadway capacity, decreasing congestion, and improving safety. Commercial development should not be stripped along the corridor, but rather concentrated into defined commercial nodes located at major road junctions. The large-scale and permanent loss of scenic views, characteristic landscapes, and open space is perhaps the most devastating visual result of conventionally regulated commercial highway development in rural areas. The tendency has been for zoning to encourage new development to line both sides of major roadways, eventually obscuring fields, pastures, or woodlands behind commercial frontage lots. This kind of homogenous development contributes greatly to the loss of rural character and community identity. When zoning highway commercial areas, the County should not succumb to pressures to designate all roadside areas along major routes for new commercial development, but should instead examine the rural landscape to identify the amenities and visual resources which are present. Rather than allowing linear developments, commercial zoning can break the standard pattern by designating commercial nodes in compact, centralized areas, with visually important landscapes protected in between. Commercial development, regardless of where it is located in the County, should also be subject to development appearance standards which ensure compatibility to surrounding land uses and promote a high quality built environment that complements the community character of Isle of Wight. This is particularly true for big box Comprehensive Plan 11-4 Isle of Wight County, Virginia

236 retail uses which, by virtue of large building mass and requisite large parking areas, can be visually intrusive in a rural landscape. Standards should be developed for big box retail facilities that require facade fenestration, modulation in building fronts, require large parking areas to be broken up into smaller ones and require landscaping in parking areas. Development Service District Design Guidelines All future development in the county, except for single-family homes and farm buildings, should be subject to design review for compliance with development design guidelines. Since the majority of future development in the County is targeted to occur within the Development Service Districts, the character of the County will be increasingly defined by the form and qualities of development that occur within these areas. The quality of development is therefore, a more important consideration in these areas than in any other locations within the County. The following design principles and guidelines are provided to assure the form, character and qualities of development, reinforce existing County qualities, and provide quality neighborhoods that support the needs of residents. They should serve as performance standards rather than inflexible and stringent criteria with the goal being to enhance community function and influence development aesthetics to protect and enhance real estate values, foster civic pride, and improve the overall investment climate within the County. These guidelines are not intended to restrict imagination or development creativity, but rather, to assist in focusing on development design principals which should result in enhancing the visual appearance of the built environment in Isle of Wight. The development design guidelines relate to such factors as: relationship of buildings to the site; relationship of existing buildings and site to adjoining areas; landscape and site treatment; lot size and orientation; block sizes and configuration; street system design; open space; building design for both residential and commercial development; signs; and, maintenance. These types of guidelines have proven not to be cost prohibitive or overly restrictive since they embody common sense design principles which were traditionally employed throughout the country prior to the advent of post-war suburbanization. Newport Development Service Overlay District A revised Zoning Ordinance, adopted in 2005, established the Newport Development Service Overlay (NDSO) District and the supplemental standards required for development within the district. The NDSO district applies to all development proposed within the Newport Development Service District. The purpose of the NDSO district is to establish a clear and consistent set of uniform design standards in order to preserve historical sites and the traditional architectural character of the Newport DSD. The design standards of the NDSO district simply require that new development be compatible with the established historic character, architectural forms, patterns and significance of the historic St. Luke s Church, which is within the district, and the nearby historic Town of Smithfield. The primary standards of the Newport Development Service Overlay District are outlined in the Zoning Ordinance and enumerate the standards of the district. These measures are: Comprehensive Plan 11-5 Isle of Wight County, Virginia

237 Minimum visual buffer along the rights-of-way of arterial highways. This establishes the requirement for a seventy (70) foot visual buffer between the right-of-way line and all proposed structures, vehicular movement and parking area. Access and internal circulation. This section focuses on traffic movement and set standards that minimizes the number of access points to arterials, promotes sharing of access and provides for vehicular, pedestrian and bicycle circulation networks. Development standards. Ensures the compatibility of site design of proposed development and visual harmony with natural land forms and protects the viewsheds from arterial highways within the district. Architectural Guidelines for Non-residential Uses. Ensures compatible and positive aspects on the visual experience from the arterial roadways within the district. Figure Site Design Observing Natural Land Forms Greater detail of the Newport Development Service Overlay District standards are found in the County s Zoning Ordinance. Activity Centers and Suburban Residential Development The following are recommended development design guidelines for locations within the development service district designated as Activity Centers or proposed for suburban residential development. The Community Context for Development Design The community context is the most important preliminary consideration in the development design process. It is here that the first steps are taken to design a framework for proposed new development that is sustainable, safe and stimulating. In designing a concept of a new residential neighborhood it is important to first identify the main local features, including landscape, views, Comprehensive Plan 11-6 Isle of Wight County, Virginia

238 movement patterns, and activity centers around which the neighborhood will be built to insure a sense of identity in the community. From this flows decisions about the major street network, open space, pedestrian and cycle paths. These linkages are important for creation of neighborhoods that are safe and convenient and connected to town which provides the context for the development. The relationship between demand and infrastructure capacity should also be considered at this stage. It may help the developer to understand Isle of Wight County s objectives for neighborhood design. First, the County wants residential areas that are in character with existing settlements. Look to the existing neighborhoods to get a sense for how new neighborhoods should look and feel. Residential neighborhoods should include focal points that give them special character and identity. The movement network should establish good internal and external access for residents, maximizes safety, and minimizes the impact of through traffic. Opportunities to develop street connections to adjacent neighborhoods should be considered and established when appropriate. Residential areas should be planned with the diverse needs of the community in mind and provide a wide choice in housing and associated public and commercial uses. A public space network which can meet the diverse needs of today's residents and be adapted to the needs of future users, should be an integral part of the design. Finally, design must take into account environmental constraints including Chesapeake Bay protection areas, wetlands, soil erosion and flooding. Within the community context, development design should proceed as follows: Analyze the site context and identify major site features. Determine significant external connections to and from the site. Evaluate major local movements in and out of the site. Determine appropriate street connections to facilitate local and external movement and identify major service connections. Determine the location and nature of features that will give neighborhood focus, identity and convenience (e.g., community facilities, open space areas). Provide neighborhood centers within 1/4 mile safe walking distance and local open space within a 1/8 mile radius. Establish the basic movement network, linking existing streets where necessary and ensuring good local connectivity. Convert the movement network to a street lay-out to incorporate legibility and traffic safety and to address environmental and town design issues. Comprehensive Plan 11-7 Isle of Wight County, Virginia

