CPPC 10-11-93 Meeting AgendaCOUNTY of FREDERICK
Department of Planning and Development
703 / 665-5651
Fax 703/678-0682
MEMORANDUM
TO: Comprehensive Plans and Programs Committee
FROM: Kris C. Tierney, Deputy Planning Directo,� 'wZ/-
RE: Meeting Date and Agenda
DATE: October 6, 1993
There will be a meeting of the Comprehensive Plans and Programs Subcommittee on October
11, 1993, at 7:30 pm in the Conference Room of the Old County Courthouse.
Please let me know if you are unable to attend.
AGENDA
1) Review of Draft Comprehensive Plan Update.
Enclosed you will find a draft update of the Comp. Plan. Text that has been added is
highlighted withi and text which is to be deleted has been �ie-1e�. As with last
year, the population, housing, and employment figures have been updated to reflect the most
recent data. The entire document has relatively minor editorial changes throughout. Other areas
of note are:
* the history section has been updated,
* information has been added on corridor study efforts,
* information has been added on the Wastewater Treatment Study for Rural Community
Centers,
* updated information has been added on our revised Rural Areas (RA) regulations,
* a statement has been added regarding rail corridors,
* the information on emergency services has been updated,
* an updated statement on the County offices has been added,
* and the information on the County's Impact Model has been updated.
9 North Loudoun Street P.O. Box 601
Winchester, VA 22601 Winchester, VA 22604
Page -2-
Comp. Plan Agenda
October, 1993
Please make an effort to review the update prior to Monday nights meeting. One area which
the staff would like to draw to your attention is some of the statements concerning growth within
Community Centers. For example, the plan calls for encouraging growth in the Gore area.
If there are no major policy or editorial changes desired, the staff will complete the update by
adding the figures and removing text to be deleted etc., and will schedule the plan for the
Planning Commission's November 3rd meeting. This would allow for a public hearing at the
December 1st Planning Commission meeting. We could then schedule the plan to go to the
Board for discussion at their meeting in December, in hopes that they would set a public hearing
date for their meeting in January.
2. Discussion of upcoming review of requested capital improvement projects. A memo is
attached concerning this item.
3 Other.
KCT/slk
COUNTY of FREDERICK
Department of Planning and Development
703 / 665-5651
Fax 703/678-0682
To: Comprehensive Plans and Programs Subcommittee Members
From: Lanny Bise, Planner I L -c-%
Date: Wednesday, October 6, 1993
Subject: 1994-95 Capital Improvements Plan Requests
We have received all agency requests, with the exception of the Sanitation Authority,
which we expect to have this week. The revised project request forms are providing us
with greater detail regarding project justification and proposed funding sources. Listed
below is a brief summary of the requests that the Subcommittee will be reviewing at the
November 14 meeting.
Parks and Recreation
The Parks and Recreation Department is proposing a new Bicycle Facility as their
number one priority. The remaining requests remain unchanged in terms of priority
from the 1993-94 plan.
Airport Authority'
This is the first year that the Airport Authority has been included in our CIP. The Airport
Authority has their own Capital Improvements Plan that is approved by the FAA.
However, since many of their projects are funded in part by the County it is appropriate
that they are included in our CIP. Their requests include a Taxiway Relocation, Land
Acquisition, construction of a T -Hangar Taxiway; construction of a 16 -unit T -Hangar, as
well as a few other projects.
Handley Libra
The Handley Library had a Stephens City Library included in the 1992-93 CIP. This
project was for a small branch in the Jamesway Shopping Center. They withdrew this
project last year. This year they are requesting that a County Branch in the southern
section of the County be included in this years plan. This project is part of their recently
adopted master plan which runs through the year 2010.
9 North Loudoun Street P.O. Box 601
Winchester, VA 22601 Winchester, VA 22604
-Page 2 -
Engineering (LandfillL
This year the Engineering Department is revising some of the projects included in last
years plan and are proposing several new projects such as two Landfill closure
projects, development of ten acres of new Landfill space, construction of a
LeachateTreatment Facility, and a Composting/Waste Inspection Facility.
School Board
The School Board has completed Sherando High School and the James Wood Ridge
Conversion from last years plan. This year they are proposing a new project of
replacing chillers in Aylor Middle School and Bass Hoover Elementary. The rest of their
projects are either revised or were delayed because of funding.
The staff plans to have a proposed CIP project priority and a set of guidelines to aid in
evaluating the merits of individual requests.
FREDERICK COUNTY
COMPREHENSIVE POLICY PLAN
1994
ROUGH DRAFT
FREDERICK COUNTY
COMPREHENSIVE POLICY PLAN
TABLE OF CONTENTS
Page
INTRODUCTION.........................................2
HISTORY..............................................6
Historic Preservation .................................... 9
Historic Preservation Policy .............................. 14
POPULATION AND HOUSING ............................... 18
Population Distribution .................................. 21
Housing.......................................... 21
Projections ......................................... 22
Conclusions ........................................ 24
Population and Housing Policy ............................. 24
ECONOMY............................................27
Employment Trends .................... . . ............. 27
Winchester -Frederick County Economic
Development Commission ........................ . . ..... 28
Missions/Objectives................................... 29
Virginia Community Certification Program ..................... 30
Conclusions ........................................ 31
Economic Policy ..................................... 33
ENVIRONMENT ......................................... 36
Physical Characteristics ................................. 36
Water Issues ........................................ 38
Stormwater Management ................................ 41
Carrying Capacity .................................... 42
Environmental Protection ................................ 43
Environmental Policy ................... . . ............. 43
2
LANDUSE............................................46
Urban Development Area ................................ 46
Suburban Residential Land Uses ............................ 51
Business and Industrial Land Uses .......................... 53
Rural Community Centers ............................... 57
Rural Areas ........................................ 60
Planned Communities .................................. 65
Airport Support Area .................................. 66
Miscellaneous Land Use Issues ............................ 66
Land Use Concepts .................................... 69
Land Use Policy ..................................... 71
TRANSPORTATION ...................................... 82
Existing Road System .................................. 82
Traffic Volumes ..................................... 83
Accidents .......................................... 83
Critical Intersections and Corridors .......................... 83
Other Transportation Systems ............................. 84
Road Classification .................................... 84
Road Characteristics ................................... 85
Future Road Improvements ............................... 86
Transportation Issues ................................... 90
Transportation Policy .................................. 91
COMMUNITY FACILITIES AND SERVICES ..................... 95
Schools...........................................
95
Emergency Services ...................................
99
Airports..........................................100
County Offices ............................ . .........
101
Refuse Collection, Landfill, and Recycling .....................
101
Sewer and Water Facilities ...............................
102
Capital Improvements Plan ...............................
106
Facility Cost Impacts ..................................
106
Community Facilities and Services Issues ......................
109
Community Facility and Service Policy ...... . . ...............
112
k,
PARKS AND RECREATION .................................115
Facilities ..........................................115
Programs..........................................116
Citizen Participation ................................... 116
Future Demands ........................ ............117
Area Standards ......................................117
Neighborhood Park .................................... 118
Community Park .....................................119
Regional Park .......................................120
Recreational Centers ................................... 121
Existing Regional Park Facilities ........................... 122
Recreation Policy .....................................123
ACTION PROGRAM ......................................126
Comprehensive Policy Goals .............................. 126
Proposed Actions .....................................128
Annual Activities ........................... . . ........ 131
INTRODUCTION
The challenge that faces Frederick County is to institute and maintain a planning process
which will deal with the growth that is occurring but does not just reflect current conditions.
The planning process should be flexible, responding to changes as they occur. A continuous,
ongoing planning process must be established which is reasonable in its assumptions and will
quickly adapt to changing conditions.
According to the Code of Virginia, all local governments in Virginia are required to adopt
comprehensive plans which plan for the physical development of the community. This
document contains the policies which constitute the Comprehensive Plan for Frederick
County. This plan supersedes all previous plans adopted for Frederick County.
According to the Code of Virginia, the purpose of the Plan is to bring about coordinated,
adjusted, and harmonious development. The Comprehensive Plan describes general policies
for growth and development in the County based on careful studies of existing conditions,
growth trends, and probable future needs. The primary goal of this plan is to protect and
improve the living environment in the County.
The Plan itself does not contain a full range of detailed information on Frederick County
and its development trends. In-depth studies have been conducted and continue to be
conducted. Background reports and annual reports are available describing the results of
such studies.
It is the intention of this plan to establish a continuous and ongoing planning process. This
planning process involves the identification of issues, the establishment of goals, policies and
strategies, and the adoption of implementation methods. Policies established are intended
to be attainable through the methods described.
• In a regular and formal fashion, the planning staff and Planning Commission
consults with local and state agencies and elicits public opinion on issues in order
to develop ideas for the review of the Comprehensive Plan.
• The Planning Department submits a report to the Planning Commission early in
2
the new year describing the state of the County, current development trends,
progress on the planning work program, and new planning issues that have arisen.
• The Planning Commission reviews the staff report and the Comprehensive Plan
and reports to the Board of Supervisors on amendments to the Comprehensive
Plan that are necessary and on other issues of importance or actions that may be
appropriate.
• Based on agency and citizen requests and on its review of the0 re. ze ":oe
Plan, the Commission prepares a Capital Improvements Plan and submits it to
the Board of Supervisors in time for use by the Board in their budget
deliberations.
• The Commission reviews development regulations on an annual basis, using ideas
developed in the review of the Plan, and proposes changes to the Board of
Supervisors.
3
IDENTIFY ISSUES
To produce a list of issues and problems and to set
priorities:
- Hold discussions with Subcommittees,
Planning Commission, Board and agencies
- Elicit public opinion and participation
A PLANNING PROCESS
FOR FREDERICK COUNTY
DEVELOP INFORMATION
To provide information to support
planning and decision making.
- Maintain up to date data base
- Do background studies
- Provide indicators of change
IESTABLISH POLICIES
To produce statements of policy and to
set priorities:
hold discussions with
Board, Commission and agencies
- Elicit public opinion
SET STRATEGIES AND
IMPLEMENTATION METHODS
To develop strategies, methods and standards and
to create the foundation for work programs and
time tables:
- Do research on methods
- Hold discussions with all interested groups
and individuals
- Monitor and evaluate results
r figure 1
The review process should follow a consistent schedule during the year. It is intended
that this Plan will be used in the preparation of annual work programs for the
Department of Planning and Development and other agencies concerned with
development in Frederick County. It is also intended that the Capital Improvements
Plan, road improvements plans, development regulations, and other County policies
follow the general intent of the policies in this Plan.
9
Table 1
Annual Calendar of Planning Activities
Period
Activity
January
Annual staff report to Planning
Commission
February
Planning Commissions submits Capital
Improvements Program to Board of
Supervisors
March - June
Planning Commission reviews
development regulations and other
implementation methods
July - December
Planning Commission holds discussions
on issues, policies and CIP requests with
agencies and the public
November
Planning Commission reports to Board of
Supervisors on Comprehensive Plan
Amendments, Issues and Policies
HISTORY
For 12,000 years a sparse population of Indians lived in this area, but many more
traveled through on the Indian Path from New York and Pennsylvania to winter in
Georgia and South Carolina. The first Europeans to come through the Shenandoah
Valley were Jesuit missionaries in 1632, and details of this wilderness area were first
shown on a map by a Frenchman, Samuel de Champlain.
English ownership of Frederick County was originally by the Virginia Company but was
taken over by the Crown in 1624. In 1649, Charles II granted seven royalist supporters
the land "bounded by and within the heads" of the Potomac and Rappahannock Rivers.
By 1681, Thomas, the Second Lord Culpeper, owned most of this original land grant.
After he died in 1689, his daughter married Thomas, the Fifth Lord Fairfax, and later,
their son Thomas, the Sixth Lord Fairfax, inherited the whole landgrant.
By the 1650's various traders, trappers, and explorers were coming to the Shenandoah
Valley. Dr. John Lederer from Hamburg Germany documented his visit to the Valley in
1670 in his diary. An English colonel, Cadwallader Jones, explored the central Valley in
1673, and in 1716, Governor Alexander Spotswood and his fifty "Knights of the Golden
Horseshoe" crossed into the Valley through Swift Run Gap and returned with glowing
accounts.
Englishmen settled the piedmont, then pushed west by foot and horse through passes in
the Blue Ridge, and many more German and Scotch -Irish settlers came down the valleys
from Philadelphia and Lancaster, Pennsylvania. Some of the earliest settlers were
Quakers who built the Hopewell Friends Meeting House which still stands near
Clearbrook. These settlers were attracted by the fertile soils and the abundant forest
and water resources.
The Government of Colonial Virginia wanted this wilderness settled as quickly as
possible, as a buffer against Indians, but Robert "King" Carter, Lord Fairfax's agent, was
settling Fairfax's land slowly in large plantations. The government of Virginia had
chartered counties in the land grant as settlement spread up the Northern Neck and west
through the land grant. Virginia began to argue that Fairfax's landgrant ended at the
Blue Ridge, and began granting up to 1,000 acres each to settler families west of the
Blue Ridge.
Virginia gave particular developers the right to recruit settlers and sell them up to 1,000
acres per family within a general "grant" area. Each parcel would revert to Virginia
unless settled with a house and orchard within two years.
Abraham Hollingsworth settled near the site of Abrams Delight in about 1729. Owen
Thomas and Jeremiah Smith came to Back Creek in 1730 and settled on 806 acres
granted in Thomas' name. Smith left and returned with a wife before 1741. His log
cabin is now part of a house west of Back Creek and south of Route 50. In 1732, Jost
0
Hite settled 16 families on his 5,000 acre "grant" and built Hite's Fort at Bartonsville.
The Indian Path became the Great Wagon Road and Indians were dispossessed
westward by treaty and force of arms. Frederick County was created from western
Orange County by the House of Burgesses on December 21, 1738 and was named after
the Prince of Wales.
James Wood, County Surveyor for Orange County, platted a town at the County seat,
which he named Winchester, after his birthplace. It consisted of 26 half -acre lots and
three streets within 1300 acres, which he claimed as wilderness land owned by Virginia.
Those streets are now Loudoun, Boscawen and Cameron.
County government in Virginia was originally by self-perpetuating courts. Frederick
County's Court was proclaimed and organized in 1743, and its officials took their oaths
of office on November 11 of that year. It first met at the surveying office of its clerk,
James Wood, at the site on which he later built Glen Burnie.
By 1743, the Frederick County Court admitted that Lord Fairfax's land included the
County. At the age of 16, George Washington was a member of a surveying party that
came to Frederick County for Lord Fairfax in 1748. In 1749, Lord Fairfax moved to
Frederick County and built his home, Greenway Court, at White Post. He accepted
Wood's 1,300 acre claim and other additional lots at Winchester. Eventually, eleven
other counties would be created from the 3,824 square miles included in the original
Frederick County.
George Washington was associated with Winchester and Frederick County between the
years of 1748 and 1765. Early during those years, he maintained a surveying office in
Winchester. During the French and Indian War, he was given a Commission and later
made Commander in Chief of the colonial forces with headquarters in Winchester.
Washington held his first elective offices representing Frederick County, having been
elected to the house of Burgesses in 1758 and 1761.
Although there were no battles or military engagements in Frederick County during the
Revolutionary War, the area was very important in the effort. General Daniel Morgan,
who lived in Frederick County (now Clarke County), and his "Long Rifles" played a
prominent role in many battles of the Revolutionary War including the Battle at
Cowpens in South Carolina. Several local citizens furnished the troops with food and
supplies, including Isac Zane who supplied the army with ammunition made at his
ironworks in Marlboro. Many prisoners captured during the War were held in
Winchester and Frederick County. By 1779, the number of British prisoners held in
Winchester had increased so much that it was decided to build a larger prison. A
barracks was built four miles west of Winchester to hold these prisoners whose number
had increased to 1,600 by the year 1781.
During the late eighteenth and early nineteenth centuries, life in the current Frederick
County area centered around small family farms. Local farms tended to be smaller than
farms to the east. During this period, wheat production became the center of the local
7
economy, along with cattle production. In 1820, there were fifty flour mills in Frederick
County along with numerous sawmills, tanneries, and other business activities.
Economic life was centered around Winchester and other local towns including Stephens
City, Middletown, Kernstown, Gainesboro and Gore. There were a large number and
diversity of craftsmen and merchants in these towns. The strongest influence on the
local economy was the Great Wagon Road, which later became Route 11 South and
which carried settlers and travelers from Philadelphia, south through the Valley and to
the west. Activity associated with this road made Winchester one of the largest towns in
western Virginia.
Frederick County played a significant part in the Civil War. The northern Shenandoah
Valley supplied food, livestock, horses, and soldiers to the southern cause. The Valley
was also important because of its strategic location in relation to Washington D.C. The
town of Winchester changed hands in the war about 70 times, an average of once every
three weeks for four years.
Major local battles included the First Battle of Kernstown in March of 1862, during
which General Stonewall Jackson suffered his only tactical defeat during the Valley
Campaign but did succeed in keeping Union troops in the Valley from leaving to
reinforce McClellan on the peninsula. In May of 1862, Jackson's army defeated the
Union troops at the First Battle of Winchester.
In the Second Battle of Winchester in 1863, confederate troops successfully attacked
and defeated Union troops occupying forts on the western side of Winchester. Union
troops were again defeated at the second battle of Kernstown in 1864.
At the Third Battle of Winchester, General Philip Sheridan's Union troops successfully
attacked confederate troops at Winchester. With the high numbers of losses on both
sides, a new war of attrition was to begin in the Valley from which the southern forces
would never recover. For three weeks in 1864, Sheridan's troops undertook the
infamous "Burning" to end Confederate strength in the Valley. Union troops burned
2,000 barns, 120 mills, and a half a million bushels of grain and confiscated 50,000 head
of livestock in the Valley. Virginia's richest valley was left desolate.
In October of 1864, Jubal Early's Confederate troops were entrenched south of Cedar
Creek. The Union troops were encamped just north of Cedar Creek. A surprise attack
by the Confederates drove the Union troops to the north. General Sheridan rallied his
troops and attacked, driving the Confederates back across Cedar Creek. This victory
helped boost Union morale and helped President Lincoln win reelection.
The Civil War period brought much destruction and economic hardship to Frederick
County, due to the county's strategic location in the Valley. Many farms, mills, and
dwellings were damaged or destroyed, and the county's economic productivity was greatly
reduced. The Reconstruction period was characterized by a slow economic recovery
from damages suffered, and by the 1880's economic stability gradually returned. After
the war, old economic activities resumed and new activities began. New businesses
included a tannery, dairying, farm machinery, and shipping.
There was a tremendous building boom in the county during the period of 1880-1900. In
addition to new construction, older structures were often enlarged and "updated" using
modern building techniques and styles. This growth occurred in both rural areas and in
small communities that had previously developed in the eighteenth and nineteenth
centuries. New communities were also formed as a consequence of newer, more
advanced transportation systems including the automobile and the railroad. Some of the
communities that experienced growth during this period included Meadow Mills,
Hayfield, Gore, Mountain Falls, Mt. Williams, Gravel Springs, Gainesboro, Albin,
Brucetown, White Hall and Armel.
Industrial activityS slowly resumed after the Civil War. According to one source, by
1890, Frederick County had 37 mills, eight woolen factories and mills, a steam elevator,
two iron foundries, four glove factories, a boot and shoe factory, ten broom factories,
four tanneries, a large paper mill, three newspapers, a book bindery, eight cigar factories,
three marbleyards, and two furniture factories.
In the early twentieth century, there was rapid industrial growth in Frederick County.
There was a phenomenal rise in apple production, with apples replacing wheat as the
primary cash crop. Many new facilities were developed relating to apple production and
processing. Later in the twentieth century, the local economy had diversified to include
a range of different industrial activities. Activities continue to be based on the
accessibility of the area and on north -south travel along the route that was once the
Great Wagon Road and is now Route 11 and Interstate 81.
Historic Preservation
...............................
There are abee€ q. A. historic sites in Frederick County. The following sites
are listed on both the Virginia Landmarks Register and the National Register
c
g g g fsr
places:
.................
.................
...
..............
.................
9
There aro " .,,„i. " of other -hist^ sites the Ge „t There are also several Civil
Vl V µl V µ 11LL111VV3
• _.:_:
......