239 Determine broad distribution of lot sizes and housing types. The community context also includes public policy concerning development. Street System Design The following guidelines are designed to be utilized by the County in evaluating the layout and design of streets serving future residential and mixed-use developments. These guidelines also serve to guide the developer in conceptual planning for street systems. Street layout should be simple and have a logical pattern. The street layout should be a modified grid street pattern adapted to the topography and unique natural features of the site. Figure Block Network Illustration The use of cul-de-sacs and other roadways with a single point of access are discouraged. Street layout and termination points should take into consideration the location of neighborhood focus, internal open space areas, peripheral open space areas, gateways, and vistas. Figure Street Hierarchy System A minimum of two interconnections with the existing public street should be provided where possible. Street layout should present an attractive streetscape. Comprehensive Plan 11-8 Isle of Wight County, Virginia

240 Street layout should serve the needs of the neighborhood and discourage significant use by through traffic. Proposed new streets should provide for the appropriate extension of existing streets. No direct driveway access should be provided onto an existing or planned arterial street from a residential lot. Streets should be classified in a street hierarchy system with design tailored to function. Vehicles should be able to enter and exit from the lot in question without posing any substantial danger to themselves, pedestrians, or vehicles traveling on abutting streets, or interfere with the free and convenient flow of traffic on abutting or surrounding streets. Collector, local, and local-minor residential streets should connect with surrounding streets where necessary to permit the convenient movement of traffic between residential neighborhoods or to facilitate access to neighborhoods by emergency service vehicles. Street rights-of-way should be adequate to serve multiple functions, including motor vehicle traffic, bicycle and pedestrian traffic, and on-street parking where appropriate. Streets should be related appropriately to the topography and designed to facilitate site drainage and the appropriate design of storm water runoff facilities. Residential streets should be designed to manage the speed and volume of traffic in residential neighborhoods using "traffic calming" methods that encourage speeds of 25 mph or less. The design of residential streets should discourage motorists from traveling above the intended speed and reflect their function in the street network. In particular, horizontal and vertical alignment should not be conducive to excess speed. Limit leg lengths and provide slow points at the end of each leg. Slow points may be provided by a variety of mechanisms termed traffic calming techniques. Physical traffic calming devices include retrofitting streets with slow points, speed humps and speed bumps, chicanes (devices that cause a driver to move left/right as they travel along the street), and roundabouts (mini-roundabout that physically forces motorists to slow down to 10 to 15 MPH). More extreme examples are street closures or restricted access. Three simple techniques can prevent the need for retrofitting of traffic calming devices: o Planning for mixed-use developments that are serviced by a fine-grained road network of narrow streets; o Keep uninterrupted street length to less than 1/3 mile so that motorists will have no incentive to speed; and o Design the majority of roadways to utilize T intersections, or control 4-way Comprehensive Plan 11-9 Isle of Wight County, Virginia

241 intersections with roundabout-type features. Sidewalks, Bikeways, and Pathways Design The following guidelines are designed to be utilized by the Planning Commission in evaluating the lay-out and design of those components of development that make a walkable community. In addition to meeting the needs for safe pedestrian movement, guidelines for facilities to support cycling are also included in this section. A sidewalk network should be provided throughout the development that interconnects all dwelling units, non-residential uses, and open space. Sidewalks should be located parallel to the street, except where an alternative location permits protection of natural features or to provide visual interest. Sidewalks should be at least five feet in width and six feet in width along major pedestrian routes. Sidewalks in commercial areas should be ten to fifteen feet in width. Location and design of sidewalks should provide a pleasant route for users, promote enjoyment of the development, and encourage incidental social interaction among pedestrians. All sidewalks and other pedestrian walkways should have appropriate lighting, using poles and fixtures consistent with the overall design theme for the development. Lighting should be scaled to the pedestrian. The pedestrian circulation system should include gathering/sitting areas and provide benches, landscaping, waste receptacles and other street furniture where appropriate. Widening of paths should be provided at meeting points or junctions on high use facilities to allow for passing of pedestrians/cyclists. Pedestrian street crossings should be clearly delineated by a change in pavement color and/or texture. When applicable, the network of pedestrian and cycle paths should be in accordance with adopted state or county walking trail, greenway or bikeway plans. Pedestrian access from the residential areas should be provided to schools, parks, playgrounds, or other roads or facilities, including consideration for off-site pedestrian improvements if required. The alignment of paths should allow for safe and convenient use by pedestrians and cyclists, vary in alignment to preserve trees and other significant features, and focus on vistas and landmarks to add visual interest where possible. Comprehensive Plan Isle of Wight County, Virginia

242 Figure Bike crossing examples. Move heavily used bike crossings away from intersections whenever possible. A separate mid-block crossing improves bicycle flow and is generally more attractive. Narrowing of the street also slows traffic in the area of the bike crossing. Pathways should include a planting or buffer strip to separate pedestrians from the street and provide room for street light poles, pedestrian amenities, street trees, etc. Bikeways should be provided, where possible, to link internal open space areas with peripheral open space areas and continuing on route through peripheral open space areas. Bike racks should be provided in internal open space areas and recreation areas. Block Size and Configuration The following guidelines provide a framework for design of block configurations that encourage mixed uses and define geometrically shaped blocks that logically extend the form and pattern of activity centers. Streets should be designed in a grid pattern to create blocks that are generally either rectilinear in shape, or some modified rectilinear shape, or some other distinct geometric shape. Amorphously shaped blocks or streets ending in cul-de-sacs should be discouraged, except where topographic or parcel size and configuration necessitate an alternative. (See Illustration) Comprehensive Plan Isle of Wight County, Virginia

243 To the extent possible blocks, should be designed to have a maximum length of 600 feet and a minimum length of 300 feet. Lanes or alleys shall be permitted to bisect blocks and shall be encouraged in larger blocks to facilitate access to accessory structures. Figure Building Setback Issues. Buildings which do not retain the street front setback can negatively affect the sense of the street as a space or room. Each block should be designed to establish a build-to line which should establish the front yard setback for the lots on the block. The build-to line should fall between the minimum and maximum front yard setbacks for the district and/or proposed uses as defined in the Zoning Ordinance. Figure Build-to Line Illustration A minimum of 80% of all buildings on the block should conform to the build-to line, with the remaining 20 % allowed to vary by being further setback no greater than 75% of the distance from the right-of-way to the build-to line for residential uses or no further than the maximum setback for commercial uses. Buildings should be allowed to come forward of the build-to line by no greater than 25% of the distance between the right-ofway and the build-to line for residential structures. Guidelines for Lot Size and Orientation The following guidelines are designed to be utilized by the County in evaluating residential lot and unit lay-out. These guidelines also serve to guide the developer in conceptual planning for lot layout and configuration in new developments. Lot sizes should be arranged to suit a variety of dwelling and household types, with area and dimensions that meet the needs of users. Lots should be oriented to enable microclimate management, including application of Comprehensive Plan Isle of Wight County, Virginia

244 energy conservation principles. Lot area and dimensions should be sufficient to protect environmental features and take into account environmental constraints. Lots should be arranged in a manner that enhances personal and property safety and security Figure Lot Width Variations. Vary lot widths to maximize solar access for different lot locations. Lots should front on residential access or sub-collector streets, not on collector or arterial streets or roads. Lots should have sufficient access for emergency vehicles, as well as for those needing access to the property for its intended use. Lot areas and lot widths should vary at random to the greatest extent possible, in order to eliminate the appearance of a standardized subdivision. To the extent possible, no more than two lots in a row should have the same width. Lots widths should vary by a minimum of five foot increments. A maximum of five percent of all lots for single family detached dwellings may be flag lots. (See illustration 5A) Individual lots, buildings, and units should be arranged and situated to relate to surrounding properties, to improve the view from buildings, to reduce the area devoted to motor vehicle access, and to facilitate pedestrian and visual access to common open space. Lots, buildings, units, and parking areas should be situated to avoid the adverse effects of shadows, noise, and traffic on the residents of the site. Lot proportions should be approximately 2.5 to 1 for lot widths of 60 feet or greater with the lesser dimension fronting on the street. (See illustration 5B) Lot areas and minimum building setback lines meet the minimum standards required by the Zoning Ordinance. Comprehensive Plan Isle of Wight County, Virginia

245 Figure Flag Lot Illustration Figure Recommend Lot Proportions Design Guidelines for Open Space Guidelines for open space are designed to insure the amount and distribution of open space is adequate to meet the civic and recreation needs of residents. A minimum of 30% of the gross site area subject to neighborhood development should be allocated to and remain dedicated to common open space in perpetuity. Common open space should be provided in the form of internal open space and peripheral open space. Common open space should be designed and located to support social, recreational, and/or natural environment preservation purposes or uses. Each of these uses should be appropriate to the character of the common open space provided as well as the character of the development, including its size, density, and characteristics of the expected population. Comprehensive Plan Isle of Wight County, Virginia

246 Figure Recommended Common Open Space Design. Common open space should be provided in the form of internal open space and peripheral open space. Common open space should be deed restricted to prohibit future development or subdivision, except that agricultural, recreational, golf course, equestrian and cemetery uses may be permitted. Internal open spaces should contain a minimum area of 500 square feet and should be of a distinct geometric shape, generally rectilinear or square, bounded by streets with curb side parking on a minimum of 50% of its perimeter. I Figure Internal Open Space. Internal open spaces should contain a minimum area of 500 square feet. Internal open spaces should be defined by buildings fronting on the area or fronting on the streets abutting the area. Internal open spaces should be landscaped such that a minimum of 80% of the area is covered with trees, shrubs, lawn and groundcover. The type of trees and shrubs should be such that vistas through the internal open space are largely unobstructed. Landscaping should utilize elements such as formal gardens, walkways, monuments, statues, gazebos, fountains, park benches and pedestrian-scale lamp posts. Comprehensive Plan Isle of Wight County, Virginia