War battlefield sites that played an important role in that conflict. Someae.,r
among th.sxfies 4iiixderl eigfble fQz Ixstn� cin: the :Resfies The Civil War Sites
FE
Battlefields:
First and Second Battles of Winchester
Third Battle of Winchester
First and Second Battles of iKernstown
Cedar Creek
Stephenson"S Depot
M,0 ar
Fortifications119—trenchtvents:
In
-.0. 4 LOAN M. 0 .8 LVAN-f: • i ::
� : =11VAMRi -
:: : Y.
M.
Mwrm
ALM
♦11L
MA MM
: ---------------
i
In 1989, the Board of Supervisors established the Historic Resources Advisory Board
(HRAB) to provide detailed information on historic resources to the Planning
11
Commission and Board of Supervisors. The HRAB is charged with the following:
Developing standards and criteria to be utilized in evaluating what sites are of
local historic significance.
Selecting particular sites and geographic areas which would
be recommended to the Board of Supervisors for recognition as historically
significant sites or historic districts.
Develo iri recommendations on additional methods to be used to reserve
P..: � P
historic resources.
ReviewC particular development proposals and making recommendations to the
Planning Commission and Board of Supervisors as to the most appropriate
treatment of any historic features contained within the area of the proposal.
Developing recommendations on the use of historic resources in association with
tourism, economic development and education.
12
.
- •IM .'
-:
-- -- ON 1, -
12
{BATTLEFIELD MAP}
13
Battlefields represent an important group of historic resources with special
characteristics. Various methods should be used to create a system of sites that can be
experienced by the public. Open space dedications should be used to create battlefield
parks. iv ` r at efield 1e ruat ?rt ' isk. 'are + famed rri. 3.. q d � �I
In addition to individual properties, several areas of the County have been identified as
having potential for historic districts. Any development proposal in these areas will need
to address the historical significance of the sites involved.
Zoning or other regulatory methods can be used to help protect important historic
resources. Methods are preferred which allow the property owner to decide whether to
participate. In addition, incentives allowed by law for the rehabilitation, adaptive reuse.
or restoration of historic structures should be considered.
Care should be taken in the design and provision of streets and utilities in historic areas
to maintain the historical integrity and character of historic areas. The protection of
historic areas should be carefully considered in establishing new roads. Land use patterns
should be planned that are harmonious with the historic environment.
Historic preservation can play an important role in economic development. Tourism is
an important local industry. The possibility of improving the attractiveness of the area to
tourists should be considered in a systematic manner. The protection of historic
resources will play an important role in this effort.
Historic Preservation Policy
A number of historic. preservation issues have been identified, including the following:
The need to develop methods to protect historic resources.
The need to protect and promote the economic and cultural importance of historic
resources.
GOAL - Protect the historic resources in Frederick County.
historic sites and potents. districts
toric cs urces in the County.
Strateav 2 - Study and adopt methods to preserve historic resources.
Strategy 3 - Incorporate historic resources in efforts to promote tourism.
14
Strategy 4 - Carefully consider the impacts of land use, development, and facility
decisions on historic resources.
Strategy 5 - Develop a comprehensive approach to historic preservation which will result
in a system of sites and battlefields dedicated or protected in a coordinated fashion.
Implementation Methods:
Identify those which may be eligible for the State and National register an
assist in the preparation and submission of nominations.
2. Continue to use the Historic Resources Advisory Geflifflittee
Board. .1. to revt�t
information and recommendations t
eruisors „ , i-ste_ie
3. Develop techniques for protecting and enhancing historic resources including
the designation of local historic districts, zoning methods, impact analysis,
conservation easements, and tax incentives for rehabilitation efforts. Participation
in the preservation efforts should be voluntary on the part of property owners.
Develop a method for notifying owners of abandoned historic property of the
significance of their property and urge them to maintain it. Strong support should
be given to private initiatives such as voluntary compliance with the Secretary of
the Interior's Standards for Rehabilitation.
5. Include concerns for historic preservation and tourism in economic
development strategies. Promote the concept of
Of k fo.Ca sed ..Overxt to prc mete the:
__ ..:_......._.._.. ..: _....
tours, exhibits and other activities.
15
reenactments,
6. Use the dedication of land and historic districts to develop as :par. ,b a
comprehensive system for historic site preservation. Require that open space
dedications for developments in battlefield areas be used to create battlefield
parks. Utilize the system of battlefield memorials and districts to promote
education and tourism. Establish a set of guidelines to assist applicants for
rezoning.
16
(POSSIBLE HISTORIC DISTRICTS)
17
POPULATION AND HOUSING
Since the turn of the century, the population of Frederick County has more than tripled,
growing from 13,239 people in 1900 to 45,723 in 1990. The 2991 jaoputzoxzst�znate %ar
v.rgtTu, was; 4UUx an xncreaeo 7%. Much of this population growth occurred
during the 1970's and 1980's. Between 1940 and 1970, the population of the County grew
at a steady rate of between 2,000 and 4,000 people per decade. However, during the 1970's,
the population of the County grew by 10,043 people. During the 1980's, the population grew
by 11,573 people.
Table 2
Population Counts
Frederick County
1900-1990
Year
Population
Change From
Previous
Decade
% Change
From Previous
Decade
Average
Annual %
Change
1900
13,239
-
-
-
1910
12,787
-452
-3.41%
-0.35%
1920
12,461
-326
-2.55%
-0.26%
1930
13,167
706
5.67%
0.55%
1940
14,008
841
6.39%
0.62%
1950
17,537
3,529
25.19%
2.27%
1960
21,941
4,404
25.11%
2.27%
1970
24,107
2,166
9.87%
0.95%
1980
34,150
10,043
41.66%
3.54%
1990
45,723
11,573
33.89%
2.96%
Source: U.S. Census Bureau
During the 1970's, the average annual rate of growth in Frederick County was 3.5% per
year, an all-time high in the twentieth
century. In the 1980's, the average annual rate of population growth, 2.96%, remained high,
but was slightly lower than in the 1970's.
IR
Development, as reflected by the construction of new housing, accelerated in the mid -1980's.
The number of permits issued for the construction of new homes has varied dramatically,
following the rise and fall of the national housing market. The numbers of permits issued
for new houses each year rose steadily in the early 1970's, but fluctuated in the middle
1970's. A steady decline in permits issued occurred starting in 1977 and reached a low of
only 212 permits in 1982. Since 1982,CaVt+k permits for new houses have been increasing
steadily to an all-time high of 980 permits in 1988. Since 1989, building permits issued for
new residences in the County have declined dramatically as a result of a recession in the
national housing market. In 1991, 594 permits were issued for new homes.
Growth in the local economy is a major factor influencing overall growth in Frederick
County. The economies of Frederick County and the City of Winchester are interrelated
and economic changes affect both jurisdictions. There has been a continuing growth, in local
employment in both the City and County. An additional factor influencing growth in
Frederick County has been an increasing movement of people into the County from the
Washington Metropolitan Area. It can be anticipated that economic growth will continue,
......................
t�rb� supporting continued steady rates of overall growth.
19
{Neighborhoods Map}
20
Population Distribution
Information on subdivision and housing location from recent years shows a wide dispersion
of potential and actual population growth throughout the County. If this pattern continues,
population growth will continue to be seen not only in the densely populated suburban
areas, but also in rural areas.
Particularly high rates of residential construction and population growth have occurred in
the suburban areas east of Winchester and east of Stephens City, where sewer and water
facilities are available. Relatively high rates of growth i8, expected to continue in these
areas, and the eastern portion of the County will remain the area of greatest population
concentration.
Between 1980 and 1990, the growth in population was most rapid in the age groups under
ten and over 35 years of age. School age population increased during the 1980's. Based
on national projections, it can be expected that population in the childhood ages will not
grow more rapidly than the rest of the population into the indefinite future. Sinee 1970r
population over the age of 65 has been growing faster than the population as a whole in
Frederick County.
Housing
In recent years, the majority of building permits issued for new homes in the county have
been for single family dwellings. During the 1970's, less than 10% of residential permits
were for multifamily dwellings and less than 16% for mobile homes. However, during the
1980's, approximately 18% of permits were for multifamily dwellings and approximately 22%
for mobile homes. During the first three years of the 1990's, over 26% of the permits issued
were for multifamily dwellings and 8% were for mobile homes.
Following national trends, the average number of persons in a household in Frederick
County has been decreasing in recent years. Because of this, the number of dwellings in
the County has been growing at a faster rate than the population. The number of dwellings
in the County has increased from 12,282 in 1980 to approximately 1,916 in 199. The stock
of housing remains mostly single-family, and approximately 82% of all dwellings have been
single-family since 1980.
Average values of owner -occupied dwellings and average rents, as reported by the U. S.
Census Bureau for Frederick County, increased more rapidly during the 1980's, than in the
Commonwealth of Virginia as a whole. The median value of owner occupied dwellings in
the County in 1990, $90,100, was similar to that for Virginia as a whole. The median month
rent in Frederick County in 1990 was $351, which was less than the median for Virginia as
a whole. However, rents have been increasing at a more rapid rate than in Virginia as a
whole. As property values continue to escalate, a relatively large Birt of households in
Frederick County will find it difficult to obtain affordable housing.
21
Projections
The Frederick County Department of Planning has produced alternate low, medium, and
high population projections. The low projections use the average annual amount of
population increase between
1960 and 1990 to project population. The moderate projections use t± average
amount of p�p�atia� increase Iat occurred ;each .�rea�r between 1960 and
199-0. The high projections use the average annual percent rate of increase during the
1980's. The ojeetiens-use an &ver-agefate-of-ease of 2.88% per year. Theca'
projections suggest that the population of Frederick County will fall soznewherel between
53,000 and 62,000 by the year 2000.
Table 3
Table 4
Population Projections
Frederick County
1993
Households and Average Household Size
1960, 1970, 1980, 1990
1980
1990
Frederick County
2000
2005
Average Household
Year
Population Households Size
24,107
1960
21,941
6,045
53,650
3.63
1970
24,107
8,570
24,107
2.81
1980
34,150
11,467
63,083
2.98
1990
45,723
16,470
34,150
2.78
Source: U.S. Census Bureau, Frederick County Department of Planning and
61,218
70,835
Development
109740
Projections
The Frederick County Department of Planning has produced alternate low, medium, and
high population projections. The low projections use the average annual amount of
population increase between
1960 and 1990 to project population. The moderate projections use t± average
amount of p�p�atia� increase Iat occurred ;each .�rea�r between 1960 and
199-0. The high projections use the average annual percent rate of increase during the
1980's. The ojeetiens-use an &ver-agefate-of-ease of 2.88% per year. Theca'
projections suggest that the population of Frederick County will fall soznewherel between
53,000 and 62,000 by the year 2000.
22
Table 4
Population Projections
Frederick County
1993
1970
1980
1990
1995
2000
2005
2010
2020
Low
24,107
34,150
45,723
49,687
53,650
57,614
61,578
69,505
Medium
24,107
34,150
45,723
51,510
57,296
63,083
68,869
80,442
High
24,107
34,150
45,723
52,906
61,218
70,835
81,964
109740
22
Source: Frederick County Department of Planning and Development
Based on rates of construction occurring in the 1 C :-1980's, it might be expected that
population growth will be closer to the high projections than to the low projections. It is
possible to update the information on growth trends and the projections each year. In this
way, we can better understand how the County is growing and can monitor changes in trends
on a continuous basis.
Figure 3
The population projections can also be used to project the number of new households that
will be created in the County and the number of new dwellings that will be needed. The
demand for new housing resulting from projected population growth will h`e? t "t"",
the
extent to which the average number of persons per household declines. The low
household projections use the low population projections and assume that the average
household size will not decrease further. The medium and high household projections use
the medium and high populations projections and assume that the average household size
will drop to 2.7 persons per household by 1995 and to 2.6 persons per household by 2000.
The projections suggest that an average of between 260 and 675 housing units will be
needed each year for the next several years. Again, the projected housing need will
probably be closer to the higher projections than to the lower ones. Even the higher
projections suggest that annual rates of housing construction will not need to be as high as
in the late 1980's to meet projected demand.
Table 5
Projected New Dwellings Needed
Frederick County
1990
New Dwellings Needed Per
Decade
New Dwellings Needed Per Year
1990-2000
2000-2010
1990-2000
2000-2010
Low
2,662
2,810
266
281
Medium
5,300
4,318 1
530
432
High
6,719
7,623L—
672
762
Source: Frederick County Department of Planning and Development
23
Conclusions
Population growth continues in Frederick County.
The average number of persons living in each household has dropped in recent years.
This results in the fact that the number of new dwellings has been growing at a faster
rate than the population.
The construction of new homes dropped to a record low in 1982, climbed to an
all-time high in 1988, and has declined again in the early 1990's.
Population growth and new residential development has been distributed throughout
the County, but particularly high concentrations of growth have occurred in the
Fredericktowne and Ash Hollow neighborhoods.
The population of the County has been projected to be between 53,000 and 62,000
by 2000. The projections suggest that between 2.60. and 675new homes per year will
be needed for the next several years. Factors outside' of the local area could of f ct
housing demand.
Population and Housing Policy
Issues identified in discussions on population and housing include:
Desirable rates of population growth.
The distribution of population growth.
The types of housing to be provided.
Population and housing characteristics and projections need to be considered in all phases
of the comprehensive planning process. Land use policy, capital facilities planning, and
transportation planning must evaluate the existing requirements and projected future needs
resulting from growth in the County. Projections of future growth can assist decision
makers in their review of projects and proposals and in setting comprehensive planning
policies. The following are the basic policies of Frederick County concerning housing and
population growth.
GOn.'_, - Afaintai�z a moderate rate of population growth in Frederick County.
GOAL - Provide for a balanced distribution of population growth.
Strategy 1 - Plan for orderly growth and development, based on current and projected
24
growth rates and trends, on a moderate rate of growth in the local economy, and on national
economic trends.
Strategy 2 - Carefully plan and coordinate the provision of public services and facilities to
provide orderly patterns of growth.
Strate& 3 - Carefully plan and coordinate land development regulations to provide orderly
patterns of growth.
...........................
Strate�y 4 - Evaluate the-.---.*.--,--.--yment of public service delivery costsn ordez to institute an
equitable system for transferring service costs to users of those services.
Strategy 5 - Promote relatively high densitiesof population growth in sewer and water
service areas, existing developments and subdivisions, and certain rural community centers.
(Is this still our desire?)
Strate6 - Maintain low densities of population growth in rural areas or on land with
environmental constraints through the use of Agricultural and Forestal Districts, zoning, and
other methods.
Strategy 7 - In all areas of Frederick County, avoid levels of population density that cannot
be safely and efficiently supported by public facilities, roads, and the natural environment.
Implementation Methods:
1. Undertake studies to identify public service needs and costs associated with growth
and development and explore and adopt methods to address those needs and to
transfer costs to the users of public services.
2. Use conditional zoning procedures to accept contributions to the costs of providing
public facilities needed to support new development.
3. Explore the use of Sanitary Districts to provide services to rural community centers
or other rural areas.
4. Review density limits in the land development ordinances to insure that they
promote the desired balance of population growth.
5. Coordinate capital improvements planning, road improvements planning, and land
use planning.
6. Develop methods to identify the impacts of land use decisions on public facilities.
7. Avoid land use decisions that will result in levels of population density that cannot
be safely and efficiently supported by public facilities, roads, and the natural
environment.
25
GOAL - Provide for a variety of housing types and locations to meet the varied needs and
income levels of the County's present and future population.
GOAL - Reduce the cost of providing housing and public facilities to serve residential areas.
GOAL - Encourage energy efficient housing and housing patterns.
Strategy 1 - Structure plans and ordinances to: reduce development costs - encourage
energy efficient land development patterns - encourage energy efficient housing designs -
encourage a variety of housing types and locations - provide livable residential environments.
Strategy 2 - Support Federal, State, and Local incentives for energy conservation.
Strategy 3 - Reasonable amounts of mobile homes, multifamily housing, and higher density
single family housing should be allowed as sources of lower cost housing.
Strategy 4 - Provide incentives in the development regulations to encourage the inclusion
of affordable housing in larger scale planned developments.
Strategy 5 - Develop area -wide approaches to addressing housing issues with the City of
Winchester and the towns.
Strategy 6 - Recruit providers of affordable housing in the same manner that new industry
is recruited.
Implementation Methods:
1. Develop a comprehensive housing plan for the city and county to help achieve decent,
affordable housing for all. Such plan should include specific strategies and implementation
methods.
2. Review the enabling legislation and local regulations to ensure that they encourage and
promote affordable housing. Consider an incentives approach to providing affordable
housing.
P
ECONOMY
Because of its strategic location in relation to other areas, the Frederick County -Winchester
area has been a center of commerce and transportation since the eighteenth century. In the
County, major roads traveling west from the Washington metropolitan area meet major
roads traveling north and south in the Shenandoah Valley. Economic growth continues in
the County as a result of these advantages.
Economic growth is one of the forces that drives other types of growth in any community.
In order to plan for growth and development in Frederick County, it is important to
examine economic trends. It is particularly important to coordinate economic development
policy with other planning policies.
The City of Winchester and Frederick County together comprise a single, unified economic
area. Economic growth in the City of Winchester certainly has an effect on growth in the
County. Therefore, the City and County have developed a cooperative approach to economic
development.
Employment Trends
The number of employed people living in Frederick County and Winchester has grown in
recent years despite fluctuations following the rise and fall of the national economy. The
average annual number of employed people, as reported by the Virginia Employment
Commission, increased steadily during the late 1970's from about 23,000 in 1975 to 26,800
in 1979. The number of employed people living in the area dropped slightly in 1980 and
1981. Since 1981, the number has risen steadily to 38, 55 in 1992.
Monthly and annual unemployment rates, the percentage of the labor force which are
unemployed, have also fluctuated in Frederick County and Winchester in response to
national trends. Average annual unemployment rates for the local area were generally above
the state and national averages during the 1970's and early 1980's. During the peak
recessionary year of 1982, the unemployment rates in the area reached a high of 11.7%,
above the national average of 9.7%. From 1983 to 1990, the average annual unemployment
rates stayed below the national average. However, with the recent recession, the average
unemployment rate has again risen above the 1992 national average of 7.4%a to 7 $a
According to the Virginia Employment Commission, the number of people employed in
local business and government increased from about 22,500 in 1975 to 26,254 in 1980.
Following a drop to about 23,435 in 1981, local employment rose to 5. +57 in 1991. Since
1982, the number of jobs in the area has grown at a rate of over 3.0% per year.
27
Table 6
Employment Trends
Private Sector
Frederick County and Winchester
SECTOR
1984
1986
1988
1990
1992
Winchester -Frederick
Total
22,658
25,294
28,731
30,749
31,007
Agricultural Services
443
473
517
446
599
Mining
117
125
144
166
149
Contract Construction
1,405
1,597
2,335
2,255
1,678
Manufacturing
7,813
8,462
8,596
9,059
9,501
Transportation and
Utilities
1,254
1,257
1.301
1,343
1,314
Wholesale Trade
1,517
1.909
2,380
2,260
2,226
Retail Trade
4,725
5,547
6,730
7,536
7,075
Finance,Insurance,Real
Estate
762
854
945
1,033
955
Services
4,599
5,052
5,761
6,651
7,510
Nonclassifiable
23
18
22
0
0
Source: Virginia Employment Commission; Frederick County Department of
Planning and Development
Manufacturing plays an important role in the economy of the Winchester- Frederick County
area. In 1984, according to the Virginia Employment Commission, approximately 34% of
employees working in the private sector worked in manufacturing compared with 23.5% in
manufacturing in the State as a whole. Since 1984, the percentage of private sector
employees working in manufacturing has dropped to Q%. while the State average dropped
to 15.1%. During the same time period, the number of private sector employees working
in the service industry rose from 20% in 1984 to4 ? " in 1992.
Winchester -Frederick County Economic Development Commission
In 1982, the Winchester -Frederick County Economic Development Commission was created
by joint resolution of the City of Winchester and the Frederick County governing bodies.
The Commission is composed of representatives from the County and the City, along with
representation from local industry. The Economic Development Commission is charged
with fostering an efficient and cooperative effort toward establishing economic development
goals and strategies to meet these goals for the Winchester -Frederick County area. The
Commission maintains an office and employs a director who is charged with the
coordination of efforts to develop and implement an Economic Development Strategy for
Winchester -Frederick County. Revised annually, the 1993-94 Strategy addresses four
program areas: Existing Industry Development, Travel, Agribusiness Development, and
Business Attraction.