247 Internal open spaces should be designed as village commons, town squares, or urban park and should be designed as an active gathering place for all residents of the development in both day and evening, and should include places for strolling, sitting, social interaction, and informal recreation. Each neighborhood development which includes 50 or more residential units should be designed to include one primary internal open space which shall be considered the community green. The community green shall have a minimum area of 10,000 square feet and the size, shape and design of the green shall provide adequate space for concerts, outdoor exhibits and community gatherings based on the number of residents expected in the development. If the development includes a commercial area the community green should either front upon the commercial area, the commercial area should terminate at the community green, or the commercial area and the green shall otherwise be incorporated into a combined community focus for the development. The community green should be centrally located to be within 1,500 feet of 90 % of all dwelling units in the development as measured by a radius drawn from the outermost boundary of the community green. Figure Community Green Illustration. Unless peripheral open space areas abutting Route 10 or Route 17 contain existing mature trees and vegetation, such areas shall be densely planted with a mixture of indigenous species trees to achieve a year round visually impervious buffer within five years. Guidelines for Neighborhood Design and Streetscape These guidelines are based on Traditional Neighborhood Development (TND) design guidelines and are meant to reinforce and define the streetscape to foster certain community qualities. These may include use of structures to define gateways, provide a sense of enclosure to create a more pedestrian-friendly environment, or provide amenities for users, including landscaping, lighting, street trees and street furniture. These guidelines also serve to provide direction to the developer in conceptual planning and design of the neighborhood to assure the streetscape and components of neighborhood design generally support the achievement of County design objectives. Comprehensive Plan Isle of Wight County, Virginia

248 Figure Traditional Neighborhood Design (TND) Concepts. Buildings should define the streetscape through the use of uniform setbacks along the build-to line for each block. The build-to line should be generally continued across side yard setback areas between buildings through the use of landscaping. The streetscape should also be reinforced by lines of closely planted shade trees, and may be further reinforced by walls, hedges, or fences which define front yards. Buildings located at gateways entering a planned residential development should mark the transition into and out of the neighborhood or development in a distinct fashion using massing, contrasting materials, additional building height and/or architectural embellishments to achieve this affect. Buildings located at gateways to a community green or commercial area should mark the transition to such areas in a similar manner. Focal points or points of visual termination should generally be occupied by more prominent, monumental buildings and structures that employ distinctive architectural features, massing, additional height or contrasting materials. Buildings should be located to front towards and relate to public streets, both functionally and visually, to the greatest extent possible. Buildings should not be oriented toward a parking lot. Exterior public and semi-public spaces, such as courtyards or plazas should function to enhance surrounding buildings and provide amenities for users. Courtyards should have recognizable edges defined on at least three sides by buildings, walls, elements of landscaping and/or elements of street furniture, in order to create a strong sense of enclosure. Comprehensive Plan Isle of Wight County, Virginia

249 Figure Public and Semi-Public Open Space Illustration. The location and design of garages, carports and parked cars should minimize detriment to the streetscape and should not dominate the view of the dwelling from the street. The principles of Crime Prevention through Environmental Design (CPTED) should be utilized to maintain personal security and surveillance in parking areas. Walls and fences should be architecturally compatible with the style, materials, and colors of the principal building on the same lot. Stone walls or brick walls with a cap are encouraged. Wood fences, decorative metal, or cast iron fences should be encouraged. Solid wooden fences should be permitted in rear and side yards only. Chain link fencing should be discouraged. Landscape Guidelines A number of landscape elements, particularly shade trees, do much to reinforce the character of development and moderate the climate for its residents. The following guidelines are provided to encourage landscape treatment(s) in future developments within the County that accomplish these objectives. Extensive landscaping should be required in accordance with a landscape plan conceived for each development. All areas of a site not occupied by streets, buildings, parking lots, sidewalks and other improvements should be intensively planted with trees, shrubs, hedges, ground cover, and/or grasses. Both perennials and annuals should be encouraged. Landscape treatment should be provided to enhance architectural features, strengthen vistas and provide shade. Landscape materials should be hardy species that are adaptable to site conditions, easily maintained, and drought tolerant. Use of native or indigenous plants should be strongly encouraged and use of identified invasive species should be prohibited. Landscaping should be integrated with other functional and ornamental design elements such as recreational facilities, paths and walkways, fountains, trellises, gazebos, fences, Comprehensive Plan Isle of Wight County, Virginia

250 walls, art and sculpture. Plantings toward the street should respect the integrity of the street by not obscuring important buildings and respecting views to and from streets, porches, walks, and public open spaces. Maximum effort should be made in the area in which development will occur to save fine or mature specimens of significant size or relative rarity. No material or temporary soil deposits should be placed within four feet of shrubs or within the drip line of trees designated to be retained. Self-supporting protective barriers or tree wells should be installed around each plant and/or plant grouping that is to be retained. Barriers should be constructed of a durable material that will last through the period of construction. Parking lot landscaping plans should be developed to provide safe, attractive sites with appropriate screening for the location and clear pedestrian circulation paths with shade and crossing areas. Parking areas serving commercial uses should be landscaped to screen parking areas from adjacent residential use. Open stormwater detention facilities should be incorporated into project landscaping plans. Landscaping plans should be prepared by a certified professional in the field of landscape architecture. Figure Property Line Landscaping Illustration Commercial Development Design Guidelines The following guidelines are designed to be utilized by the Planning Commission in evaluating commercial site and building design and lay-out. These guidelines also serve to guide the developer in conceptual planning for configuration in new shopping areas or centers or shopping and office uses which may be components of mixed-use developments. Design guidelines are particularly applicable to larger commercial use buildings (over 40,000 square feet) commonly located in shopping centers or in larger single-use big box commercial buildings with footprints of 80,000 to 200,000 square feet. Site Design Comprehensive Plan Isle of Wight County, Virginia

251 Sites should be developed in a coordinated manner to complement adjacent structures through placement, architecture, size, and mass. Where possible, commercial uses requiring floor areas in excess of 40,000 square feet should be designed to appear as several distinct, albeit attached, structures, each with a floor area no greater than 6,000 square feet to reduce the visual impact of a single larger building mass in keeping with the scale of existing structures. Whenever possible, commercial buildings on the same site should be clustered and incorporate plazas, courtyards, pocket parks, and other pedestrian use areas. Sites occupied by commercial uses should be designed to avoid the appearance of domination by automobiles. Positive methods to achieve this guideline include: Orienting buildings to front on streets and placing parking at the rear and/or sides; Designing the required parking area into a series of smaller, discrete, connected lots rather than a large uninterrupted parking lot; Providing well defined pedestrian walkways through parking areas and from public sidewalks into the site (well defined walkways utilize pavers, changes in color, texture, and composition of paving materials and vertical plantings such as trees and shrubs); Designing parking areas to be partially screened from view from adjacent streets and building occupants. Screening can be accomplished through a number of methods including: o placing buildings between streets and parking lots/areas o using extensive landscape screening, berms, and architecturally treated walls; and, Designing site plans to provide vehicle and pedestrian connections with adjacent sites whenever appropriate. Building Design No single architectural style should be required. However, reliance on or exclusive use of standardized corporate or franchise style should be discouraged. Buildings should reflect an individual design that has considered site location, conditions, intended use, and the character/building mass of surrounding development. Building designs should reflect an individual style and form and not merely current trends. A consistent visual identity should be applied to all sides of buildings visible to the general public. All sides should have an equivalent level of quality of materials, detailing and window placement. Abrupt ending of architectural details should be avoided with no radical change in details, features or materials. Large buildings should avoid long, blank, uninterrupted walls. Positive methods to achieve this objective include building wall offsets (see guideline regarding modulation), changes in colors and materials, placement of windows and doors (see guideline regarding articulation and fenestration), use of porches, porticos or canopies, changes in Comprehensive Plan Isle of Wight County, Virginia

252 floor level, and projections that provide building shadows that visually break up long flat building facades. Large buildings should avoid long, blank, uninterrupted roof planes. Positive methods to achieve this objective include height variations to give the appearance of distinct elements or offsets in the roof line to provide architectural interest and variety to the massing of the building and to relieve the effect of a single, long roof. Large buildings should use modulation (defined as a measured setback or offset in a building face) to reduce overall bulk and mass. The planes of exterior walls should not run in one continuous direction more than feet without an offset or setback. Offsets should be a minimum of 3 to 5 feet. Large buildings should use articulation in a clear rhythm to reduce their perceived size. Articulation is the giving of emphasis to architectural elements, (like windows, entries, balconies, etc.) that create a complementary pattern of rhythm, dividing large buildings into smaller identifiable pieces. Fenestration in the form of doors, windows and other framed building openings that articulate architectural elements break up the look of a long blank wall. Buildings facing streets should incorporate pedestrian scaled entrances. Pedestrian scaled entrances are those that provide an expression of human activity or use in relation to building size. Doors, windows, entrances and other features should be designed to respond to the size of the human body and not give the appearance of anonymity or overwhelming the building s users. Building design should incorporate traditional building materials such as masonry, stone, heavy timbers, brick or other natural appearing materials. Building colors should accent, blend with, or complement surroundings. brilliant colors should be reserved for trim and accents. Bright or Outdoor storage areas, mechanical equipment, and trash receptacles should not be visible from adjacent streets and pedestrian walkways. The method of screening such areas from view should be architecturally integrated with the building with respect to materials, shape and size. Site services should be located on the least visible side of the building or site or within interior building spaces. Materials used for site features such as fences, screening walls, and signs should be appropriate to the zoning district where the development is located and should complement building design through materials, color, shape and size. Commercial development should provide transition to adjacent uses, especially regarding building location, size and scale. No single building or building group should dominate adjacent uses in terms of size, bulk, view blockage, or shading. Comprehensive Plan Isle of Wight County, Virginia

253 Building signs should be compatible in scale and proportion with building design and other signage in the immediate area. Conservation Development Areas Plan designated Conservation Development Areas within Development Service Districts are designed to permit only low density development (one unit per five acres or less). Within these areas, many of the same principles for encouraging cluster development and identified as appropriate for the Rural Landscape are recommended. Sites within these areas, since they are located adjacent to Chesapeake Bay Preservation areas, are often occupied by sensitive environmental features. Clustering development to protect 50% or more of each of these sites should remain a County objective. Moreover, as proposed in previous sections of this plan, actual densities of development permitted, should be adjusted depending on the extent and degree of sensitive environmental features present. Summary Essentially, the broad choice in future development patterns for Isle of Wight is between a creative extension of the traditional rural character, and the repetition of conventional suburban development practices. The former enables a large proportion of new homes and businesses to be located in efficient clusters so that they have ready access to necessary services and continue to enjoy uninterrupted views across open fields, pastures, marshes and woodlands permanently protected from future development. The latter option leads to sprawling roadways and congestion, fragmentation of natural areas, and disassociation of home, work, and recreational facilities which fosters auto-dependency and socioeconomic stratification. When a subdivision, shopping center, or other large scale development is proposed in a rural setting, residents and County officials often have difficulty convincingly describing just what is at stake. Fortunately, or unfortunately, the quality of a developed or rural landscape is not easily measured in dollars and cents. Application of the design standards described in this chapter should help the next generation of development to be skillfully integrated into the County in a manner which preserves and enhances the existing rural character and quality of life while allowing reasonable new development. Incorporation of these standards into County development ordinances will help ensure that necessary discussion occurs and that development design choices are made consciously rather than by default. Comprehensive Plan Isle of Wight County, Virginia