CURRENT PROGRAM AREAS
OF THE
WINCHESTER -FREDERICK COUNTY ECONOMIC DEVELOPMENT STRATEGY
MISSIONS/OBJECTIVES
1. Existin Industry Development
Mission: To create an effective business environment which fosters the growth and
prosperity of existing industries and to communicate the availability of supporting
resources.
2. Travel
Mission: To develop a comprehensive plan to attract visitors which benefit the
......... iiy.
Objectives:
1. To increase the number of group tours Aw cohventzi t s to the community.
911
2. To attract the individual leisure traveler.
3. Ta;rtiprae txixfifiructur;;whichuppcirts t...............etravel effort.
3. Agribusiness
Mission: To create market and product awareness of the diversified agribusiness
industry and to add value to locally grown products through marketing and education.
Objectives:
1. To r dU and enter new markets (farmers, restaurant, retail).
2. To increase income (profit) for agribusiness operations by adding value to local
products.
4. Business Attraction
Mission: To create a coordinated program to target and attract compatible business
and industry to Winchester -Frederick County.
Objectives:
1. To balance the proportion of commercial and industrial real estate tax base for
both the City and the County.
2. To create jobs, especially those which are non-competitive with existing industry
needs.
3. To assist in the development of quality life through increased income.
4. To assist in diversification of the type of business in the economic base.
Multiple activities have been identified in support of the objectives along with impact
measures to assess the effectiveness of each program.
Virginia Community Certification Program
In 1985, the Frederick County -Winchester area became a certified community under the
30
Virginia Community Betterment and Certification Program. The purpose of this program
is to provide a process whereby a community can become prepared for industrial and
economic development. In order to be certified, the community has to meet certain basic
requirements concerning economic development organizations, community information,
quality of life, local contacts, financial capability, existing industry, and industrial sites.
cc�n.t d: (h and results in enhanced recognition and promotion of
the community in state economic development efforts and in improved economic
development efforts at the local level. '�`he �tnChe t't �F ed `ick County Ec€�notnt0
Conclusions
The number of employed people living locally has increased at a more rapid rate
than the population as a whole.
Local unemployment rates have generally followed the rise and fall of national rates.
Unemployment rates were generally above state and national averages in the 1970's
and rose to a particularly high level in 1982. Since 1982, local unemployment rates
have fallen below the national average.
Between 1980 and 1985, there was $70 million of non-residential construction in
Frederick County and Winchester. There was $23 million of industrial construction,
mostly in Frederick County, and $19 million of commercial construction, mostly in
Winchester. From 1986 to 1992, there was $1;90 million of non-residential
construction in Frederick County and Winchester. There was $1 million of
industrial construction, mostly in Frederick County, and $44 million of commercial
construction.
Between 1975 and 1985, employment in the private sector in Frederick County and
Winchester increased at an average rate of about 2.6%. Since 1982, the employment
in the area has grown at a rate of over 3.0% per year.
Manufacturing is particularly important to the local economy. Despite a significant
drop in manufacturing employment in the early 1980's, manufacturing employment
grew by 1,300 jobs between 1975 and 1985. From 1986 to 1992, manufacturing
..............
employment increased by ;6Z,jobs.
31
The amount of local retail sales has been growing at a particularly rapid rate.
Travel -related and tourist expenditures have grown at a rapid rate.
Employment in service businesses has grown at a more rapid rate than any other
sector.
mptc .
con T-a.1'.M.v..cnn�...uetn
....:decreased... ...
... - ...
..dTaMatica y
............ .....
Median family income in the area remains below the state average., but is big
r-elatieft to a majefity of ethef eeufities atid-eities ift Vi _' i
At least of workers living in the area worked locally in 1990. General
information comparing the number of employed people living in the area with the
number of people working in the area might suggest that the proportion of workers
commuting to work outside the area has been increasing.
.. .... ......... ................ ....... .............. .
Projections, based on recent population t and M.P106"yffien 1 trends and national
projections, suggest that the local 'economy will continue to grow.
Table 7
Employment Trends
Private Sector
Frederick County
SECTOR
1984
1986
1988
1990
1992
Frederick County Total
7,761
8,484
9,606
11,456
1,35
Agricultural Services
411
415
426
316
43
Mining
117
125
144
166
.149
Contract Construction
911
1,004
1,470
1,440
. i ... W
I
Manufacturing
2,670
2,603
2,610
4,049
4.23 .0 0
Transportation and
Utilities
762
725
743
808
$35 1
Wholesale Trade
638
923
1,129
918
9.00
Retail Trade
1,153
1,391
1,672
1,934
N-7
32
Finance,Insurance,Real
136
156
172
375
Estate
Services
960
1,137
1,237
1,450
..............
1 O0
Nonclassifiable
3
5
3
0
Q
Source: Virginia Employment Commission; Frederick County Department of
Planning and Development
Economic Policy
The policies in this section are intended to describe a general economic development policy
which supports orderly economic growth in Frederick County. Economic development
policies need to be coordinated with other types of planning policy. The primary economic
issues identified include:
Rates of economic growth
The location of sites for business and industrial expansion
The maintenance and expansion of the local tax base
The potential for new types of economic activity
The need to provide special support for agriculture
The proposed economic policies are as follows:
GOAL - Support a business climate conducive to economic activity and orderly economic
growth.
Strom 1 - Base decisions and work programs on the goals and strategies adopted for the
Winchester -Frederick County Economic Development Commission.
Stratesv 2 - Work with the Economic Development Commission and with existing business
and industry to continue to evaluate and improve economic development strategies.
Strate�v 3 - Provide a diversity of locations for business and industry.
Strategy 4 - Provide business and industrial locations that are attractive and compatible with
surrounding uses and sites.
33
Implementation Methods
1. Obtain information from existing business and industry concerning economic development.
Enlist their assistance on a continuous basis to identify opportunities for economic
development, to take advantage of the unique opportunities available to this area, to identify
strengths and weaknesses in the local economy, and to work to improve gni weaknesses in
the local economy.
2. Provide a diversity of sites in a wide range of different types of locations for business and
industrial sites.
3. Insure that industrial and business sites are provided with sufficient facilities, good access,
and appropriate locations to avoid congestion and to efficiently provide necessary services.
4. Review ordinances to insure that business and industrial sites are pfevided,
to ifistife compatible with surrounding areas, and to instife that sufficient standards are
available to insure quality development.
5. Continue to provide staff suppen and other forms of support to the Frederick
County -Winchester Economic Development Commission.
GOAL - Provide support to agriculture as a major industry in the County.
Strateav 1 - Promote Frederick County as a location for agricultural activities and include
agriculture in economic development strategies.
StrateQv 2 - AA!ow and Encourage businesses and activities that support agriculture.
Strate�v 3 - Promote the participation of youth in the agricultural community and support
agricultural education.
Implementation Methods
1. Work with local farmers, agricultural organizations, and agriculturally related
businesses to develop economic development strategies in relation to agriculture.
Emphasis should be placed on developing markets for local agricultural products.
2. Evaluate the uses allowed in the agricultural ai zoning districts and other districts to
insure that a full range of agricultural activities are provided.
GOAL - Provide support to travel and tourist related activities.
34
Strategy 1 - Promote activities which will encourage tourism, including the preservation of
historic sites and scenic vistas.
Implementation Methods
1. Review ordinances and policies to promote the preservation of historic sites and
scenic vistas and to promote activities that will encourage tourism.
2. Review ordinances to provide appropriate sites for travel and tourist related
businesses.
M
ENVIRONMENT
As development continues in Frederick County, environmental issues will become
increasingly critical. The environmental issues in the County are concerned with natural
resources and their protection. These issues exist in the rural and urban portions of the
County.
Physical Characteristics
The County can be divided into three physical areas. In the eastern portion of the County,
in a band running north -south through the length of the County, generally east of Interstate
81, the land is underlain by Martinsburg shale. This area consists of broad, relatively level
ridges separated by steep stream valleys. The soils tend to be dense and not well suited for
intensive agriculture or septic drainfields. Much of the land is used either as pastureland
or is developed for residential or urban uses. Much of the sewered suburban development
in the County is in this area.
The second area is underlain by limestone -carbonate bedrock in a band that runs
north -south through the County between Interstate 81 and Little North Mountain. The
terrain here tends to be gently rolling. Outside of the City of Winchester, much of this area
is currently used for agriculture. Most of the orchards in the County are located in this
area. Soils in this area tend to be better suited for septic drainfields, except where the soils
are thin.
The third area in the County is the large western Valley and Ridge area that is underlain
by a variety of shale, sandstone, and limestone formations. This area consists of alternating
valleys and ridges that run north -south through the County. Most of the area is forested.
The ridges tend to be very steep, and the highest elevations in the County are in this area.
Soils are varied, although most tend not to be well suited for septic drainfields.
An evaluation has been done to determine the suitability of various areas of the County for
development by mapping the location of three types of characteristics:
Steep Slopes
Floodplains
Prime Agricultural Soils
This information can be used to evaluate land to determine general suitability for more
intensive forms of development. In general, the pattern of development that seems to be
occurring involves development in the eastern shale belt using public sewer and water
facilities. Lesser amounts of development have occurred in the limestone belt west of
Winchester and Interstate 81. The relatively steep areas in the western portions of the
County remain predominantly rural.
36
{Geologic Formations and Aquifers Map}
37
These three areas can be further divided into drainage areas. These drainage areas are
ph s early separated o fC.S.And af eas that drain into different streams.
by dfainage divides. The eastern half of the County tends to drain toward the east to
Opequon or Cedar Creek. The valley and ridge area tends to drain north toward creeks
such as Back Creek. These drainage areas can provide a good basis for planning sewer and
water service areas because such service can be provided through the use of gravity flow
tftin a drainage area. The movement of flows between drainage areas requires pumping.
Water Issues:
Issues concerning the quality, quantity, use, and protection of water resources are strongly related
to land development issues. Water supplies are needed to support development, while surface
and groundwater are potentially affected by development activities.
The rirginia State Water Control Board has completed a plan for water supplies in the
Shenandoah Valley. Major sources of water use in the County are groundwater and the North
Fork of the Shenandoah River. The Frederick County Sanitation Authority purchases all of the
water it provides in the urban areas from the City of Winchester, which pumps water from the
Shenandoah River.
The Shenandoah Water Supply Plan projects that sufficient water resources are available to
meet projected local demand through the year 2030. It is projected that by 2010, the Sanitation
Authority will have to negotiate with the City to provide more water or will have to find
alternative sources. The Sanitation Authority t !h poen
QfeveZtprxrg the quarry at Stephens City as a water source. Tfirs rstetn ` is expcxed 10 b
04
iry... DEcmber43 Other potential alternative sources include well fields,
impoundments, springs, and abandoned quarries.
Groundwater is the major source of water supply in the rural portions of the County and
provides a potential alternative source for the urban areas. Over half of the population of the
County relies on groundwater as the sole source of water supply. The most productive aquifers
in the County are the limestone -carbonate aquifers.
There is a need to protect the groundwater resources from potential sources of pollution
including sewage disposal, hazardous materials users, landfills, underground storage tanks, urban
runoff, and other sources. Special care should be taken to protect the limestone areas. Urban
uses and pfoblem uses sheuU be avoided in the h�iiestone ear-bonate areas. Special standards
should be used to control uses which potentially pollute groundwater.
On-site sewage disposal systems are a particularly widespread potential source of water pollution.
These systems are regulated by the Virginia Health Department and by the Virginia State Water
Control Board. Special care is needed to insure that such systems are properly located, installed,
operated, an maintained. In addition, the County needs to detetn<tii�t monitor the density
of development t r�faltarr� on-site disposal to tnsure that no problems are `berrcg cfectted.. sbt the ntral areas of the County.
q:::::
Community sewer systems, designed to serve particular developments, should not be allowed thi
40M . where higher density development is not expected to eventually occur. Where such systems
are - a . Rowed, they should be dedicated to a public authority or sanitary district to insure that the
facilities are properly operated.
39
{Physical Characteristics Map}
Ell]
The Virginia Erosion and Sediment Control Act and the Frederick County Code require
that properties and waters be protected from soil erosion and sedimentation and runoff
resulting from development activities. The current standards require that increased
stormwater created by development be conveyed to an adequate channel, capable of
carrying the maximum storm that will occur on the average once every two years.
STORMWATER MANAGEMENT
Growth and development bring along with it changes in the natural condition of the land.
Areas which were once woodlands or pastures have been developed with roads, parking lots,
and buildings. This process brings changes to the runoff characteristics of surface water,
both in quantity and quality. The County recognizes the need to develop current ordinances
and standards relating to stormwater runoff. In order to accomplish this task, the County
has completed a stormwater management study to use as a basis for developing these
regulations.
In reference to this stormwater management study, the following recommendations have
been made:
1) Obtain a model of a Stormwater Management Ordinance that would implement
the Department of Conservation and Recreation's Stormwater Management
Regulations. Submit the model to the Development Review and Regulations
Subcommittee for modifications and recommendations. Submit the proposed
regulations with the Stormwater Evaluation to the Department of Conservation and
Recreation for review. Adopt the Stormwater Management Ordinance.
2) Consider requirements for detailed site plans in the Subdivision Ordinance for lots
adjacent to drainage easements, drainage structures, stormwater retention facilities,
drainageways, or steep slopes.
3) Clearly define the administrative responsibilities for enforcement of stormwater
management requirements. The County Engineer should direct and supervise the
effort. Persons in the mg Bu1.1 Wg Department should be trained to inspect side
planned projects for grading, drainage, and soil erosion compliance.
4) The County Engineer should maintain a program for addressing drainage
problems in existing developments. The County Engineer should maintain a file on
such problems. Enlist the Virginia Department of Transportation's (VDOT)
assistance in correcting some problems. Require developers to make improvements
when the development process is still underway. Develop a strategy for dealing with
41
problems that cannot be corrected by VDOT or the developer. Carefully define the
scope of projects before proceeding.
5) A working committee of staff, builders, and design engineers should be formed to
review the proposed measures in order to insure that the proper actions are taken.
6) Undertake specific watershed plans, one at a time. Carefully define the scope of
plans. Hire a consultant to develop each plan. Follow a priority list as follows:
A.
Redbud Run
B.
Wrights Run
C.
Stephens Run
D.
Abrams Creek
E.
Sulphur Springs
F.
Upper Opequon
G.
Buffalo Lick
This ranking is based on a projected increase in rates of runoff and expected timing of
development activities.
Carrying Capacity
zrx the carrying capacity of land refers to the maximum population density
that can be supported by an area without degrading the natural environment or without
threatening public health, safety, and welfare. Local land use regulations typically establish
maximum densities and intensities at which development can occur. Such densities e�
................
hczuld be set based upon judgements concerning the capacity of the land to carry such
development.
The capacity of the land to carry development in rural areas will depend upon a number of
factors, including the following:
Natural constraints on development, including steep slopes and floodplains;
The ability of an area to accommodate sewage disposal;
The need to protect natural resources, including groundwater aquifers and significant
agricultural and forestal areas; and,
The capacity of rural roads.
The capacity of the land to carry development in urban areas will depend upon a number
of factors, including the following:
42
Natural constraints on development, including steep slopes and floodplains;
The need to protect natural resources, including stream valleys, mature woodland,
and other open space resources;
The need to provide protection from impacts of development, including increased
stormwater runoff; and,
The capacity of roads, sewerage systems, and other facilities to accommodate
development.
Information on such factors is available through a variety of sources and through on-site
investigations. Such information should provide a basis for land use planning and should
be incorporated into the development review process.
Environmental Protection
Current zoning district regulations 1: within
steep slopes, wetlands, floodplains, mature woodlands, sinkholes, and natural stormwater
detention areas � that can l disturbed a# tlt t:fm Qf development in urban and
suburban areas. Similar requirements should be used to provide environmental protection
in other urban areas or in rural areas. Other requirements can be developed to protect
groundwater from urban sources of pollution. Other, similar forms of environmental
protection are possible.
Environmental Policy
Issues:
The need to identify and protect important resources.
The need to identify the carrying capacity of land and to plan land use according to that
capacity.
The following are the policies proposed to address these environmental issues.
GOAL - Protect the natural environment from damage due to development activity.
Stratev 1 - Use performance standards to protect natural features :arid Of avoid
environmental constraints.
43
Implementation Methods
1. Maintain and review environmental protection requirements in the Frederick
County Code.
for- su ffi ient o ntal p eteetio
ava .1uui e ,
2. Avoid development in floodplains. _
subdivision or-diftanee.
3. Review ordinances to develop performance standards for various uses which may
threaten groundwater or surface water quality.
4. Undertake a comprehensive watershed management plan for urban areas to deal
with existing drainage problems and to develop sufficient stormwater management
standards for new development.
5. Strongly encourage and work with state agencies to develop sufficient standards
to insure that on-site sewage disposal systems are properly located, installed,
operated, and maintained.
6. When allowed, require that small community sewage systems in rural
developments be dedicated to a public authority. Such systems should not be allowed
in areas intended to remain rural into the indefinite future, including rural areas west
of Interstate 81.
7. Prohibit uses that damage or pollute the environment. Greatly lifnit t.'-- 1— 11T
wllllill UVLL allowed,
GOAL - Provide for development according to the capacity of the natural environment to carry
that development.
Strateav 1 - Use concepts of carrying capacity in general land use planning.
Strateav 2 - Incorporate concepts of carrying capacity in the development review process.
Implementation Methods
1. Crt Continue to develop aenvironrnentai database and use that database for general
land use planning and zoning decisions. Include information routinely collected by
various agencies. Use the database to monitor environmental impacts.
2.t require that information on carrying capacity be included with
Z'I
development proposals and use that information to evaluate such proposals.
3. Undertake an effort to establish appropriate development densities based on
carrying capacity factors.
GOAL - Identify and protect important natural resources.
Strateav 1 - Identify which natural resources are important and undertake efforts to locate
and protect those resources.
Implementation Methods
1. Identify alternate sources of water supply and methods for protecting those
resources.
2. Encourage significant agricultural and forestal areas to be included in agricultural
and forestal districts.
45
LAND USE
This plan describes general land use concepts for the future development of Frederick
County. It describes the general development patterns that are presently taking p1ae
eeetr ing and those:f. W planned. . As planning continues each
year, more specific concepts will be developed for interchange areas, corridors, rural
community centers, and other areas. Such plans will combine planning for land use with
planning for roads and facilities.
The primary land use concept in the plan divides the County into rural and urban areas.
A major concept is the Urban Development Area. The Urban Development Area defines
the general area in which sewer and water services will be provided and in which more
intensive forms of development will occur.
In general, areas to be planned for urban development or for other forms of development
can be determined based on the location of existing facilities and uses and on the physical
characteristics of the land. By carefully evaluating these and other factors, a land use plan
can be adopted which is reasonable and sustainable against challenge.
Urban Development Area
There is a need to appropriately designate the general location of planned urban
development. This designation should include the areas will contain more intensive
development and tit will therefore need to be provided with utilities, improved roads, and
other urban facilities. By designating the urban development area and confining urban
development to that area, the County can determine where to direct special, a-ffd intensive
efforts at providing facilities and services. The Urban Development Area is intended to
contain enough land to accommodate the urban and suburban development that will occur
win t r"OJ o t the next decade.
To determine the shape, location, and size of the urban development area, the existing
patterns of land use, the suitability of land for development, and the existing and planned
sewage facilities must be considered. The drainage areas in the eastern half of the County,
including all that might reasonably be provided with sewer and water service, have been
evaluated. Eaeh such dFai age area has been evaluated according to existing development
and zoning, the location of existing sewer and water facilities, and the potential for future
development., These evaluations have
been used to group drainage areas and portions of drainage areas into a reasonable
proposal for an urban development area.
mss: There is a need to provide €ef-a diversity ^r�� 4yp�f locations for a Wide fange of
es nanous :types. of developrient Sufficient land needs to be included in
the urban development area to wee accommodate; a competitive land market and to
46
provide for consumer choice. In addition, providing sufficient land in the Urban
Development Area can decrease development pressures in the rural areas.
' b there are other areas that could potentially be included in the Urban Development
Area, the poffiens of the Opequen Creek dfainage afea west of 181 contain important
agricultural areas ifieluding the South Frederick Agricultural and Forestal District
aid should not be included in the urban development area.
The proposed urban development area is drawn primarily according to the existing
development patterns, existing sewer facilities, and physical characteristics. It is not
expected that the urban development area will be fully developed during the nex five yr >en
.....