254 Chapter Twelve Implementation In each Chapter of the Comprehensive Plan, basic goals and objectives have been established. These goals and objectives will be used to guide a wide range of decisions that, taken together, will in a large part influence the County s future. This extends to decision-making at all levels and includes not only the County Planning Commission and Board of Supervisors, but all public agencies that should utilize them for guidance or as a decision making tool. In addition, private property owners and citizens should refer to the Comprehensive Plan regularly to insure that private actions and decisions are in keeping with the public policies set forth by this document. Every citizen has an ownership interest in this Comprehensive Plan and, as such, a responsibility to support its successful implementation. Legal Status of the Plan The Comprehensive Plan is a document adopted pursuant to the Code of Virginia under established procedures and requirements. Once adopted, the Plan serves as a guide for future public and private actions in the community. While its status is not totally binding on public actions, there is a clear expectation that the policies and objectives set forth in this Plan should be followed. If the policies and objectives are determined to be inconsistent with appropriate public sentiment, then revisions or modifications should be made to the Plan. While the Plan may not be binding on all actions, there are specific provisions of the Code of Virginia that are often overlooked as to the legal status of the Plan. These are contained in Section of the Code of Virginia under the subheading of Legal Status of Plan and are as follows: A. Whenever a local planning commission recommends a comprehensive plan or part thereof for the locality and such plan has been approved and adopted by the governing body, it shall control the general or approximate location, character and extent of each feature shown on the plan. Thereafter, unless a feature is already shown on the adopted master plan or part thereof or is deemed so under subsection D, no street or connection to an existing street, park or other public area, public building or public structure, public utility facility or public service corporation facility other than railroad facility, whether publicly or privately owned, shall be constructed, established or authorized, unless and until the general location or approximate location, character, and extent thereof has been submitted to and approved by the commission as being substantially in accord with the adopted comprehensive plan or part thereof. In connection with any such determination, the commission may, and at the direction of the governing body shall, hold a public hearing, after notice as required by B. The commission shall communicate its findings to the governing body, indicating its approval or disapproval with written reasons therefore. The governing body may overrule the action of the commission by a vote of a majority of its membership. Failure of the commission to act within one hundred days of a submission, unless the time is extended by the governing body, shall be deemed approval. The owner or owners or their agents may appeal the decision of the commission to the governing body within ten days after the decision of the commission. The appeal shall be by written petition to the Comprehensive Plan 12-1 Isle of Wight County, Virginia

255 governing body setting forth the reasons for the appeal. The appeal shall be heard and determined within 100 days from its filing. A majority vote of the governing body shall overrule the commission. C. Widening, narrowing, extension, enlargement, vacation or change of use of streets or public areas shall likewise be submitted for approval, but paving, repair, reconstruction, improvement, drainage or similar work and normal service extensions of public utilities or public service corporations shall not require approval unless involving a change in location or extent of a street or public area. D. Any public area, facility or use as set forth in subsection A which is identified within, but not the entire subject of, a submission under either for subdivision or provision 8 of for development or both may be deemed a feature already shown on the adopted master plan, and, therefore, excepted from the requirement for submittal to and approval by the commission or the governing body; provided, that the governing body has by ordinance or resolution defined standards governing the construction, establishment or authorization of such public area, facility or use or has approved it through acceptance of a proffer made pursuant to ". Later sections of this Section of the Code added additional provisions for exemption of public telecommunication facilities from some of these requirements. These provisions provide for consideration of all actions in relationship to those areas addressed in the Comprehensive Plan and establish a procedure for the review and consideration of public actions which may or may not be consistent with the adopted Comprehensive Plan. Implementation Program In addition to the goals and objectives identified in each Chapter of the Comprehensive Plan, implementation strategies have been suggested that are designed to achieve the stated goals and objectives. These strategies are recommended as a menu of actions that can be undertaken by the County. While it would be difficult to accomplish all of these strategies to their fullest extent over a short period of time, they provide the County with specific direction that can be followed over the life of the Plan. Many of the implementation actions outlined in the Comprehensive Plan are also part of the County s Strategic Plan of Action. The overall aim of the plan is to enhance the quality of life in the County and includes actions considered priority for accomplishing this goal. The Strategic Plan of Action contains many of the actions outlined in the Comprehensive Plan including growth management, resource protection and management, and transportation planning. In dealing with growth management and land development there are certain specific tools which have been referenced throughout the Plan as the appropriate vehicles for implementing many of the goals and objectives cited in the Plan. Listed below are some of the more critical tools requiring attention, with a brief discussion of some of the more significant issues that need to be addressed in their development, revision or refinement. Each of these implementation measures are considered key short-term actions to be taken over the next five years. A suggested time line for undertaking these measures within the five year period is also provided. Revision of the Subdivision Ordinance Comprehensive Plan 12-2 Isle of Wight County, Virginia