More urban land needs to be provided than will
actually be developed to maintain a competitive housing and real estate market. Urban an
suburban residential development should be confined to the UDA Ya order to allow for the
rusmost effieiently pfavi the facilities and services needed to support such
..............................
.. _............... _. _.
development.
There are a number of drainage areas in the County that currently contain sewer and water
facilities, including the following:
*Abrams Creek, east of Interstate 81
*Abrams Creek, inside of the Route 37/Interstate 81 loop
*Upper Opequon, east of Interstate 81 and west of Route 522 South
*Upper Opequon inside the Route 37/Interstate 81 loop and in the Route 11/Route
37/Interstate 81 interchange area
•Redbud Run inside the Route 37/Interstate 81 loop
•Redbud Run north of Route 37 (Stonewall Industrial Park)
*Wrights Run, west of Route 636
*The Senseny Road area
eStephens Run (a small portion)
*Buffalo Lick Run (western portion)
*Sulphur Springs Run (western portion)
These areas should be included in the urban development area. The boundaries of these
areas caa be defined by tither dramag d' e Qr ean be easily defified
by following roads, streams, and other
features.
Combining the above drainage areas, we can estimate that there are over 16,000 acres of
land contained in theproposed Opequon Plant service area. Within his afea, As of 1987'
there afew'.0 4 2,701 dwellings, 13,544 acres vacant, and 1,230 acres of vacant land zoned
RP. There is obviously sufficient land in this area to contain the new dwellings that can be
accommodated using planned facilities.
��i\ i��i���\•►�/i��J ��1�I.A�lp�l iii\�/il\�\�\\�\t�\�\��������\�l►���\��t�\��I�N�Ri����� ��1�/��\II��►:J�����\t�.�11�7!\�1
47
g :. h �,
n is un rain meas: As >of 1987, this area contained; 1,635
dwellings, w� 1,225 acres of vacant land zoned RPTer<�e and over 7,500 acres of
vacant lan&ia the Dafkias Mill Stephens n
Because it is developed in a large lot suburban pattern, the Apple Pie Ridge area is ,has
r- included in the urban development area. However, there is H^ ,.".-refit, intention .no
l to serve that area with public sewerage.
(DRAINAGE AREA MAP)
Table 8
Potential Dwellings, Size in Acres, and Zoning
of Drainage Areas in the Urban Development Area
Frederick County, 1987
Potential
Vacant
Total
Existing
Vacant
Dwellings
B or M
Vacant
Total
Drainage Area
Dwellings
RP Land
RP Land
Land
Land
Land
Abrams,East of
1,343
434
1,302
122
2,735
3,649
Route 81
Abrams, inside 37
209
155
465
115
1,119
1,299
& 81
Redbud, inside 37
224
91
273
642
1,258
1,587
& 81
Redbud, north of
79
107
321
490
1,649
1,986
37
Senseny Area
334
138
414
0
1,663
1,977
Sulphur Springs
280
230
690
190
2,056
2,640
Buffalo Lick
232
75
225
471
3,064
1 3,338
Total Abrams
Creek/Opequon
2,701
1,230
3,690
2,030
13,544
16,476
Regional
Opequon,
652
965
2,895
0
2,631
2,916
east of 81,
south branch
Opequon, inside
106
43
129
85
1,595
1,907
37
and 81
Stephens Run
133
11
33
35
219
302
Wrights Run, west
703
180
540
18
458
1,077
of 636
Total Parkins
1,549
1,199
3,597
138
4,903
6,202
Mill/Stephens Run
Total for IDA
4,295
2,429
7,287
2,168
18,447
22,678
Source: Frederick County Planning and Development Department
M
Table 9
Potential Dwellings, Size in Acres, and Zoning
of Drainage Areas Proposed to be Included
in the Urban Development Area
Frederick County
1987
Potential
Vacant
Total
Existing
Vacant
Dwellings
B or M
Vacant
Total
Drainage Area
Dwellings
RP Land
RP Land
Land
Land
Land
Abrams, west of
103
0
0
0
2,270
2,413
Winchester, east of
37
Clearbrook- Hot
362
0
0
28
2,833
3,417
Run area
Hiatt Run
148
84
252
60
3,211
3,486
Opequon, east of
47
4
12
26
2,253
2,345
81, north of
Opequon Creek
Redbud, east of 81
21
0
0
0
1,104
1,167
Wrights, east of
41
26
78
0
1,258
1,443
636
Total for Proposed
722
836
342
114
129929
14,271
Additions
Source: Frederick County Planning and Development Department
The population and household projections in the Plan have been used to pfejeet p e` C&
housing distributions and densities in the Urban Development Area. The analysis suggests
that the UDA, as currently defined, contains sufficient area to accommodate residential
growth at an average density of three units per acre through the year 2005. Average gross
densities of suburban developments in the UDA have slightly exceeded three units per acre
,.
In recent Years. i i Df fi ture..:deve.li �meriic Tn >i:hP IT..iZ 1 ah ]:!] e-rft irifCm 1 :r tfi
of the Urban Be-velopment Ar -Tl e Vera e, ov�T d�nsi�y cif ti e USA shoult�
€-: exc -.6 <t x�eC:<uz�l : ';:'r;;acre� There is a need to monitor densities and intensities
P ;.::;:::::::....
development and associated impacts.
Issues:
There is a need to carefully designate an tI4urbaft development area which contains
qppr-ep4aM and sufficient areas lar to accommodate projected urban development and
to e 4 an area in which efforts to provide urban services and facilities can
...............:..:....
be concentrated.
Develeigme.rtivn the UDA needs to be continuously monitored to determine
the need for new �x expanred facilities as well a er for expansion of the UDA Itself
Suburban Residential Land Uses
The majority of land in the Urban Development Area will be used for suburban residential
uses. Suburban residential land in Frederick County includes land zoned RP (Residential
Performance) which is served by public sewer and water. Suburban residential development
in Frederick County has occurred in the eastern portions of the County in the vicinity of
Winchester and the Town of Stephens City.
Tn�irrseea estimated that there are over 4,500 acres of land in the Count
y
zoned RP with sewer and water service available. Of this land, approximately half is used
for residences and half remains vacant. Approximately 2,000 acres of this suburban
residential land afe in the Ash Hollow-Redbud-Senseny Road area to the east of
Winchester. Approximately 2,300 acres are in the Fred ericktowne -Lakeside area east of
Stephens City.
It is -.W*' estimated that there are nearly 3,600 homes in suburban residential areas in
Frederick County. Using the average gross density of recent RP developments, `h y-ee ."..:`s
pefaer-e, there is a potential for nearly 6,000 additional dwellings on the existing vacant
suburban residential land.
51
Table 10
Estimated Current and Projected Future Number of Homes
and Acreage in Suburban Land Use
(Land Zoned RP and Served by Public Sewer and Water)
Frederick County, Virginia
September, 1987
Acreage
# of
Vacant
% of
Potential
Suburban
used for
Homes
Acreage
Acreage
New Homes
GEOGRAPHIC
Acreage
Homes
Vacant
(3 per acre)
AREA
Ash Hollow, Red
2,070
926
1,723
1,144
55.3
3,342
Bud, Senseny
Sunnyside
323
154
186
169
52.3
507
Kernstown
103
60
106
43
41.7
129
Fredericktowne
2,248
1,081
1,561
1,167
51.9
3,501
Lakeside
Total
4,744
2,221
3,576
2,523
53.2
7,569
Source: Frederick County Planning and Development Department
In 1983, the R-1, R-2, R-3, and R-6 residential districts in the Frederick County Zoning
Ordinance were replaced by the RP (Residential Performance) Zoning District.
Performance zoning does not organize land uses into higher and lower districts. Instead,
performance zoning uses a minimum number of districts and imposes minimum levels of
performance on each land use. In performance zoning, there are specific standards
concerning how each use is to be provided. Such standards include provisions for buffering
and screening, environmental protection, recreational facilities, dimensional requirements,
and other factors. Performance zoning is primarily concerned with insuring that
development meets certain minimum standards.
Issues:
There is a need to �1cseiei- gibieib densities are appropriate for
suburban residential development in order to properly design policies and regulations.
Sufficient land needs to be provided for suburban residential development. However,
providing too much suburban land may make the provision of adequate roads, sewers
and other services bieffleient dtlt The County needs to carefully consider the
patterns and amount of suburban land in relation to plans for the expansion or
improvement of facilities.
52
Intrusions of non-residential uses or of residential uses of different types or densities, can
have a significant negative impact on existing residential areas. Appropriate separation
between uses is needed.
Development in locations which have steep slopes, floodplain, or other unique
environmental features can have a negative impact on the physical environment and on
the residents if development is not carried out in a manner that recognizes the need to
protect these features.
Performance standards are needed to guarantee the highest quality of suburban
development that is reasonable and feasible.
Business and Industrial Land Uses
_._......._...........>....'.'_ .
' the Urban Development Area will also contain substantialbstantial> `''�rdO
. . ...__...t . ..
.I...........
...
areas of land used for business and industrial uses. SOFII6: business and industrial uses are
...............
...............
...............
apse located outside of the urban development area.hererecdt ;tree ver t
53
Table 11
Business and Industrial Land Use in Eastern
Frederick County, 1987
Land use Category
ACRES
Retail, Services, and Offices
292
Warehousing, Wholesaling, Trucking
and Construction
317
Manufacturing
344
Vacant B-1 Land
26
Vacant B-2 Land
355
Vacant B-3 Land
14
Vacant M-1 Land
1,675
Vacant M-2 Land
320
Source: Frederick County Planning and
Development Department
Employment projections suggest that there will be substantial rates of growth in employment
in the various economic sectors in Frederick County during the next ten years. These
projections of employment growth imply that there will be a corresponding growth in
requirements for business and industrial space. There is an ample supply of vacant land
zoned for manufacturing, wholesaling, trucking, and office expansion. Some need to expand
areas of land zoned for retail, service, and commercial uses at certain locations can be
expected.
In Frederick County, faest t o ar£ business and industrial uses aft
leeated in the vicinity of the Interstate 81 interchanges and interchanges on Route 37.
Retail, service, and office uses, along with land zoned for such uses, tend to be located
adjacent to the interchanges with frontage on the arterial highways. Manufacturing, trucking,
and wholesale uses and industrial zoning are also located in the vicinity of the interchanges,
but usually beyond the retail areas. The warehouses and trucking uses in the B-3 (Industrial
Transition District) and vacant B-3 land tends to be located to the rear of retail areas or in
the large industrial areas.
The interchanges at Route
land zoned for retail aild
substantial such areI. as.
7 and Route 50 East have pafti ul
other business use. The area:: araut
54
large areas of
Most manufacturing uses are located in one of several large industrial areas in the County,
including the following:
* Stonewall Industrial Park
* Fort Collier, Route 11 North, and other areas within the Interstate 81/Route 37
Loop
* Route 11 South - Kernstown area
* Route 50 East - Airport area
Other substantial industrial areas are located at Clearbrook and Middletown.
Mining for limestone, crushed stone, clay, shale, and sand is occurring in the County. The
limestone mining occurs along the limestone belt that is east of Little North Mountain and
�
West of Interstate 81. Shale mining occurs i„ e.he f „_InNartous aroas throughput the
ofi°. Other mining primarily is carried out in the western portions of the county.
Retail and service areas need to be located with easy access to sufficient markets and to
have good visibility from major thoroughfares. Retail and service uses generate more traffic
on a per acre basis than other types of business. Care should be taken in the placement
of new business areas, and appropriate roads and access improvements should be provided
to serve such areas. Retail entrances on arterial highways should be limited so that turning
movements can be channeled to locations that are properly controlled.
Business and industrial uses need to be provided with sufficient parking, along with safe
pedestrian access. Uses on arterial highways should have larger front setbacks than uses on
collector roads. Insufficient setbacks on arterial highways can contribute to traffic
congestion and confusion and can reduce safety.
Large land areas are needed for well-planned shopping centers and industrial parks.
Shopping centers should be designed as architectural units and should not be assemblages
of miscellaneous styles. Uses should be gfouped to fflaxifflize fneFehandisifig, Well
designed centers are needed to assure comfort, convenience, and safety.
Figure 4
Industrial parks should be planned to provide of a eaffl atibility of uses good access, and
sufficient maintenance and management. Industrial parks should be provided with their own
private restrictions. Different types of business and industrial uses need to be sepaiFated,
55
and busifiess and ifid stfi ,' uses ed to properly separated from ::e:Bch::;�:th...ec:<:ax d>>:::�rr�zx
residential uses.
Business and industrial areas need to be served by public sewer and water. Water service
is particularly critical in order to provide for fire protection. Certain industrial uses require
increased sewerage capacity.
There is a need to provide a sufficient quantity and diversity of business and industrial
sites to maintain a competitive market.
Planning is needed concerning the possible location of new business and industrial areas
Policies are needed concerning the limits of expansion of business and industrial areas
from the interchanges along arterial highways.
Business and industrial uses need to be separated from residential uses, and eedabt
business twid industrial u5es need to be sepa-gtP'l in some cases;; from each other, to
......... _ .. ....
avoid problems that cda apse' .
Necessary facilities and read improvements need to be provided for
planned business and industrial uses.
56
I .. QN. 1 PMI:
There is a need to provide a sufficient quantity and diversity of business and industrial
sites to maintain a competitive market.
Planning is needed concerning the possible location of new business and industrial areas
Policies are needed concerning the limits of expansion of business and industrial areas
from the interchanges along arterial highways.
Business and industrial uses need to be separated from residential uses, and eedabt
business twid industrial u5es need to be sepa-gtP'l in some cases;; from each other, to
......... _ .. ....
avoid problems that cda apse' .
Necessary facilities and read improvements need to be provided for
planned business and industrial uses.
56
There is a need to insure appropriate quality of development through the use of
performance and design standards.i�iCurxt atteyttilir�ld lre pard to; dsigt�ztd
Policies are needed concerning how to deal with new requests for large mining
operations.
Sufficient sewer and water capacity is needed for business and industrial growth.
Rural Community Centers
Rural community centers are relatively small centers of population and activity in the rural
areas of Frederick County. Following the adoption of the 1982 Plan, the Rural Community
Center Committee of the Frederick County Planning Commission was formed which
proceeded to define rural community centers and to study their characteristics. The
Committee held public meetings in 1984 and 1985 to solicit opinions on development
policies and developed some recommendations on policies for the rural community centers.
The following criteria were used to designate rural community centers:
1. Proximity to and access to collector or arterial routes.
2. Existing concentration of private commercial services within the center.
3. Existing concentration of public services within the center.
4. Access from concentrations of existing population.
5. Actual population growth in the area.
6. Access from concentrations of potential population (subdivided lots).
7. Proximity to other areas which could act as community centers.
8. Physical characteristics of land in the area.
9. Public perceptions.
10. Existing public facilities, churches, and civic clubs.
The potential rural community centers identified, included the following:
Gore
57
Reynolds Store
Gainesboro
Round Hill
Armel
Shawneeland/North Mountain
Star Tannery
Whitacre/Cross Junction
Clearbrook/Brucetown/Stephenson
Provisions should be made in County policies to recognize the rural centers and to
accommodate the differences between each center. Many of the centers are now zoned for
agriculture, which is not necessarily appropriate in relation to the functions of some of the
centers.
The Committee recommended that Armel, North Mountain/Shawneeland, and Reynolds
Store/Whitacre/Cross Junction be treated similarly as the surrounding areas. The
recommendations for all other community centers suggest that additional commercial
development will occur in the rural community centers. Only the recommendations for
Gore suggest encouraging increased amounts and densities of housing in relation to
surrounding rural areas.
Table 12
Comparison of Rural Community Centers Facts and Figures
Frederick County, Virginia
1985
CATEGORY
Gainesboro
Round Hill
Gore
Clearbrook,Ste
phenson,
Brucetown
Armel
HOUSING
Single Family
122
266
101
346
158
Mobile Homes
131
14
231
229
26
Total
135
280
124
575
184
LOT SIZE
Average
13
2.75
7.5
4
6.25
Residential
2.51
1.25
2.25
1.25
2
POPULATION
(Estimated)
466
966
427
1,948
635
LAND USE
Residential
288
338
220
545
354
Commercial
5
36
8
52
3
Mixed
5
46
4
80
7
Industrial
30
19
12
411
0
Public/Semi-Public
63
22
9
98
6
Agriculture/
Open
381
352
386
1,414
608
Vacant/Wooded
808
284
549
217
473
Total
1,580
1,097
1,188
2,817
1,451
Source: Frederick County Department of Planning and Development
The recommendations for all rural community centers
59
promote improved public services. The recommendations for the Round Hill Community
Center place particular emphasis on increased road improvements and the provision of
public sewer and water service. Water and sewer issues are also important in the
Because of recent development, there is a need to reconsider including Albin as a potential
rural community center.
Issues:
There is a need to determine to what extent rural community centers will be the
primary location of commercial and service uses in the rural areas.
The extent to which additional commercial development should be allowed in each
rural community center needs to be determined.
There is a need to determine whether additional housing growth should be
encouraged in each center.
What density of housing development should be allowed in each center?
A methocfor provider public services
to rural community centers needs to be determined.
Rural Areas
In terms of land area, Frederick County, Virginia is predominantly rural in character. In
Frederick County, rural areas can be defined as all areas not within the designated Urban
Development Area of the Comprehensive Plan. In the County, the primary land uses in
rural areas are agriculture and forests. Rural areas show a population growth pattern
consisting of widely scattered, large lot residential development.
Frederick County contains 279,000 acres of land. Of this acreage, approximately 23,000 is
contained within the bounds of the Urban Development Area. The remaining 256,000 acres
is in the rural areas. Roughly 230,000 acres lie west of Interstate 81 and are intended to
0111
remain rural into the indefinite future.
Many residents of Frederick County are attracted to the natural beauty and special lifestyle
found in rural portions of the County. Excessive or inappropriate development in these areas
can reduce their value and attractiveness. At the same time, the rural areas play an
important role in the County's economy through the income generated by agriculture.
Fruit production was the largest single category of
agricultural production, in terms of dollar value, in the County in 1982. Over one-half of
the market value of agricultural production in recent years has been fruit production. Most
of the rest of the agricultural production involved livestock.
In 1982, according to the United States Agricultural Census, there were 111,116 acres of
farmland in Frederick County. The estimates of farmland acreage show that the total
amount of farmland decreased steadily and significantly between 1950 and the early 1970's.
However, between 1974 and 1982, the acreage of farmland remained relatively constant at
about 120,000 acres. The estimated farmland acreage then fell between 1982 and 1987. Most
of the reduction in farmland acreage that occurred in the 1950's and 1960's was probably
due to the selling or development of marginal land or forestland for purposes other than
farming.
Figure 5 needs to be updated.
Most of the prime agricultural soils in Frederick County, as defined and mapped by the
United States Soil Conservation Service, are located in the limestone belt running
north -south throughout the County east of Little North Mountain and west of Interstate 81.
Most of the orchards and other cropland in the County are located in this area, although
some are located in other areas.
There are a number of support activities in the County that are particularly important to the
local agricultural economy. There are at least seven permanent farm markets that sell local
produce. There are at least seven farm implement and supply dealers in the
Winchester -Frederick County area and at least 7 fruit packing operations.
According to the United States Department of Agriculture, there were 130,947 acres of
forest land in Frederick County in 1986. This figure has dropped to 126,000 acres in 1988,
and is probably lower today. Forestland is the largest single land use in the County. The
majority of this forest land is private, non -industrial forest land and is located west of Little
North Mountain.
These forests provide a major contribution to maintaining the rural character of the County.
In addition, they protect watersheds of our streams, provide wildlife habitat, and affect our
climate. Forestry makes a major contribution to the local economy. Our forestland helps
61
support almost 20 forest related industries in the County which employ approximately 750
full time workers.
In 1977, the General Assembly passed the Agricultural and Forestal Districts Act. The
purpose of this act is to conserve and protect agricultural land and to encourage its
development for the production of agricultural and forestal products. Under this act, any
landowner may apply to the County to have their land included in an agricultural and
forestal district. Such districts are voluntary for landowners, but must be approved by the
County.
The primary statutory benefit of the agricultural district is that it limits the ability of local
governments and state agencies to enact laws or regulations, use eminent domain or take
other actions which would interfere with the use of the land in the district for agricultural
or forestal purposes. Under the Virginia Code, local governments may choose to restrict
non-agricultural development in the agricultural district.
Frederick County has the South Frederick Agricultural and Forestal District, consisting of
15,014 acres located west of Stephens City, which was first approved in 1980. It includes a
total of 86 farmers bound together in a voluntary agreement to preserve farmland. This
deal of other- land in that band of pr-ifne land and at- athef loeatiofis that eould usefully be
Vats district is la afed iWA band af.pxtm
A felatively lafge variety of uses are currently allowed in rural areas in the County. Care
should be taken to avoid potential conflicts between these various uses. Other localities
have found that certain levels of residential uses conflict with agricultural uses. New
residents of rural areas sometimes find agricultural and forestry activities objectionable.
Excessive residential development can reduce the efficiency of agriculture. afid „ fbaf, Uses
aria{ densities
o of .�t� 1
.x..., uv......,i...� .,. v :;va uYYi vYriu«. . .
Development activities, involving non-agricultural land uses, are occurring on a continuous
basis in the rural areas in Frederick County. Most of this development activity is in the
form of new residences. An estimated 1500 new lots, ten acres in size and smaller, have
been created in the rural portions of Frederick County since 1982. In addition, there are
a significant number of these smaller lots that were created before 1983. It is probably safe
to estimate that more than 2,000 new homes have been constructed in the rural portions of
the County since 1982.
While the rural areas of the county remain relatively undeveloped, there is a significant
amount of land which has been subdivided but is not yet built on. The number of small lots
being created in the rural areas has increased each year since 1986. There were 70 lots
under 20 acres in size created in 1986. In 1989, there were 292
lots created in the rural areas and of these 292 lots, 270 were under 20 acres in size.
62
Update Figure 6
Previous (RA), Rural Area regulations made it very easy for new lots to be created in the
rural areas, with no consideration of impacts to surrounding land uses. The result has been
scattered rural development. Many lots have been created for the purpose of speculation
without any thought to design or potential impacts. Conflicts have arisen between existing
uses and those newly established.
The conversion of agricultural and forestal land to non-agricultural uses is obviously affected
by conditions in the national agricultural economy and by the profitability of farming. The
County is fortunate at the present time to have a strong and diversified agricultural base.
Additional attempts to further diversify agricultural activities might further strengthen the
local agricultural economy.
The Virginia Code (Title 15.1, Chapter 11) states that Planning Commissions should study
the preservation of agricultural and forestal land in preparing the Comprehensive Plan. It
also states that zoning ordinances should be designed to provide for the preservation of
agricultural and forestal lands. To be effective, attempts to preserve valuable farmland
should be consistent with an ongoing comprehensive planning process.
i7,GGpIIilli[J�iCLLL—JGiW(isl� 111J�JVJU1. \J Ll�\/l Lu�Lva J, Ju�.ii uv iivV vrauaaa.� uaav v..v...r v.vA..vv,
There are indirect costs associated with scattered rural development. As new residents
move into the rural areas, there is an increased demand for urban services --traffic increases
on roads which were not designed to carry large volumes; additional trash collection sites
become necessary; and the cost per child of transporting students to and from school
increases more rapidly than in a concentrated residential area.
The large lot approach previously used in rural areas wastes rural land. Lots five acres in
size or larger serve no purpose for most single-family dwellings The tarn lative. eff& of
such lots p rally zstt take a great deal of land out of productive agricultural use without
63
providing sites for very many new homes. An alternative approach that allows smaller lots,
while not increasing the total number of new dwellings, has been developed and approved.
(INSERT SUBDIVISION MAP)
Certain commercial uses are appropriate in rural areas. However, as in urban areas, these
uses should be properly developed so that safe access is provided and so that adverse
impacts on surrounding roads and land are avoided.
In response to the desire to conserve the rural area of the County, including its agricultural
operations and scenic view sheds, the Planning Commission established the Rural Issues
Subcommittee. The overall goal of the Rural Issues Subcommittee �e� .9,
W to develop
regulations that will wauld allow limited residential subdivision in the rural areas which is;
1) designed to protect the views of the rural landscapes,
2) compatible with the existing agricultural industry,
3) harmonious with the natural environment.
The subcommittee has been successful in creating an alternative to the existing regulations
in effect in the rural area of the county that affect lots 20 acres in size and larger. Current
residential densities will be maintained by reducing the minimum lot size to two acres but
still maintaining the one unit per five acre density and by requiring that a residual parcel
of 40 percent remain undivided. Additional studies are needed to ensure that groundwater
and surface water and sources of drinking water are adequately protected. In order for
these regulations to be successful, the density ceiling must be maintained in order to protect
the environment and maintain the character of the rural areas.
M,
Issues:
How should the County support and promote agriculture?
How much and what kinds of non-agricultural activities should be allowed in rural
areas?
How much and what type of development can be permitted in the rural areas without
causing irreversible harm to either the environment, the agricultural industry, or the
rural character of the county?
What kinds of development standards should rural residential and other
non-agricultural uses meet?
Planned Communities
This approach to development pluming is of particular benefit to the County because it
ri: more unified planning at a larger scale. Larger scale planned
communities may also provide a unique opportunity for the inclusion of affordable housing.
The planned community approach is intended to provide new neighborhoods in which
people can live, work, and shop. Such neighborhoods should be provided with an
appropriate balance between residential, service, and employment uses. Such a balance will
world lessen the overall impacts of sueh plafinei4 new communities on the County as a
whole.
The planned community regulations and procedures are intended to allow design flexibility
while minimizing impacts on surrounding areas. Performance standards are used to control
the intensity of development and to provide for well designed neighborhoods. Appropriate
amenities are required including open space, recreation, and pedestrian access. New
planned communities must be provided with access to roads and facilities with sufficient
.........................................................
capacity to serve the g.rgv W eds>af t e. area.
Before Tanned communities are roved ^r^^� ^-� established,lags for new or improved
P _ PP P P
roads and facilities should be provided. The,:planned
inipavenents_ hc�uld bo coordinated with the scheduled development. The owners of the
new planned community will be expected to contribute a reasonable portion of the costs of
new road and €eeility WfrastrucW6 capacity needed to serve the new urban area. Such
K
contributions can be in the form of cash, dedicated land, or the.:cotstr�C�oxt:.;o
........................................................................
...
eerrs� improvements. .. .
New planned communities will be established in the Urban Development Area. They
should only be allowed if there is currently sufficient capacity in the roads and public
acilities to serve the proposed development or tf the deve)opzz ent will f 'de the neccssa y
I : -eYn nts.
Issues:
Careful plans for facilities and improvements are needed in association with planned
communities.
How should the potential impacts of large scale planned developments be handled?
Airport Support Area
Conflicts between airports and residential development can be significant in growing
communities. Residents of areas in the vicinity of the airport tend to oppose airport
activities and the expansion of such activities because of concern for noise and fly -overs.
ded t
ere tixe the Winchester Regional Airport Authority has feeemmetitdevelo ed an
P.:
airport support area be-i„�a for inclusion in the plan. The airport support area is an
area in which further residential rezoning. will be limited in order to protect fly -over areas
and noise sensitive areas. It wi44 :vas also be established to insure the feasibility of
continued airport use and future airport expansion. Business and industrial uses should be
the primary uses in the airport support area. If new residential areas are allowed in the
airport support area, avigation easements or other methods should be used to protect the
operations at the airport.
Issues:
There is a need to establish an area in which airport activities are clearly separated from
residential uses.
Miscellaneous Land Use Issues
Conflicts occur when incompatible uses andor zoning districts are adjacent to onethl.
These conflicts can be addressed by requiring sufficient buffer distances between the
incompatible uses. Screening, in the form of plants, walls, or mounds berms can also be used
to block the vision of adjoining uses or to reduce noise or other impacts. A strip of mature
woodland of sufficient depth is a particularly effective screen which can be relied on to
remain with minimal maintenance.
Manufactured housing is a major source of affordable housing in Frederick County. M The
zoning ordinance treats mobile homes tate same as traditional
single family dwellings in the () Ral Areas dzstxict, ht�wevez they ag�l-ming
-�ic*-ie*s '�••* are not allowed in the (RP Rest nta 1 ''e� t��manc feti district.
Mobile home parks are allowed in the MH-1 (Mobile Home Community) District. There
are requirements for mobile home parks concerning density, lot size, spacing, common areas,
and the design of private streets.
Figure 7
67
{Airport Support Area Map}
.:
Signs can affect the character of a n area and the value of properties. Excessive numbers
of signs in business areas can make them the signs difficult to notice or read and can make
highway frontages pear. cluttered and confusing, causing potential traffic hazards.- There
Issues:
Controls on signs along our primary highways play an important role in establishing
the character of business corridors.
Appropriate measures for buffers and screening are critical.
Land Use Concepts
The Urban Development Area is intended to be provided with
X.sewer and water service. it will ee-'`��� and vtll tnexef4reontain areas of higher density
. .._
and intensity development. Suburban residential development will be the predominant land
use. in . The UDA Will should be primarily be confined to the
eastern areas underlain by the Martinsburg shale formation.
Most of the County will continue to be rural areas used for agriculture, forests, or low
density residential uses. Certain types of business and industrial uses may be located at
scattered rural locations ifsafe access is available, and if adverse impacts on
surrounding uses and the rural environment can be avoided These Su{4r rural business and
industrial uses should be "es -ef-uses those: that provide services to rural areas or that are
more appropriate to inrural ares than to urban areas. The...`10catio0s f6r such business
would include major intersections or locations with recent
or existing business activity.
Interchange areas will continue to be centers of business and industrial activities. Uses in
eaeh a€ these areas should be carefully planned to avoid conflicts and to insure that
a ie t to roads and facilities are adequately provided. Well planfied snap ifig
the pfefeffed ffiafiftef of pfevidifig Hew business . Plans should be are tieing developed
........::... ...
for interchange areas ikd. Y ..... rrfdars which address land use, roads, and facilities.
..... _............._.
Z
{Land Use Plan Map}
70
As land is developed in the ea2ern portion of tir UDA in
may; the stream valleys are being preserved as environmental open space. This approach
contributes to the protection of floodplains and water quality and provides a continuous
system of green space. This approach should be continued.
Rural community centersb e afe identified And: specific policies have been developed
for these centers. Potential rural community centers have also been identified. These
should be evaluated and plans should be prepared for each according to need.
Ai The Agricultural and Forestal District lead been. established. identified. Other areas
c e ert should be included in such districts.
Large scale, planned communities with urban densities are proposed as an appropriate form
of development in the Urban Development Area. Such planned communities should only
be approved if roads and facilities are provided with sufficient capacity to support such
developments.
LAND USE POLICY
General Policies
GOAL - Develop land according to the characteristics of the land and the facilities available.
GOAL - Develop land in accordance with standards that provide for appropriate quality of
development.
Strateev 1 - initiate and Maintain a process of joint planning with the City of Winchester
and the Towns of Stephens City and Middletown for land adjacent to those municipalities.
Strategy 2 - Use performance standards to guarantee development of appropriate quality
while promoting creative development.
........vie...................acks,
t .................
Strate v 3 - Reseb
71
grid buffer TtluVmex to xtxsuxe that iancornpattble-uses aze adequately separate;
Implementation Methods:
1. Hold joint meetings between the Frederick County Planning Commission and the
Commissions of the City of Winchester and the Towns of Stephens City and
Middletown, or use joint subcommittees, to review plans, regulations, and
development proposals of joint interest. Communications between staffs on these
issues should be increased and formalized.
2. Review ordinances on at least an annual basis to insure that sufficient performance
standards are active to provide environmental protection and appropriate quality of
development. Include evaluations of regulations in annual reports.
3. Continue to use buffers and screening to separate different uses. When possible,
uses of different types should be separated by natural or man-made barriers such as
stream valleys, woodlands, or highways.
4 Allow the expansion of existing mobile home parks and develop standards for
locating new parks.
6.
developfneTnsuie tha7 the capital Tmpi oveent� Plan and the Corrrellensive
7. t tl l »ti > r uq developers sheuld—eanti�ue-te- b
p e � to prepare
P P
masterplans for all major developments in the urban areas. Planned development
districts should be reviewed to insure that sufficient performance standards are
provided.
8. Adequate administration and enforcement procedures should be employed to
implement policies and regulations.
9. onttIIu nth the development of the Develep a geographic database €ef the
Eettii whichll:be. is continuously updated from permits and other information
and which can be used to monitor development trends and impacts of development
in the County.
10. Use detailed impact analysis to evaluate new development proposals. Detailed
analysis should be provided on impacts of development and especially on the impacts
72
on roads and public facilities.
11. Accept reasonable and sufficient rezoning proffers to deal with the potential
impacts of new development.
12. Defifte an aifpeff suppeff afea afid lifnit flew Residential rezonings hc'xr
bpp r d i in the support area.
Urban Development Area
GOAL - Confine urban forms of land development to the urban development area.
GOAL - Provide leeations and fig sufficient land for a competitive
_
market v n.4ho. �r�art et�eIa t�ient;Area fe,� ,bW
GOAL - Provide efficient and environmentally sensitive use of land in the urban development
area.
Strate�v 1 - Ifieltidevmidex the inclusion of drainage areas or portions of drainage areas
in the urban development area if existing sewer facilities are present or planned in the
drainage area of. if urban development already exists in the drainage area., and if th-
Strate�v 2 - Monitor development in the urban development area to insure that sufficient
land is available for uta development.
Strate�v 3 - Use performance standards in t -he development ordinances to insure appropriate
and environmentally sensitive development in the urban development area.
Strategy 4 - Plan €ef roads and facilities with sufficient capacity in the Urban Development
Area.
Implementation Methods:
1. Use the genefal urban development area boundaries to evaluate the
appropriateness of development proposals. Allow urban and suburban uses in the
Urban Development Area. Restrict suburban residential development to the Urban
Development Area.
2. Develop -a tilzz the geographic database
to monitor and
report on the cumulative impacts of new development.
73
3. Using information in annual reports on conditions in the County, review the
boundaries of the urban development area on an annual basis.
4. Review the development ordinances to insure that sufficient performance
standards are provided for urban development.
5. Insure that Road Improvement Plans and the Capital Improvements Plan
recognize the needs of the Urban Development Area.
Suburban Residential Areas
GOAL - Provide sufcient land and a diversity of locations for a wide range of suburban
housing types.
GOAL - Provide for livable, high quality suburban residential neighborhoods.
GOAL -Protect the environment and avoid adverse impacts ift that coin result fr6in suburban
_.... .
residential areas.
Strategy 1 - Provide for sufficient suburban residential land growth in the urban
development area based on the capacity of roads, sewers, and other facilities and on the
physical characteristics of the particular site. Allow suburban residential development as
the predominant land use in the Urban Development Area.
Strategy 2 - Average housing densities should be maintained at levels similar to those that
have occurred in the recent past. Care should be taken to avoid faigge of
possible densities eti panieulaf sites beyend the avefage densities.
densite5>vhicl arm
Strategy 3 - Plans and ordinances should be designed to minimize development costs and
to encourage efficient patterns of development that will minimize the public costs of
development.
Strategy 4 - Performance standards should be used to guarantee the highest quality of
suburban residential development that is reasonable and feasible, while allowing a
promoting flexibility and innovation. Such standards should provide t
pfeteetion aiid protection from adverse impacts.
Strategy 5 - Existing residential areas should be adequately separated from non-residential
uses %J no:ao..+'a] F diff.-.ent ,-]___tom]
uses v■ r esMI ntical i1Sc S vL u111G1 G11L iy%JGJ or def -Is lies.
Implementation Methods:
74
ate
1. Monitor residential development each year to insure that sufficient appy
sites are available for suburban residential development.
2. Monitor the density of suburban residential developments each year and make
appropriate revisions to development regulations to insure that the average densities
and range of densities do not increase significantly.
3. Develop information sources on the local average costs of housing of various types.
Monitor development costs and review regulations to insure that they::,,,dQ not pause
development costs do fiat t increase unnecessarily.
4. Review development and performance standards on an annual basis to insure that
they are protecting the environment, deterring negative; impacts, and promoting
development of sufficient quality.
5. Continue to require open space in suburban residential developments to protect
environmentally sensitive land, to control density, and to provide open areas for the
enjoyment of residents.
Business and Industrial Areas
GOAL - Provide sufficient land and a diversity of locations for business and industrial uses.
GOAL - Carefully locate and limit business and industrial areas to avoid conflicts with other
uses and to avoid traffic impacts.
GOAL - Provide for quality business and industrial areas,
GOAL - Avoid adverse impacts in business and industrial areas.
business and industrial uses such as shopping centers and industrial parks in the vicinity of
limited access interchanges, existing business and industrial areas, and the airport.
Strateev 2 - Develop plans for the major arterial corridors and limit major business
development to those corridors.
Strateey 3 - Provide locations for substantial expansion of retail, service, and office uses in
the County.
Strategy 4 - Provide safe and efficient access to business and industrial areas.
Strategy 5 - Maintain appropriate regulations and performance standards to properly classify
75
and group business and industrial uses, to promote well planned shopping centers and
industrial parks, to provide appropriate separation between different uses, to promote
flexibility and creativity in design, and to guarantee sufficient quality of business and
industrial development.
Implementation Methods:
.........................
1. Evaluate proposed business and industrial developments according to the
appropriateness of the site±psi in relation to surrounding uses and the interchange
development pattern.
2. Develop specific plans for interchange and corridor areas that a 3dress, eemb g
................:.................
land use, a pearl c and traffic considerations. Provide land for substantial
expansion of business and industrial uses.
3. Work with the Sanitation Authority, through the capital improvements planning
process, to insure that sufficient sewer and water capacity are available for expansion
of business and industrial uses.
4. Allow neighborhood business uses in the vicinity of residential areas. Such uses
should be limited to small sites in any particular area: -t ettlar-
aFeas at any par
loeation.
5. Review regulations annually to insure that appropriate standards are provided for
new business and industrial development.
6. Undertake a study to develop standards to bd : used `i the evaluatzom'o proposals
_................
for new EM, Extractive Manufacturing areas.
Rural Community Centers
GOAL - Let identified rural community centers serve develop as service centers for rural areas.
in order to eneourage their- eantinued value to the Geunt)�.
GOAL - Let policies for each rural community center reflect the particular characteristics of
each center and the desires of their residents.
Strateev 1 - Provide for more commercial uses in the Gore, Gainesboro, and Roundhill
community centers at a scale and nature that is appropriate for each community center.
76
Strategy 2 - v aindividual feview a „pp, -r a „, ereial development in the
StrateQy 3 - Insure that future residential development is at a scale and density that is
appropriate for each community center.
StrS ateQy 4 - Use incentives to encourage housing growth in the Gore community center.
Str�Y S - Avoid incentives to encourage housing growth in the Gainesboro and
Clearbrook Brucetown-Stephenson community centers
Strate�v 6 - Minimize the impacts of the continued mixture of traditional single-family
detached homes and manufactured or mobile homes in the Gainesboro, Round Hill, and
Clearbrook-Brucetown-Stephenson community centers.
Strategy 7 - Recognize and implement public improvement needs in the rural community
centers.
Stratey 8 - Treat the Armel, North Mountain-Shawneeland, Star Tannery, and Reynolds
Store -Whitacre -Cross Junction rural community centers similarly to the surrounding areas.
Strategy 9 - Review the potential for including Albin as a rural community center.
Implementation Methods:
1. Structure plans andordinances and make land use decisions h: ich> recogruzC
the need for more commercial uses in the Gore, Gainesboro,
and Round Hill community centers. Review uses allowed in the age R
zoning district and allow rezoning and conditional use permit approvals to promote
village commercial development to tlyese areas.
2 Structure plans, ordinances and the Capital Improvements Plan to encourage housing
growth and subdivision activity in the Gore community center
3. Make provisions for the review and approval of commercial and residential
proposals in the Gore, Gainesboro, Round Hill, and
ClearbrookBnicetown-Stephenson community centers. Include provisions for
notification or advertisement of reviews and approvals.
4. Insure that mobile homes are treated similarly to traditional single family homes
in the Gore community center.
77
5. Allow housing at rural levels and str-uetur-e the Capital Improvements Plan not
to efteourage housing growth In the Gainesboro and Clearbrook-Brucetown-
Stephenson community centers growth should be permitted at rural Aensitaes
6. Discourage speculative rezoning proposals for commercial and industrial uses in
the Clearbrook-Brucetown-Stephenson community center.