256 Closely related to the zoning ordinance, the subdivision regulations govern the division of land and the improvements required to serve those lots and parcels that are so divided. The current ordinance was originally adopted in 1969 and has been amended numerous times over the past thirty years in response to the changing objectives of the community. It is suggested that the subdivision ordinance be rewritten in its entirety, with particular attention to the following provisions: Integrate with the Chesapeake Bay Preservation Area Ordinance and the Zoning Ordinance; Establish an Environmental Impact Assessment Process for New Developments; Establish Open Space and Bicycle/Pedestrian Requirements for Development; Establish provisions that will reduce storm water runoff utilizing low impact design standards for new developments; Incorporate the design principles set out in Chapter 11 on Community Design; Implement Virginia Department of Transportation standards for subdivision roads; Establish standards that produce high quality design and development; Implement standards for private roads for multi-family and townhouse developments; and Strengthen family member transfer standards. Prepare a Community Design Manual A Community Design Manual will supplement and graphically demonstrate the standards established in the zoning ordinance and subdivision regulations. Many of the design principles are contained in Chapter 11, Community Design. Additional areas that could be incorporated include the Highway Corridor Overlay District, the Newport Development Service Overlay District, Historic Overlay Districts and principles of low impact development. Adequate Public Facilities Ordinance Identified in Chapter 6, Community Facilities and Services and to the extent permitted by law, an Adequate Public Facilities Ordinance would establish criteria and standards to evaluate whether specific public facilities and services are able to accommodate additional development. This tool can ensure that land development does not overwhelm public facilities, but coincides with the location and timing of existing and proposed capital facilities. Currently, this tool can only be applied during the rezoning of property in Virginia. Previously zoned land proposed for development can not be denied on the basis of adequate public facilities which are unrelated to health. Create a Local Community Land Trust A Local Community Land Trust would provide an invaluable vehicle for accomplishing many of the rural preservation and environmental protection goals and objectives set out in the Plan. The basic premise of the land trust is to establish a non-profit corporation pursuant to federal tax codes with the overriding mission of protecting and preserving specific resources. This includes sensitive environmental resources, scenic areas, shorelines, and even historic and archeological sites. The non-profit status serves as a financial incentive for the donation of easements and fee simple ownership of property. In exchange, the Community Land Trust would be responsible for the management and stewardship of that resource. The Local Community Land trust should be independent of local government, but should work closely with elected, appointed and administrative individuals in the County and Towns. Comprehensive Plan 12-3 Isle of Wight County, Virginia

257 Prepare County Transportation Plan The County Transportation Plan would evaluate needed improvements to the existing system of roads and highways and identify potential new corridors needed to improve circulation, connectivity, and future capacity. This plan should address aspects of intermodal transportation critical for the future of the County. Update Sewer and Water Master Plan The Sewer and Water Master Plan would identify the necessary improvements to insure that adequate public sewer and water is available to serve the Development Service Districts. In addition, given the number of private water systems located outside the Development Service Districts, greater definition should be established for the needs and service areas of those systems. Inventory Historic Resources As identified in Chapter 10, the County contains an abundance of significant historic and cultural resources. Inventorying those resources is the first critical step to preserving the cultural heritage of the County. An architectural survey of the County will identify architecturally unique and possibly historic resources which can be used to establish a list of historic resources and prioritize structures for preservation. Establish Greenways Program & Plan Establishing Greenways, which would include trails, bikeways and blueways (water based trails) would enhance recreational opportunities, preserve open space, protect riparian lands, and enhance the quality of life. While systems can be incorporated into future plans for land development, linking those areas with key public recreational and commercial facilities should be the primary focus. Prepare Village Center Plans As described in Chapter 4, Growth Management and Land Use, the County contains a number of Village Centers located outside the Development Service District that serve the basic community needs of the rural population. In 2003, only the boundaries for the village centers were delineated. The plan for growth and development management for each village center needs to be created. These areas deserve additional attention, with extensive citizen involvement, to insure that these villages continue to prosper and thrive. Develop Bikeway/Pedestrian System Initiated in 2001, there has been keen interest by citizenry to establish a system of bikeway and pedestrian ways throughout the County. This effort should be sustained with the further evaluation of the corridors identified in the Plan to insure the suitability and appropriateness of the routes identified. This process should be undertaken utilizing the procedures and criteria established in November 2000, with adherence to the process for designating bikeways established by the Board of Supervisors at that time. Initiate Shoreline Management and Public Access Program Comprehensive Plan 12-4 Isle of Wight County, Virginia

258 As described in Chapter 2, Natural Resources and Environmental Quality, the County contains substantial shoreline areas, particularly in the northern areas of the County. Shoreline areas, particularly in specific reaches of the James River, are experiencing excessive rates of erosion. These areas are also highly attractive for more intensive development. To avoid substantial loss of property, the County should establish a set of programs to address the problems of erosion, where feasible that will reduce the potential for loss of property. Similarly, most of the land along shorelines is in private ownership. Expanding public access for both beach use and boat access will need to be addressed in the future. Establish an Affordable Housing Strategy The County currently participates in programs to bring about affordable housing to low-income residents. These include obtaining Community Development Block Grant (CDBG) funds to rehabilitate low-income housing and membership in the Western Tidewater HOME Consortium. The County should seek to expand availability of safe, sanitary affordable housing to low-tomoderate income citizens by establishing an Affordable Housing Strategy. The strategy will define affordable housing, assess needs and formulate viable options and solutions. Prepare a Route 17 Area Master Plan Route 17 is within the Newport DSD and is expected to continue to be one of the fastest growing areas of the County. The master plan will establish unique growth management tools and develop standards specific to this area and ensure development is consistent with the County s growth management objectives. The plan will develop strategies for site planning, land use, beautification, traffic and utilities. Creation of the plan will involve County citizens and an active revitalization committee. Prepare a Route 58 Business Area Master Plan Route 58 Business transverses the Camptown DSD and is the major east-west highway for the southernmost portion of the County. The master plan will be part of an effort to help bring about much needed revitalization and commercial development in the area, as requested by local citizens. The master plan will concentrate on the areas of a market analysis, land use, beautification, traffic and utilities while outlining methods to encourage managed growth. The process to create the plan will actively involve local citizens. Prepare a Route 460 Area Master Plan The County will work in conjunction with the Town of Windsor and County citizens to create a master plan for the area along Route 460. This area is a unique transportation corridor containing both a major highway and a railway system. The master plan will focus on development standards, land use, beautification, traffic, utilities, and establish growth management tools to create a distinctive Route 460 corridor. A market analysis should also be completed in order to plan for commercial growth along the corridor, which will focus on how to sustain and enhance nearby uses in the Town of Windsor. Prepare a Brewers Neck Road Action Plan Develop a comprehensive corridor plan for Brewers Neck Road (Route 32) to include specific steps needed to accomplish the desired vision for the corridor, including project timelines, staff Comprehensive Plan 12-5 Isle of Wight County, Virginia