7. Recognize the importance of primary highways to the development of rural
community centers.
8. Provide improved sewer and water service to existing development in the Round
Hill and Clearbrook-Brucetown-Stephenson areas.
9. Undertake a study of the Albin area for inclusion as a rural community center.
Rural Areas
GOAL - Maintain agriculture as a .significant portion of the County's economy.
GOAL - Maintain the rural character of areas outside of the Urban Development Area.
GOAL - Insure that land development activities in the rural areas are of appropriate quality.
GOAL - Protect the rural environment.
Strategy 1 - Include the promotion and support of local agriculture in general economic
development policies and activities.
Strategy 2 - Promote the inclusion of additional land in agricultural and forestal districts.
Strategy 3 -Avoid land uses in important agricultural areas that will conflict with
agriculture, but allow uses which are appropriate in rural areas and which support
agriculture.
Strategy 4 - Pf:ovide Monitor regulations and performance standards that vill in order to
to ure that they protect the rural environment, maintain the character of rural areas and
provide rural development of appropriate quality,
Strategy 5 - An effort should be made to blend new construction in with existing
surroundings and minimize neg4tive impacts on the environment.
Strategy 6 - Carrying capacity should be a major factor in determining density. Methods of
78
determining and protecting groundwater quality in the rural areas should be examined and
pursued.
Strategy 7 - Regulations should be developed which are aimed at protecting agricultural
operations and preserving prime agricultural land.
views.
Strategy 8 - Develop review procedures that insure conformance to the stated intent of
subdivision regulations.
Implementation Methods:
1. Provide information on procedures for establishing agricultural and forestal
districts and actively . promote the inclusion of additional bona
fide agricultural and forestal land in districts.
2. Avoid large, high density developments in important agricultural areas to avoid
conflicts with agriculture.
3. Allow a variety of support activities for agriculture in the rural areas.
4. Continue to allow new rural housing developments in a variety of types of
locations. Continue to review ordinances to insure that appropriate types of rural
housing developments are allowed.
5. Review ordinances to insure that adequate performance standards are provided
in relation to rural development to protect important environmental features,
including prime agricultural soils.
6. Review rural residential development regulations to pile insure that adequate
sewage disposal methods are employed: and otheF F"""''"" Develop better policies
concerning rural sewage disposal.
7. Develop information on the location of unique and significant environmental and
agricultural areas.
8. Develop information on the rural environment in order to estimate the carrying
capacity of rural areas. Define the density and types of development allowed based
on the carrying capacity Define de -ski -es `in and the characteristics of the
particular areas.
9. Review the ordinances to insure that performance standards are present that will:
79
osti€Ia te-premete development of appropriate quality.
10. Rural business uses should be developed in conformance with performance
standards similar to those used for urban businesses. Review the ordinances to
insure proper standards.
11. Where possible, natural features of a site should be used to conceal the
development from the view of passing motorists and adjoining properties. Homes
should be constructed in wooded areas or behind areas of higher elevation rather
than on top of prominent knolls.
12. Significant modification to the existing terrain should be avoided.
13. No more access points should be permitted to any subdivision than are needed
to insure safe ingress and egress of residents and emergency vehicles. A single access
is preferred where possible.
14. Entrance roads or driveways should be placed along the edge of fields or in
wooded areas when possible rather than in highly visible open areas.
. ..
15. Within existing wooded areas the amount of land cleared for individual house
sites, driveways etc. should be kept to a minimum.
16. Impacts on existing vegetation should be considered when sites are graded.
17. A minimum lot size should be established for the rural areas in order to insure
adequate filtration of septic effluent. The minimum lot size should not be less than
two acres in any of the rural areas.
18. When possible, on a parcel to be divided lots should be located on areas other
than prime agricultural soils.
19. Permitted uses within the rural areas of the County should be evaluated to
determine their potential impacts on agricultural operations.
20. Development of certain environmentally sensitive areas such as steep slopes and
flood plain should be prohibited.
21. A tracking system should be developed to record land division information to
prevent abuse of minor rural subdivision provisions.
Planned Communities
GOAL - Allow large scale new communities that are creatively and appropriately designed to
provide the highest possible quality of development.
GOAL - Insure that new planned communities do not have adverse impacts on the County.
Strategy 1 - Use a planned community approach to development with
regulations and standards to insure an appropriate level of design, wtd a balance of uses and
to avoid adverse impacts.
Strategy 2 - Analyze the impacts of new planned communities and require that impacts be
dealt with by the developer.
Strate 3 - Provide incentives for the inclusion of affordable housing in planned
communities.
Implementation Methods:
1. Allow new planned communities in the urban development area if sufficient
facilities and roads are available or planned in relation to the scheduled phases of
the development.
2. Use detailed impact analysis to evaluate proposed new planned communities.
3. Develop bonus provisions and procedures in the planned community regulations
to provide for affordable housing.
QO acr,
owed to develop
TRANSPORTATION
The County's pnncipl jer- land use concept is the identi fle tion of the urban
development area (UDA). Within the proposed UDA ,
development will occur at greater densities and intensities than in other areas. Special
emphasis needs to be placed on providing roads and transportation services to meet the
needs of the ufbaft th79 area. There is an immediate need to plan ,a expand the proposed
system of collector and arterial roads in subareas of the UDA
he-eeeug.
The plan also contains strong economic development goals. These goals suggest that
emphasis should also be placed on intercounty and interstate travel through the County.
There is a need to insure that adequate arterials and collectors are provided to iffsure
accommodate travel to and from the County and its industrial and commercial areas.
A large portion of the NMI roads within the county".�areas are currently inadequate to
meet the needs of those th&.2reas they, serve. There is a need to insure that
improvements to existing rural roads continue to be made in a systematic way =is eetinued
and to insure that new rural roads are atlequftte4y provided as needed.
Existing Road System
Eastern Frederick County des has well-developed north -south routes with Interstate 81
as the main route. There are eight interchanges on Interstate 81 in the County, connecting
the interstate with east -west routes. The main east -west routes include Routes 7, 50, and
522. These connect the County with the Washington Metropolitan Area, and with other
areas in Virginia and surrounding states. Interstate 66, a major route to the Washington
area, connects with Interstate 81 just south of Frederick County. There are approximately
100 miles of primary, arterial highways in the County.
The other state -maintained roads in the County are secondary roads. As of 199.3;_ there are
officially+ 542 miles of secondary roads in Frederick County. With the
dedication of new roads in the County, the miles of secondary roads are constantly growing.
The Virginia Department of Transportation is responsible for maintenance of primary and
secondary roads.
There are also roads in the County that are not state -maintained. These are private roads
or access easements that have been dedicated to private property owners in rural
subdivisions. The private owners and users are responsible for the maintenance of these
roads. The Shawneeland Sanitary District has a program for improving and maintaining
roads in Shawneeland.
Traffic Volumes
The primary highways in the County with the greatest traffic include Interstate 81 and other
highways in the eastern half of the County. Routes 50, 522, and 7 in the vicinity of
Winchester have particularly high levels of traffic. Primary routes with the most rapidly
increasing traffic include interstate 81, all segfflefit Route 522 north, Route 277, and
Route 50 west.
All of the major secondary roads with average traffic volumes exceeding 2,000 trips per day
are located in the eastern portions of the County. Most are in areas included in the urban
development area. Secondary roads with particularly high traffic volumes include Senseny
Road, and Cedar Creek Grade, Macedonia Church Road, and Aylor Road:
The ffm* secondary roads with the greatest rates of increase in traffic include suburban
residential access roads in the Fredericktowne and Lakeside areas, the major access road
in Fort Collier Industrial Park, and other roads that serve as collectors for growing
residential and industrial areas in the eastern portions of the County. All of the major roads
with the most rapidly increasing traffic are located in the urban development area or in the
vicinity of the urban development area.
The high levels and rapid growth of traffic in the urban development area is due to the
more intense land development activities occurring there. The predominant land use in the
urban development area continues to be suburban residential housing at an average density
of 3 units per acre. When developed for residential use, the urban development area can
be expected to generate between 20 and 30 average daily trip ends per acre. In addition,
industrial and business uses are concentrated in the urban area, in the interstate interchange
areas and in the vicinity of large industrial areas. These areas constitute major traffic
generators that will create traffic on a per acre basis above the levels generated by t#e
residential areas. Roads should be planned in coordination with potential traffic levels.
Accidents
Information on accidents is important as a basis for planning road improvements. Specific
information is needed to evaluate particular intersections and corridors. General
information suggests the largest number of accidents have occurred on Route 522 North,
followed by Route 50 West, 11 North, and 11 South.
Critical Intersections and Corridors
83
Some of the most heavily travelled raad segments of Foads in the County are portions of the
arterial roads in the vicinity of Winchester and the interchanges on Interstate 81 and Route
37. Special care is needed to insure that these intersections and corridors are adequate to
accommodate growing traffic. Road improvements in these areas should be carefully
planned in conjunction with land use plans r,, - these af to insure safe and efficient travel.
There is a need to develop plans for these intersections and corridors that will address
traffic and land use issues.
Other Transportation Systems
The County is served by the greyhound bus lines. It is also served by the CSX, and
Winchester and Western freight rail lines. Indus#vial development alon>; these rail corndors
The City of Winchester transit system provides bus service to the City and to portions of the
County, including Sunnyside and Kernstown. The area is also served by the Winchester
Airport. The airport is currently undergoing a substantial capital improvements program.
These mgravemertts include a taxiway relocation, land acquisit,on, constructiorr of ar
ac dttt4i al taxiway, Onstrttcfit�rt cif a 16 -unit hangar facility, and the upgrad : of existing
The Virginia Port Authority has developed an inland port facility on Route 522 south of
Frederick County. The inland port allows the transfer of containerized cargo from trucks
to trains to be shipped to the Hampton Roads harbors. It will undoubtedly increase truck
traffic on certain roads in Frederick County.
Road Classification
Roads can be classified according to their functions. These classifications are used to
determine the necessary design of proposed "roads.
The following are the functional classification categories used for Frederick County:
Major Arterial Roads - Major roads providing important travel routes through the
County. Major arterials provide for statewide and interstate travel. Higher speeds
and free traffic flow are maintained over large portions of the major arterials.
Minor Arterial Roads - Major roads providing important travel routes through
portions of the County. Minor arterials serve to provide access between collector
roads and major arterials. Minor arterials provide access to large areas of land or
Corridors with iiltellsive development. Higher speeds and free traffic flow are
maintained over large portions of the minor arterials.
Major Collector Roads - Major roads providing access between large areas of land
and arterial roads. They collect traffic from minor collectors and local roads. Major
84
collectors provide important through routes between arterial roads and for travel
within the County. Free traffic flows are maintained on major collectors.
Minor Collector Roads - Roads providing access to collector and arterial roads and
collecting traffic from local roads. Minor collectors serve as entrance roads and main
roads in neighborhoods and larger scale developments. Free traffic flows are
maintained on major collectors.
Local Roads - Roads collecting traffic from driveways and individual land uses and
providing access to major and minor collector roads. Local roads serve travel over
short distances to collector roads.
required within new
ided
Road Characteristics
The capacity of any road is determined by factors, $uchas it's alignment, number and width
of lanes, the numbers and locations of driveways, intersections and, traffic signals. and ower
€aetefs.
whethef: the road is emeeeding 4- Also The type of land use adjoining any road
and the resulting traffic generated is a major factor influencing whether use of a road
exceeds it's capacity. Land use; road improvements and intersections should he carefully
planned and controlled to provide maximum safety and efficiency.
The commonly used Highway Capacity Manual, which is produced by the Transportation
Research Bo rJ ntairis �es methods for measuring the congestion and tfavel
efficiency on 0f existing and planned streets. The Manual describes congestion and the
capacRw!of the road tv c rty traffic . in terms o . of lever of
_.
service, as follows:
85
Table 12
Level of Service
Categories and Description
Category
Description of Traffic Conditions
A
Free Flow, operating speed at speed limit, turns easily made, excess
green time at signals.
B
Stable flow, operating speed at speed limit, some lines of vehicles at
intersections and turns, lees than 10% of cycles loaded at signals.
C
Stable flow, operating below speed limit, some lines of vehicles at
intersections and turns, 10% to 30% of cycles loaded at signals.
D
Approaching unstable flow, fluctuating flow, little freedom to
maneuver, 30% to 70% of cycles loaded at signal, some drivers must
wait through one cycle.
E
Unstable flow, low operating speed, 70% to 100% of cycles loaded
at signals, vehicles frequently wait through cycles
Source: Transportation Research Board, Highway Capacity Manual,
Special Report 209, 1987
Most roads in Frederick County are currently operating at a "A" or "B" level of service.
Many localities use a standard of "C" as the minimum acceptable level. Level of service "C"
should be maintained on roads adjacent to and within new developments in the County.
Traffic analysis should be provided byapplicants proposing new development to insure that
needed road improvements are identified in order pFovided to maintain or
improve upon -the existing level of service. In some cases, it will be appropriate to expect
the level of service of roads to be maintained at an "A" or "B" level. It will not be
acceptable to allow for roads or intersections that are operating at a level of service "A" to
deteriorate to a "C level over relatively short periods of time as a result of traffic generated
fro rr3single deveicprnent
(lfse ^ should 1. ti maintained to Hsuie effieieflt t ffi eiFeHlati0fl.
Future Road Improvements
As required by the Vir inia Code, Frederick County maintains a Six Year Secondary Road
Improvement Plan. Th. plan, which ' updated ar nually, prioritizes impro rrient projects
throughout the county such as, the hard surfacing
of roads and bridge reconstructions s. The Plan is used by the Virginia
Department of Transportation to determine the allocation of funding for secondary road
improvement projects in the County. T►,., t n►,,.
lOW
Secondary road improvement
funding is supplemented by industrial aeeess, recreational aeeess and airport access funding.
The County has also prepares recommendations on primary road improvements which the
Countyas is submitted to the Virginia Department of Transportation. to be used in theif.
O'I' catas cler these reconU end�tlons in determining the funding for
primary road improvement funding. Recommendations for primary roads include
improvements to Route 522 �rr,frd South which afeis.. underway. The recommendations
also emphasize the completion of an eastern by-pass loop, connecting the northern and
southern ends of Route 37. The recommendations also propose major improvements at
critical intersections as follows:
I-81/11 North/37/661 Intersection (North of Winchester)
I-81/11 South/37 Intersection (South of Winchester)
I-81/50 & 17/522 Intersection (East of Winchester)
I-81/7 East Intersection (East of Winchester)
37/522 North Intersection (West of Winchester)
37/50 West Intersection (West of Winchester)
The primary and secondary road improvement plans will continue to be reviewed and
updated each year. Road plans will be maintained through this process.
The Virginia Department of Transportation is in the process of updating the Winchester
Thoroughfare Plan. This plan will include the urban areas in the County. It will address
major routes and critical corridors and intersections. It is particularly important that the
County work with the State and the Thoroughfare Plan consultant to insure that all issues
are properly addressed.
A general road plan covering Che eastern portion of the county ;has been prepared for
arterial and collector roads. The plan is not meant to specify the specific location and
alignment of right of ways but is intended to show the connections that need to be made
between various locations and routes. The road plan describes existing and proposed roads
according to their functional classification.
Plans for new development should provide for the right of ways necessary to implement the
general road plan. New roads shown on the road plan should be constructed by the
developer when warranted by the scale, intensity or impacts of the development. Existing
roads should be improved as necessary by adjacent development to implement the intentions
of the plan.
In some cases, new development may need to contribute to the provision, construction, or
improvement of roads that are not adjacent to the development. in such cases,
developments should contribute to their fair share of the costs of road improvements needed
to accommodate the traffic generated by the particular development. Impact analysis should
be used to determine the impacts of developments on surrounding road networks.
Ell
To determine what the fair share of road i rove Ment costs will be, levels of service should
be projected for the road network based on the planned overall development patterns for
the area. The costs of maintaining the level of service on the network should be determined
based on such general traffic projections. Impact analysis should be used to determine the
portion of the traffic growth caused by the proposed development and the development
should contribute an appropriate portion of those costs.
In general, new roads and road improvements should be provided according to Virginia
Department of Transportation and County design standards. Collector roads should be
provided with right of ways with a minimum width of sixty feet. Arterial roads should be
provided accordingroad plan:
Belle too „a.
County road improvement plans should recognize the need to implement the general plan.
Necessary improvements should be made to arterial, collector, and local roads to maintain
an efficient road system.
{Functional Classification Plan, Existing Roads Map}
:•
Issues:
The following transportation issues have been identified.
There is a need to plan road improvements to deal with traffic generated by the
development occurring in the urban development area and along the Interstate 81
corridor.
There is a need to identify and reserve collector and arterial road right of ways that will
be needed to accommodate growth in the urban development area and in other areas.
24H&Won shettA4 be given to the Design and construction standards for new roads attd
the stmidtods should be evalucit d and improved if necessary.
There is a need to identify unsafe road s grrtents leeatie� and improve the safety of
those locations. Better infonnation is needed on accidents occurring at particular
locations.
Special attention needs to be given to land use and transportation improvements in the
critical urban arterial corridors and intersections.
In urban corridors, special attention should he given to controlling and improving access.
Standard methods are needed for evaluating the potential impacts of development
proposals on existing roads and intersections.
There is a need to develop a local functional classification system to use to plait it
It _Mg. for the adequate provision of roads and road improvements.
Careful planning is needed to insure that special road needs associated with the inland
port, the Winchester Airport, and planned commercial and industrial ureas are met.
Better guidelines are needed for setting priorities in the road improvement plans. Tfee
guidelines s� r t l are nee d whieh address design, capacity and traffic needs.
Standards and guidelines are needed for the improvement of existing rural roads and for
the design of new rural roads. In some cases, standards for new rural roads should be
less intensive than urban standards.
Planning in the County should also address non -road transportation issues including bus
service, park and ride needs, rail service, and pedestrian and bicycle needs.
In general, there is a need to plan for a complete road network with a total system of
interconnected roads of all types.
90
Transportation Policy
GOAL - Provide a safe and efficient road system throughout the County.
GOAL - Coordinate land use planning and decisions with transportation planning.
Strategy 1 - Continue to maintain and update secondary and primary road improvement
plans based on consistent policies and criteria. Such criteria should provide means for
establishing priorities. Separate criteria should be developed for urban and rural roads.
Strategy 2 - Identify majef Fead needs and needed OM improvements in the update of the
Winchester Thoroughfare Plan.
Strate3 - Prepare corridor plans for critical sections of arterial highways. Such plans
should deal with traffic patterns, land use, and public facilities.
91
{Eastern Road Plan Map}
92
Strateu 4 - Prepare plans for key interchange areas. Such plans should deal with traffic
patterns, land use, and public facilities.
Strategy 5 - Plan road improvements in aeeefdaflee with anticipation `of planned
development and expected traffic generation. Adopt a general road plan identifying a
complete arterial and collector network. Require that interconnected road networks a-ftd
eelleetefs be provided.
Strategy 6 - Identify new collector and arterial roads that are needed in the general road
plan and develop means to reserve rights-of-way for these roads.
Strategy 7 - Provide adequate a appropriate standards for road design in association with
each type and intensity of development. Use road classification systems and methods for
determining which types of road improvements are to be provided.
Strate8 - Continue to use access requirements for entrances to arterial and collector
roads.
Strate9 -
leeatiens-eve�op fetter information on traffic accidents in order to identify problem areas:
Strategy 10 - Coordinate road planning with economic development policies
Implementation Methods:
1. Review procedures and criteria for secondary and primary road plans. Continue
to update plans annually.
2. Work closely with the Virginia Department of Transportation and the consultant
to insure that all issues are addressed in the Winchester Thoroughfare Plan. Make
sure that needed road improvements and new roads are included.
3.
road plans. Use dedication, conditional zoning, condemnation, road improvement
plans or other methods to insure that needed roads are provided and constructed.
4. Require that collector street systems in new developments be interconnected.
5. Prepare plans for critical interchanges and corridors. Include these. plans in
the Comprehensive Pian.
6. Use functional classification systems to determine necessary design and
improvements.
93
7. Continue to support industrial access requests.
8. Include all agencies involved in transportation and transportation safety, including
the State Police, in the transportation planning process.
9. Explore the desirability of utilizing private funding sources to facilitate highway
construction.
GOAL - Encourage the provision of a full range of transportation options including air, rail,
and bus services.
GOAL - Provide for adequate and safe pedestrian and bicycle travel.
Strategy 1 - Continue to support air and rail service improvements.
Strategy 2 - Work with the City of Winchester to provide bus service to the Urban areas in
the County.
Strategy 3 - Provide park and ride locations.
Strateev 4 - Provide appropriate routes for pedestrian and bicycle travel in urban and
suburban areas. Provide safe pedestrian access.
Implementation Methods:
1. Support improvements to the airport and airport access as a central factor in
economic development.
2. Study the transit needs of the urban areas in the County.
3. Review park and ride needs and identify possible locations.
4. Insure that provisions for pedestrian and
bicycle travel are irnade in developments In the urban areas.
Z
COMMUNITY FACILITIES AND SERVICES
As development continues in Frederick County, there is a need to carefully plan for the
facilities and services that will be required. Planned development will affect the
expenditures and facilities that will be needed. It will also affect the location and types of
facilities that must be provided.
There is a need to carefully monitor growth and to plan land use and facilities in a
coordinated fashion. This can be accomplished through annual comprehensive planning and
capital improvements planning.
Schools
There are nine elementary schools in Frederick County which provide for grades
Kindergarten through 5. There are twe three; middle schools in Frederick County which
provide for Grades 6 through 8. The jaFfles Wood High .h l "mh st r
iiiiiiYu�,
rof Grades 9 and 10, while +h -e. James Wood High School, Ridge afflptis, and Sherando
High School provides for grades 11 and 12. The Northwest:2egior al l� ducatiOn. Mums
NREP School provides special education services and Dowell J. Howard provides
vocational services.
Total student enrollment in Frederick County reached fl+e a relativelyhigh point of 7,775
in 1976. After 1976, enrollments declined to a low point of 6,992 students in 1982. Since
1982, enrollments have increased to 9,044 students in the fall of 1993. Changes in total
enrollment have been largely brought about by the recent changes in
school secondary enrollments.
In 1993, of the nine elementary schools, only Armel exceeds practical capacity. Eflf 'gin
S.
0pl, , ffl SE oridar enrollment to Opacity haS [leCxeased to l % total elementary scnool
enrollment is at 86% of capacity. Overcrowding has been experienced in several schools in
recent years. To combat this problem, six schools are utilizing modular units.
95
mi;
IN
Total student enrollment in Frederick County reached fl+e a relativelyhigh point of 7,775
in 1976. After 1976, enrollments declined to a low point of 6,992 students in 1982. Since
1982, enrollments have increased to 9,044 students in the fall of 1993. Changes in total
enrollment have been largely brought about by the recent changes in
school secondary enrollments.
In 1993, of the nine elementary schools, only Armel exceeds practical capacity. Eflf 'gin
S.
0pl, , ffl SE oridar enrollment to Opacity haS [leCxeased to l % total elementary scnool
enrollment is at 86% of capacity. Overcrowding has been experienced in several schools in
recent years. To combat this problem, six schools are utilizing modular units.
95
{Schools Map}
Need to add Sherando to this map.
Elf,
The opening of Sherando High School will has provided the tieeded capacity eceSSWV to
help meet eliminate the enr-r-ent recent shortage of secondary school capacity. If growth 1rir
S >Eataoi;:embl iment continues at the current rate, th6.School Board p�eeted px pct
... ............ .......
....:::...:.::.::::;:.
that additional elefenta�y secondary school capacity wi44 could be needed as early as to the
Fall of 1994.
The question remains, will there be sufficient capacity to accommodate population growth
in the foreseeable future?
Figure 8
The percentage of the estimated County population enrolled in public schools has declined
from 30.6% in 1970 to 19.0% in 1992. This trend will likely continue over the long term.
Growth in school enrollment in the future will be the result of new development, rather
than demographic trends.
The current total enrollment to capacity ratio is $7;°�a of Capacity. This ratio shatildUMT
be e is 'tzst btyi t ldenl. ,-�, r -onstr-tietion of the proposed additional eio entaF ,.heal
1
eapaeity afid seeoftdaf�' sehool eapaeity will would help to aeeoftiplish this Fedtteti
Additional secondary capacity will be particularly important to accommodate the projected
growth pressures in the secondary grades.
Great care is needed in considering the expansion of school capacity beyond what is needed
to deal with current crowding and what is needed to replace outdated facilities. Enrollment,
demographic, and development trends need to be carefully monitored.
97
Table 13
School Capacity and Enrollment
Frederick County
1993-1994
SCHOOLS
Grade
Level
Rated
Capacity
Practical
Capacity
1993-1994
Enrollment
% of
Practical
Capacity
Apple Pie Ridge
K-5
865
675
607
90%
Armel
K-5
635
585
595
102%
Bass Hoover
K-5
865
735
609
83%
Gainesboro
K-5
295
260
152
58%
Indian Hollow
K-5
635
585
558
95%
Middletown
K-5
635
585
532
91%
Robinson
K-5
370
298
256
86%
Senseny Road
K-5
739
699
595
85%
Stonewall
K-5
525
527
400
76%
Total Elementary
K-5
5,564
4,949
4,304
87%
Aylor Middle
6-8
1,082
965
722
75%
Frederick County
Middle
6-8
924
845
727
86%
James Wood Middle
6-8
1,328
1,125
813
72%
James Wood
9-12
1,350
1,250
1,330
106%
Sherando
9-12
1,350
1,250
1,129
90%
Total Secondary
9-12
6,034
5,435
4,721
87%
NREP
Ages 2-21
56
56
21
37%
Total
K-12
11,654
10,440
9,046
87%
Source: Frederick Cviiiity J4hlJU1 Board ��
Woi
Emergency Services
Company 11 - Stephens City Fire a
Company 12 - Middletown Fire and RescueCoIn
Company 13 - Clearbrook teef: Fire Eo., 1fie
Company 14 - Gore "ef: Fire Deperrt C.
Company 15 - Round Hill Community Fire and Ri
Company 16 - Gainesboro Fire Company and Rek
Company 17 - Star Tannery Fire Company
Company 18 - Greenwood Fire and Rescue Company
Company 19 - North Mountain Voltifiteef Fife Company Fire and Rescue Company
Company 20 - Reynolds Store Fire and Rescue Company
:.
NMI
WIFINNTITIN •.
: O
99
Airport
The Winchester Regional Airport is a 358 -acre, all weather, 24-hour general aviation airport
located southeast of the Route 50 interchange of Interstate 81. The facility currently has
55 tiedown spaces, a 12,000 square foot , a
ten unit and a 20 -unit T -hangar and four private corporate hangars. These hangars
accommodate 1fl3 aircraft, including 14 corporate aircraft, ranging in size from small
passenger planes to corporate jets.
On July 1, 1987, the City of Winchester joined with Frederick, Clarke, Shenandoah, and
Warren Counties to form the Winchester Regional Airport Authority. The City conveyed
ownership of the airport to the Authority, and the City and Frederick County have
100
• •
• • -
-
•
lsia:rnl:/i.�:♦:\�•.s
i . • . : '
�•��'/rr�r:��:/a:a'a��l:n�� • -
i • .
:
i ♦ i
Airport
The Winchester Regional Airport is a 358 -acre, all weather, 24-hour general aviation airport
located southeast of the Route 50 interchange of Interstate 81. The facility currently has
55 tiedown spaces, a 12,000 square foot , a
ten unit and a 20 -unit T -hangar and four private corporate hangars. These hangars
accommodate 1fl3 aircraft, including 14 corporate aircraft, ranging in size from small
passenger planes to corporate jets.
On July 1, 1987, the City of Winchester joined with Frederick, Clarke, Shenandoah, and
Warren Counties to form the Winchester Regional Airport Authority. The City conveyed
ownership of the airport to the Authority, and the City and Frederick County have
100
committed approximately $676,000 to improvements over the period between 1987 and 1992.
During 1987, the Authority acquired 21 acres adjacent to the Airport for placement of a new
terminal complex and additional hangars. The primary access roads to the airport have
been improved and sewer and water service is being provided by the Frederick County
Sanitation Authority. The Airport Authority has i updating its master plan and begs
A terminal complex has been completed, along with a 4000 gallon above ground fuel
facility. The terminal complex consists of a 9,300 square foot general aviation terminal
building, a 15,000 square yard aircraft parking and servicing ramp, and a 75 space
automobile parking area. The terminal is principally designed to accommodate general
aviation traffic. Consideration will be given to having a scheduled air carrier to provide
commuter service to the area within the next five years. Other important services provided
include 24-hour U. S. Custom Service and 24-hour service and security line.
County Offices
'
O
i i i i
O . • • • • . •
Refuse Collection, Landfill, and Recycling
Refuse collection service is provided by Frederick County at 15 refuse collection stations.
Appfomifnately half Etght of these stations consist of hydraulic compactor machines with
separable roll -off containers; the other half consist of front end dumpsters. Currently, the
County is in the process of converting dumpster sites to compactor stations when warranted
by tonnage levels.
The County should continue to convert dumpster sites to compactor sites as tonnage
increases. Consolidation of sites during the conversion process is also desirable, when
practical.
101
The Frederick County Landfill is a regional facility that receives refuse from Frederick and
Clarke Counties and the City of Winchester. The landfill is operated by Frederick County
as a proprietary fund and the landfill operation is fee sustaining. The management and
planning of landfill operations is solely the responsibility of Frederick County
The older section of the landfill, which opened in 1976, was closed in 1989. A new 160 acre
tract of adjacent land, purchased in 1986, was opened for landfilling during 1990. Both the
close-out of the old section and the construction of the new section have been carried out
in accordance with new state regulations that require much more sophisticated
environmental protection measures, including impermeable liners in all trenches, a complete
leachate collection system, and groundwater monitoring wells.
Landfill capacity has been planned for the next 25 years. The County should reevaluate
tonnage, revenue, and expenditure trends every year and set fees accordingly. The County
should continue to look for additional land adjacent to the landfill for future expansion.
The County should also continue to evaluate new technologies for waste reduction that
would extend the life of the landfill.
Pfegfaffl with a gfaflt of $15,000. This money will be used to offset expenses ineuFfed-by
the ptifeh' f the o Bled ^te als. During the 1990'x, the County will place, through
111 UI L.IIUJli1 J VL LIICi I
private contracts, recycled material collection boxes throughout the County. Most will be
located at existing eolleetion stfAtions compactor sites.
The Commonwealth of Virginia has mandated that local governments reduce their solid
waste streams by 10% by 1991, 15% by 1993, and 25% by 1995 through recycling efforts.
This will require more intensive and coordinated recycling efforts. ^ F„g",.,•.' .,I ffte i ,'s
feeaYeFy eemeF is afitieipated to meet these guidelines.
New developments need to be provided with appropriate means of solid waste collection.
Either private collection or new collection stations should be provided by new developments.
Sewer and Water Facilities
The location of public sewer and water lines determines where urban development will
occur. The Urban Development Area described by the Frederick County Comprehensive
Plan is roughly the same as the service areas for public sewer and water. Because sewer and
water facility location determines the location of urban development, great care is needed
in planning where such facilities will be provided.
The Frederick County Sanitation Authority has the responsibility for the treatment,
transmission, and distribution of potable water and the collection and transmission of
wastewater. Most of the sewer and water mains and laterals in the County are owned,
operated, and maintained by the Sanitation Authority.
Frederick County and the Sanitation Authority have executed a Facilities Planning
Agreement which sets forth procedures for the planning of sewer and water mains in the
102
County. The agreement includes provisions for adopting a water and sewer facilities plan
as a part of the Comprehensive Plan, specifying the location of mains over eight inches in
size. It also includes provisions for review and update of the plan and for including sewer
and water facilities projects in the Frederick County Capital Improvements Plan.
The City of Winchester owns and maintains sewer and water lines in portions of the County
adjacent to the City corporate limits. Such lines have been extended into the County
following a previous agreement between the City and the County. A Gravity Flow Sewer
Agreement between the City and the County has been adopted which specifies that either
jurisdiction may transmit sewage from the other jurisdiction to the Opequon Plant if that
sewage flows by gravity to the receiving jurisdiction. This agreement requires that the
delivering area be of a minimum size and that receiving facilities have sufficient capacity.
The delivering jurisdiction will be charged for the service provided by the receiving
jurisdiction.
The Winchester -Frederick Service Authority has the responsibility of providing wastewater
treatment for the Sanitation Authority and the City of Winchester. The Service Authority
currently owns the Opequon Water Reclamation Facility, the Parkins Mill Plant and the
Stephens Run Plant. 4 `he SeFyi and contracts for there operation of
the -plates. The City operates the Opequon Facility and the Sanitation Authority operates
the other facilities.
Sewage treatment in the County is provided by three sewage treatment plants: the Opequon
Water Reclamation Facility, the Stephens Run Plant, and the Parkins Mill Plant. The
Opequon Plant serves the Abrams Creek drainage area and surrounding drainage areas east
and north of Winchester, and provides sewage treatment for Winchester. The Parkins Mill
plant serves the upper Opequon Creek drainage area and portions of the Wrights Run
drainage area. The Stephens Run Plant serves a small portion of the Stephens Run
drainage area.
The current capacity of the Opequon Water Reclamation Facility is 6.5 million gallons per
day. Assuming a constant connection rate of 200 connections per year, the Frederick
County Sanitation Authority has projected there will be sufficient capacity in the Opequon
Plant through the year 2005. At an 8% growth rate, capacity is projected to be sufficient
through the year 2002.
The Stephens Run and Parkins Mills Plants serve an interconnectional system of sewer lines
in the Stephens Run, Wrights Run, and Upper Opequon drainage areas. The combined
rated capacity of these plants is 750,000 gallons per day. The current average daily flow of
these plants is 700,000 gallons per day.
The Sanitation Authority has under design an expansion of the Parkirns Mills vJastewater
Treatment Plant. The completion of this expansion is expected to be 1995, at which time
the capacity will be 2.0 mgd. This expansion will eliminate the Stephens Run Wastewater
Treatment Plant and the wastewater treatment plant serving the Town of Stephens City.
Flow from those plants will be diverted to the Parkins Mills Wastewater Treatment Plant.
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Upon completion of the expansion, the Authority projects to have about 1.0 mgd of
treatment capacity available for growth.
Figure 9
There are substantial areas of land available for development within the existing sewer
service areas. There is a need to monitor usage and consider expanding capacity at both
sewage treatment plants as needed. Both the Parkins Mill Plant and the Opequon Regional
plant can be expanded. The expansion of each plant should be considered within a five year
capital improvements plan. Projections concerning the additional connections that can be
accommodated should be reevaluated each year.
The Sanitation Authority currently purchases water from the City of Winchester under a
contract that allows a maximum of 2.0 mgd through the year 2000. The Authority has a
water treatment plant under construction that will provide an additional 2-3 mgd. This plant
is expected to be plaeed in operation IV late December i -H 1993, thereby giving the Authority
a total water supply of 4-5 mgd of water. This is sufficient capacity to meet projected
demands through the year 2000.
Figure 10
Construction of water lines along State Route 642 from the Lakeside Subdivision to Route
522 haue been completed. a Water lines along Route 522 South from the Airport to its
intersection with Route 642 are scheduled to be completed in the -spfing1sToveinber
of 1993. Sewer is being planned along a small portion of the Route 522 water extension and
t x1Fk a t zrtd #fie IZt :I31 f fit, 642: tercharage. should be cornpleted in early 1994: There is
also a definite need to provide public water to the Brucetown Rural Community Center.
These and other water line extensions are intended to deal with particular water supply and
health issues. However, since sewer lines are not planned to accompany the majority of
these water lines, their extensions will not constitute an extension of the sewer and water
service area.
104
{Sewer and Water Map)
105
Certain portions of the urban development area, such as the Apple Pie Ridge area, may not
be intended to be sewer and water service areas. Rural Community Centers that are outside
of the urban development area may be provided with some form of service, depending on
the policies established for the eat particular center.
Figure 11
The intention is that additional extensions of sewer and water service will reflect the
boundaries of the urban development area. The extension of mains into areas not included
in sewer and water services areas described by the facilities plan will require an amendment
to the Comprehensive Plan. In this way, the County will maintain an orderly process of
development. All sewer and water mains extended should be publicly owned mains.
Capital Improvements Plan
The Capital Improvements Plan (CIP) is the community's plan for public facilities. It
provides a list of projects planned for five years and is updated each year as projects are
completed and new projects added. In general, projects on the Capital Improvements Plan
are relatively expensive, fixed assets that require expenditures that don't recur annually and
last for a relatively long time.
The first year in the Capital Improvements Plan let should provide a capital budget for
the upcoming fiscal year. The scheduling of projects needs to be pial} i4 coordinated with
plans for development contained in the Comprehensive Plan. I -t The Comprehensive`Plan
sh4ttld be U.s d :a tool<to atd in pr„oide a method foF determining priorities among
projects, for estimating required funding, and for scheduling projects. The Capital
Improvements Plan helps to guide development, to achieve the most efficient use of funds,
and to maintain a stable financial program.
Facility Cost Impacts
Rezoning requests should be evaluated to determine their potential impacts on community
facilities. Costs to the county i-mpaets should be estimated in terms of what impact; the
development, which could result from the proposed rezoning, would have on facilities and
106
the t h h devel,,,,me , ; t.t�lize fdeilities These costs are
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estimated in terms of the facility use per unit of development. The estimated facility use
is determined through the use :of established multipliers which averages are cierived from
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Issues
Community facility and service issues identified include the following:
There is a need to carefully monitor school enrollments and to plan for capacity to deal
with overcrowding, replacement of outdated facilities, and population growth in the
County.
There is a need to continue supporting fire and rescue squads and to develop policies to
deal with growing emergency service demands.
House number efforts should continue in association with improved emergency telephone
systems.
The County should support improvements at the Winchester Regional Airport as a part
of the overall economic development efforts.
Improved and expanded County offices are needed.
109
110
{Community Facilities and Services Map}
111
The County should continue to monitor refuse collection sites and should make
improvements or add sites as needed.
The County should continue to monitor landfill usage and should look for additional
adjacent land for future expansion. Recycling efforts should be supported.
The County should maintain a process of careful Capital Improvements Planning
coordinated with Comprehensive Planning.
Frederick County and the Frederick County Sanitation Authority need to continue
coordinated planning of sewer and water facilities following the procedures described by
the Facilities Planning Agreement.
Frederick County and the City of Winchester need to maintain coordinated planning of
sewer and water facilities in the County through the Sewer Agreements.
Together with the County and the City, the Frederick- Winchester Service Authority should
carefully plan needed sewage treatment capacity based on trends in usage. The Service
Authority needs to develop a capital improvements plan that is coordinated with City
and County plans.
Water and sewer service should be provided to service areas in the urban development
areas through an orderly process following the Facilities Planning Agreement and using
the Capital Improvements Plan.
Additional information is needed on the impacts of new development on community
facilities.
Community Facility and Service Policy
GOAL - Appropriate services and facilities shall be provided to serve planned land uses and
development.
GOAL - Facilities and services should be carefully planned to meet projected needs.
Strateev 1 - Plan sufficient school capacity to meet projected enrollment trends and to meet
appropriate facility standards.
Strategv 2 - Recognize the changes occurring in demand for emergency services and develop
policies for dealing with those changes.
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Strategy 3 - Support expansion plans for the Winchester Regional Airport.
Strategy 4 - Develop and implement plans for expanded office space.
Strategy 5 - Monitor refuse collection and landfill use and continue to develop plans for
future improvements. Pursue recycling methods and other methods to extend the life of the
landfill.
Strate�y 6 - Carefully monitor sewer and water use and develop up-to-date improvement
plans for sewer and water facilities.
Strategy 7 - Develop and maintain formal and regular relationships and procedures between
the County and providers of facilities and services, including the Sanitation Authority, the
City of Winchester, the Service Authority, the School Board, the Regional Airport Authority,
and the Fire and Rescue Squads.
Strategy 9 - Use the Capital Improvements Plan to carefully plan community facilities and
to coordinate facilities planning with land use plans.
Strategy 10 - Require that the impacts of new developments on facilities be described and
require that the impacts are addressed through proffers and other means.
Implementation Methods:
1. Carefully monitor school enrollments and plan facilities according to enrollment
and development trends. Update the capital improvements plan each year based on
trends.
2. Study the initiation of a career system for the fire and rescue squads. Continue
to support fire and rescue squads and plan to increase support according to
development in the various service areas.