259 assignments and expected costs. Examples of desired outcomes could include underground utilities, community trail installation, landscaping, and signage standards. Update the Comprehensive Plan In the next five years after its adoption, a comprehensive review of the Plan should be undertaken. This comprehensive review should include dialogue with a wide array of participants, including the community at large, the Board of Supervisors, Planning Commission, County staff, other government agencies, and any necessary professional consultants. Opportunities for citizen participation should be offered during each phase of the plan s development. Prepare a Stormwater Master Plan Isle of Wight contains a large amount of environmentally sensitive water resources in its rivers, creeks and wetlands. In order to continue the efforts to protect water resources and promote effective drainage management, the County will prepare a stormwater master plan. Summary The following timetable for undertaking the tasks outlined above suggests an ambitious work program over the next several years. Accomplishing these tasks will require a major commitment on the part of the Board of Supervisors, the Planning Commission, and the full County staff to achieve the program described above. This program, however, is premised on a broad level of community involvement and citizen volunteerism. Many of these tasks cannot succeed unless the citizens of Isle of Wight County participate in partnership with efforts and resources available through federal, state and County governments. The formation of a Land Trust, for example, can only succeed if there is a strong partnership between public and private sectors. Likewise, many tasks, such as an Inventory of Historic Resources can best be completed with the active assistance of interested citizens. This form of partnership to address the challenges that face Isle of Wight County is a true reflection of the rural heritage that forms the basis of this community. Comprehensive Plan 12-6 Isle of Wight County, Virginia

260 Table 12-1 Recommended Schedule for Implementation* Key Implementation Measure Revise Zoning Ordinance (see listing of initiatives) - Completed in 2005 Reconnaissance Survey of Archeological Resources - Completed in 2006 Establish a Rural Economic Development Strategy - Completed in 2005 Rewrite Subdivision Regulations (see listing) Update Sewer and Water Master Plan Inventory Historic Resources Develop Bikeway/Pedestrian System Establish an Affordable Housing Strategy Prepare a Route 17 Area Master Plan Create a Local Community Land Trust Prepare a Route 58 Business Area Master Plan Undertake Highway Master Plan and County-wide road maintenance strategy Prepare a Stormwater Master Plan Prepare a Community Design Manual Prepare a Route 460 Area Master Plan Prepare a Brewers Neck Road Action Plan Initiate Comprehensive Plan Update Prepare Village Center Plans Establish Greenways Program & Plan Initiate Shoreline Management/Public Access Program *Note: Shaded cells represent years in which implementation measures will be undertaken. Comprehensive Plan 12-7 Isle of Wight County, Virginia

261 Watershed Boundary Isle of Wight County Map 2-2 Rushmere Surry County James River Rescue Battery Park Southampton County Blackwater River Zuni Blackwater River Watershed Central Hill Isle of Wight Courthouse Windsor City of Suffolk Smithfield James River Watershed Carrollton Walters Legend Watershed Boundary Carrsville City of Franklin Isle of Wight County Department of Planning and Zoning MWH Miles ±

262 Shoreline Erosion Isle of Wight County Map 2-3 Reach 1 (Lawne's Point to Holly Point) Rushmere Reach 2 (Holly Point to Fort Boykin) Surry County James River Reach 3 (Fort Boykin to Days Point) SMITHFIELD Rescue Battery Park Reach 4 (Goodwin Point to Ragged Island Creek) Southampton County Zuni Central Hill Isle of Wight Courthouse Reach 5 (Ragged Island Creek to Chuckatuck Creek) WINDSOR City of Suffolk Blackwater River Walters Carrsville City of Franklin Isle of Wight County Department of Planning and Zoning MWH 2006 ± Miles

263 General Location Areas for Natural Heritage Resources Isle of Wight County Map 2-4 Rushmere James River Surry County 1 7 SMITHFIELD Rescue Battery Park 3 Southampton County Zuni 2 Central Hill Isle of Wight\Courthouse 6 5 Blackwater River Walters 4 WINDSOR City of Suffolk Legend Natural Heritage Resource Federal Listed Resource State Listed Resource Natural Heritage Areas City of Franklin Carrsville NATURAL HERITAGE SITES 1. Blackwater River - above Rt Zuni Macrosite - South Zuni Sandhills 3. Zuni Macrosite - Antioch Swamp Barrens 4. Zuni Macrosite - Blackwater Ecologic Preserve 5. Zuni Macrosite - Horse Swamp Barrens 6. Cat Ponds 7. Muddy Cross Ponds Isle of Wight County Department of Planning and Zoning MWH 2006 Note: Information on this map is generalized and should not be used for site-specific analysis. Detailed information may be obtained from the Isle of Wight County Department of Palnning and Zoning or through on-site field study Miles ±

264