3. Develop plans for new emergency service facilities.
4. Develop methods to evaluate the impact of new development on emergency
services facilities.
5. Proceed with the design and development of new or renovated County office
facilities.
6. Continue to convert dumpster sites to compactor sites. Monitor usage. Plan for
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new refuse collection sites according to use and planned development patterns.
7. Monitor landfill use. Plan for additional landfill capacity on adjacent land.
Explore alternative disposal methods.
8. Continue to plan for sewer and water main extensions according to the agreements
established with the Sanitation Authority and the City of Winchester. Include
planned extensions in the Capital Improvements Plan.
9. Provide eelleef eft of ....,,tefials for recycling at collection stations and support a
regional materials recovery center.
10. Carefully monitor sewer and water use and develop a capital improvements plan
to accommodate projected development.
11. Consider means to provide water service to Brucetown and the Route 522 South
area.
12. Consider alternative sources of water supply.
13. Minor extensions of sewer and water service to business and industrial uses
beyond the service area may be considered if such uses conform with other County
standards. Such extensions should be reviewed by the Planning Commission for
conformance with the Plan.
14. Require that information be provided with rezoning proposals on the impacts of
development on community facilities. Impacts should be addressed through proffers
and other means. N rezoning shouldlbe approved unless all impacts are adequately
a. desse..
............................
15. Any sewer or water main six inches in diameter or larger, extended or existing
within an area proposed for inclusion within the County's Sewer and Water Service
Area or Urban Development Area, should be dedicated as a public line to be owned
and maintained by the County Sanitation Authority or City of Winchester when
appropriate.
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PARKS AND RECREATION
The purpose of this chapter is to outline the County's recreational policies and to identify
implementation methods for accomplishing recreational facilities, programs, studies, and
plans. It is not meant to be a detailed recreation plan, but rather it is a part of the County's
continuing planning process and a guide to decision making.
Facilities
The County currently owns and operates two regional parks. Clearbrook Park, located five
miles north of Winchester on Route 11, consists of approximately 55 acres and Sherando
Park, located two miles east of Stephens City on Route 277, consists of approximately 330
acres. Both regional parks currently serve the County's population with both active and
passive recreational programs and facilities. In addition to these regional parks, five
neighborhood parks have been developed which serve a more specific group with more
limited facilities than those in the regional parks.
The neighborhood parks are located at: Reynolds Store Fire Company and Gainesboro Fire
Company in the Gainesboro District, North Mountain Fire Company and Round Hill Fire
Company in the Back Creek District, and at Frederick Heights subdivision in the Shawnee
District.
These neighborhood parks consist primarily of playground equipment for young children.
The exception is the park area at Frederick Heights subdivision which is an 11 acre facility
and contains a variety of recreation facilities.
In 1987, master development plans were adopted for both Clearbrook and Sherando Parks.
These master plans establish development goals for each park, identify unmet recreational
needs, provide unified facility plans, and propose a development program for each park.
The master plans for both Clearbrook and Sherando Parks reflect the recommendations of
the County residents and national standards as outlined in the Virginia Outdoor Plan.
These plans emphasize the development of a swimming pool complex and additional sports,
picnic, maintenance, and other support facilities.
Since the adoption of the master plans, the County has completed the construction of: two
outdoor swimming pool complexes, two soccer fields, a maintenance building, one shelter,
a playground area, and a beach volleyball court. The County has also purchased an area
to house the maintenance operation for Clearbrook Park. Additional recreational facilities
currently provided are athletic fields, playground, and picnic areas with a variety of
recreational opportunities such as horseshoes, fishing, paddleboats, and volleyball, open
space areas and support facilities. Clearbrook Park, Sherando Park, and the neighborhood
parks are maintained by the Parks Division of the County Parks and Recreation
Department.
The Residential Performance zoning regulations require that open space be provided in
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most types of suburban development. In addition, recreational facilities are required in
most types of multifamily development. It is required that such open space and facilities
be dedicated to homeowners associations. There is a need to examine recreational and park
needs in suburban and urban areas.
Specifically, there is a need for the development of a bikeway and trail system plan. This
would provide the County with a systematic approach to trail development, which in turn
would afford residents of subdivisions the ability to travel safely from their homes to schools,
stores, work or recreation areas without having to share the overcrowded collector roads
with automobiles. Also, there is a need to examine residential performance zoning
regulations to insure that the recreational needs are being met by what is currently being
required of the developer.
Programs
The Recreation Division of the Frederick County Parks and Recreation Department was
created to provide a comprehensive and accessible program of recreational services and
activities for the residents of Frederick County. A diverse range of recreational and
enrichment programs was provided for all age groups. This broad base of activities includes,
but is not limited to, instructional classes, environmental education programs, sports and
athletics, health and fitness programs, cultural and special events, and trips and excursions.
Programming responsibilities are assigned within the Division's two interest
sections --Community Recreation, including Aquatics, and Sports and Athletics. Staff
members work together to identify, develop and implement those activities which most
closely meet the interests and desires of the community.
The Division typically implements programs along age group stratifications such as
preschool, youth, teen, adult and senior adult; however, a shift in programming emphasis has
resulted in the development of broader activities to appeal to family units. In particular,
holiday events are planned to include parent and child in a variety of leisure opportunities.
The majority of recreation programs offered by the Parks and Recreation Department are
held within the 12 public schools in Frederick County. Consequently, a wide variety of
recreation offerings has maximized use of county school buildings. The joint efforts of the
Frederick County School Board and the Parks and Recreation Commission/Department
resulted in the inclusion of recreational facilities within Sherando High School. This
community use concept has integrated facilities within the school building dedicated for
recreational programming on a full-time basis.
Citizen Participation
Citizen participation and input regarding recreation programs and park development have
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been actively solicited on a regular basis since the creation of the department in 1971.
The Parks and Recreation Commission consists of seven members, including one from each
magisterial district, appointed by the Board of Supervisors for four year terms and two
at -large members recommended by the Commission and appointed by the Board to serve
staggered four year terms.
Future Demands
To help plan for future leisure service demands, the Parks and Recreation Department has
completed master plans for the County's two regional parks, studied national standards
provided in the Virginia Outdoor Plan, and gathered survey information relating to the
provision of leisure services. Through the utilization of these and any other available
resources, it is projected that the following areas must be addressed if we are to meet future
leisure demands.
1. Land acquisition to meet minimum standards
2. Facility development to meet minimum standards
3. Development of recreational centers within our regional parks
4. Increased programming for special populations
5. Increased programming for teens
6. Greater diversity of programming so as to better meet the needs of the entire
community.
7. Establishment of trail systems and bikeways
Area Standards
As suggested by the 1989 Virginia Outdoor Plan, the area standard for local recreation and
park sites in Virginia is ten acres of developed park land per thousand population.
Today, Frederick County has a population of 45,723 and we currently maintain 404 acres
of park land. Of the 404 acres assigned to the parks, about 240 would be considered
developed.
By the year 2000, using the population projections provided by the Frederick County
Planning Department, an additional 150 acres will be needed and by the year 2010, another
150 will be required if we are to keep pace with the recommended standard of the ten acres
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per thousand. It is estimated by this department that by the year 2020, Frederick County
will need approximately 800 acres of developed park land to adequately serve the county's
population.
In meeting the ten -acre per thousand minimum standard for park land, it is recommended
by the Virginia Outdoor Plan to consider the following types of park development:
Size:
NEIGHBORHOOD PARK
5-20 acres
Plan at 3 acres/1000 Population
Service Area:
Approximately 5 - 15 minutes walking distance or 1/2 mile to 1 1/2 miles
Administrative Responsibility:
Local Unit of Government or Homeowners Association
Purpose:
The primary function of the neighborhood park is to provide limited types of
recreation for the entire family within easy walking distance. Facilities should be
provided for all age groups.
Character:
Intensive use and easy access are characteristics of this classification. Ideally, the site
would have areas that are level to gently rolling to accommodate the intensive use
facilities, with shaded areas for passive recreation.
Location:
If possible, the neighborhood park should be located near a school and/or the
neighborhood center and away from railroads, major streets and other hazardous
barriers.
Potential Facilities:
* playground
* picnic facilities
* tennis courts
* volleyball courts
* badminton courts
* walking trails
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* ball diamond
* horseshoe courts
* shuffleboard courts
* basketball courts
* football/soccer field
* fishing pond
* swimming pool
* bikeway
* recreation center
Playfields usually serve a dual purpose in this type of facility. They provide an area for
sports and running games and also serve as open space. Intensive use areas (the playground
area and hard surfaced courts) are buffered from other activities by passive natural areas
and pedestrian access corridors. Programmed activities such as organized athletics are often
suitable in neighborhood parks. Although limited parking facilities are provided, site design
should encourage pedestrian access to the greatest extent possible
Rural communities may want to consider deleting neighborhood parks and include their
function in larger community parks which could better serve the needs of widely dispersed
local population. From an economic standpoint, it would be more beneficial for a rural
locality to have a few strategically located, well designed, larger facilities than to invest in
several small sites and not have the funds to properly develop and maintain them.
Size:
COMMUNITY PARK
20-50 acres
Plan at 3 acres/1000 Population
Service Area:
Approximately 15 minutes driving time
Administrative Responsibility:
Local Unit of Government
Purpose:
Community parks should primarily support active recreation activities and he capable
of withstanding intensive use, while still containing a fair amount of open space.
Character:
The site usually varies from relatively flat open space to moderately sloping wooded
area. Such a park should be adaptable to a wide variety of recreational activities.
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Access is gained by auto, bicycles, or walking.
Location:
Locate when possible near the center of the community with good access and
serviced by a public transportation system.
Potential Facilities:
* playgrounds
* picnic facilities
* tennis courts
* ball diamonds
* horseshoe courts
* shuffleboard courts
* basketball courts
* volleyball courts
* football/soccer fields
* trails: walking, hiking, biking, fitness
* natural area
* fishing lake or stream access
* beach and swimming area
* swimming pool
* parking area
* recreation center
A multitude of activities must be provided by this intensive -use recreational facility. The
recreation center is often the focal point of the park. Organized activities are grouped in
the surrounding area. Their location is dependent upon the natural terrain, need for
control, and vehicular access. Any existing natural qualities, topography, water features,
trees, etc., should be preserved and utilized as natural buffers between activity areas as well
as to protect the recreation environment from surrounding, incompatible influences. These
natural elements should also be used to provide a space for more passive forms of
recreation such as nature walks, picnicking, and fishing.
In the rural setting, this park category may take the place of the neighborhood park. It can
better serve a widely disbursed population than two or three smaller sites. Community
parks, along with neighborhood parks (where applicable), usually meet most of the
close -to -home recreation needs of most localities.
REGIONAL PARK
Size:
50-150 acres
Plan at 4 acres/1000 Population
Service Area:
15-25 minutes driving time
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5-15 miles service radius
Administrative Responsibility:
Local Unit of Government
Purpose:
They should serve the recreational needs of large portions of the local population.
It should contain a wide variety of intensively developed areas for day use recreation
while providing ample open space with generous buffers between activity areas.
Character:
The site could vary from flat open space to moderately to steeply sloping topography.
It should be capable of supporting a wide variety of activities with ample buffer and
natural areas. Sitting on a stream or lake is highly desirable. The regional park
needs to be accessible by auto as well as pedestrians and bicycles.
Location:
When possible, locate the regional park so that it is near the center of the service
area. It should be on or near a major street providing good access to the facility.
In urban or suburban situations, easy access to mass transit is highly desirable. The
site should also be accessible by pedestrians and bicyclists.
Potential Facilities:
* playgrounds
* picnic facilities
* tennis courts
* ball diamonds
* horseshoe courts
* basketball courts
* volleyball courts
* shuffleboard courts
* football/soccer fields
* trails
* natural area
* lake or stream
* fishing/boating
* parking areas
* golf (on larger sites with ample land)
* recreation centers
* swimming pool and/or beach with a
swimming area
RECREATION CENTERS
The recreation center may be found at the neighborhood, community, district, and large
urban parks. At the neighborhood level, the recreation center is usually constructed
between 15,000 and 20,000 square feet. It generally will include multipurpose rooms, an arts
and crafts area, game room, kitchen, lounge and lobby, restrooms, and office. If a
gymnasium is not available in a neighborhood school, the recreation center may also include
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a gymnasium and locker room facilities.
The recreation center in a larger park that serves a community, district, or city area will be
considerably larger, from 20,000 - 40,000 square feet, and will include several multipurpose
rooms, gymnasium, shower and locker rooms, game room, arts and crafts area, an
auditorium or areas for performing arts, class or club rooms, kitchen, large meeting room,
restrooms, office, lounge or lobby, and some specialized areas such as a ceramics workshop
or weight room. An important consideration in all recreation facilities is to provide
adequate storage space.
Most localities that have developed guidelines for indoor facilities have adopted a standard
of .5 to .75 square feet per resident. Small centers may serve 3,000 - 8,000 neighborhood
residents while larger centers may well serve communities of 20,000 - 30,000 or more.
EXISTING REGIONAL PARK FACILITIES
Currently, the Parks and Recreation Department is responsible for operating and
maintaining the following facilities:
Clearbrook Park
Clearbrook Park, covering 55 acres, is located approximately 5 miles north of Winchester,
on Route 11. Clearbrook Park is open 365 days a year, from 8:30 a.m. to dark and includes:
* lighted athletic complex
* fishing
* horseshoe pits
* playground
* volleyball
* passive areas
* picnic shelter, tables & grills
Sherando Park
* Three -acre lake
* paddleboats
* fitness court
* vintage red caboose
* swimming pool
* maintenance & operation of all
neighborhood parks
Sherando Park is located on Route 277, 1.8 miles east of I-81, near Stephens City. The Park
consists of 330 acres, approximately one-half of which is undeveloped, on the north side of
Route 277. Sherando Park is open 365 days a year, from 8:30 a.m. to dark and includes:
* five -acre lake * swimming pool
* paddleboats * radio airplane facility
* fishing * passive areas
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* two lighted athletic complexes * four soccer fields
* volleyball * four outdoor basketball courts
* eighteen -hole disc golf course * eight tennis courts
* fitness par course * community center facilities
* horseshoe pits * playground
* picnic shelters, tables & grills h i k i n g t r a i l s
* maintenance of all outdoor areas at Sherando High School
Based on the demand standards established by the 1989 Virginia Outdoor Plan, Frederick
County should use the following recommendations as a guide for future park development.
Summary
As the population of the Winchester -Frederick County area continues to increase, there will
undoubtedly be greater emphasis placed on the County's Parks and Recreation Department.
As indicated by the standards provided in the 1989 Virginia Outdoor Plan, (referred to in
this chapter), there currently exists a need to concentrate on further facility development just
to meet present minimum standards, and a greater need to establish a long range capital
improvement program to insure the provision of the physical amenities required to meet
future leisure demands.
At this time, priority should be given to bring our park system up to the recommended
minimum standard, but strong consideration should also be given to the acquisition of park
land to meet future needs while desirable open space is still available at a reasonable cost.
In addition to the facilities that are needed to meet current and future demands, the Parks
and. Recreation Department will also need additional professional staff if we are to
accommodate an already increasing demand for recreational programs.
Recreation Policy
GOAL - Contribute to the physical, mental, and cultural needs of the community, its economic
and social well-being, and its sense of civic pride and social responsibility through a complete
program of parks and recreation.
Strategy 1 - Insure that appropriate open space and facilities are provided with new
development.
Stratev 2 - Identify the recreational, parks, and open space needs of the County.
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StrateQv 3 - Make available a wide range of year-round recreational opportunities.
Strategy 4 - Seek alternative funding methods for the provision of existing and identified
recreational needs.
Strategy 5 - Encourage cooperative efforts with private, semi-public, and public providers
of recreational opportunities.
Implementation Methods:
1. Prepare a County -wide recreation plan which identifies recreational, park, and
open space needs.
2. Continue to solicit public opinion in planning parks and recreation.
3. Continue to encourage the participation and financial support of civic groups,
businesses, and other organizations and individuals for recreational needs.
4. Continue to utilize State and Federal grants and loans for financing and
programming County recreational needs and especially for major capital projects.
5. Continue to expand our cooperative relationship with the Frederick County School
Board in jointly meeting identified County recreational needs.
6. Continue to cooperate with the private sector, the semi-public sector, and other
public providers of recreation in meeting identified recreational needs.
GOAL - Continue to develop the County's regional parks us the major source of recreational
facilities and activities.
Strategy 1 - As finances are available, improvements to the Sherando and Clearbrook Parks
should take place according to the adopted masterplans.
Implementation Methods:
1. Use the capital improvements planning process to provide improvements to the
regional parks.
2. Seek alternative sources of funding for park improvements.
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GOAL'- assure Mar appropriate recreational aci c ces are proviaea in ur an ana rural areas.
Strategy 1 - Insure that appropriate open space and recreational facilities are provided in
association with new urban development.
Strate 2 - Provide for suitable recreational opportunities for all portions of the County.
Strategy 3 - Provide for a trail system and bikeway plan.
Implementation Methods:
1. Use a County -wide recreation plan to develop standards for open space and
recreational facilities in new urban developments.
2. Use a County -wide recreation plan to identify the recreation needs of residents in
all portions of the County.
3. Identify recreation needs associated with the Rural Community Centers.
4. Review land development regulations to insure that appropriate standards are
provided for open space recreational facilities in new developments.
GOAL - Provide recreational programs and activities based on identified needs and available
funding.
Strate1 - Identify recreational program needs.
Strate 2 - Solicit public opinion on recreational programs to be provided.
Strategy 3 - Coordinate with the Frederick County School Board, the public sector, the
semi-public sector, and private organizations for the provision of recreational program funds,
services, and facilities.
Implementation Methods:
1. Prepare a County -wide recreation plan identifying program needs.
2. Develop and maintain citizen participation in the identification of recreational
program and program facility needs.
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3. Actively solicit contributions for the provision of recreational programs and
program facility needs, from all segments of the community, both private and public.
4. Structure the provision of all program facilities, such as indoor community centers,
to recognize land use decisions and policies.
5. Actively utilize public, semi-public, and private facilities for the provision of
recreational programs.
ACTION PROGRAM
Comprehensive Policy Goals
The following is a summary of the comprehensive planning goals set forth for Frederick
County:
Protect the historic resources in Frederick County.
Maintain a moderate rate of population growth-
Plan
rowth
Plan for orderly growth and development.
Provide for a balanced distribution of population growth
n County facilities through the
Provide for sufficient land and a diversity of loco tions
Reduce the cost of providing housing and puhlic facilities.
Encourage energy efficient housing and housing patterns.
Support a business climate conducive to economic activity and orderly economic growth;:
Provide support to agriculture as a major industry in the County.
Provide support to travel and tourist related activities.
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Protect the natural environment from damage due to development activity.
Provide for development according to the carrying capacity of the environment.
Identify and protect important natural resources.
Develop land in accordance with standards that provide for appropriate quality.
Confine urban forms of land development to the urban development area
Provide sii jrcient land ' far zc cpmpetitive market within the rfj
Carefidly locate and limit business and industrial areas to avoid conflicts. with at ter uses �rnd
to av .. ...... '
Let identified neral community centers serve as service centers.
Maintain the rural character of areas outside of the urban development area.
Protect the neral environment.
Allow large scale new communities with appropriate design and an appropriate balance of uses.
Provide a safe and efficient road system throughout the County.
Coordinate land use planning and decisions with transportation planning.
Provide for adequate and safe pedestrian and bicycle travel
Encourage the provision of a full range of transportation options including at 44 ani htir
serYcs
Provide services and facilities to serve planned land uses and development.
Pezctltties=and service slourd be carefully plannedto ,meet projected'needs
Contribute to the needs of the community with parks and recreation.
Continue to develop the County's regional parks.
Insure that appropriate recreational facilities are provided
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Provide recreational programs and activities.
Proposed Actions
The following describes actions or projects that need to be undertaken to achieve the goals
described above. The projects are listed in order of importance. It is not necessarily the
intention that these tasks be completed in this order. Instead, the list is intended to set
general priorities and assist in developing annual work programs.
1. Work with State agencies to insure that appropriate methods are in effect for rural
sewage disposal along with standards and procedures for approving and monitoring those
systems. Investigate the use of small community systems and sanitary districts.
2. Develop an interchange area/corridor plan for the Interstate 81, Interchange 80 - Route
50 East - Route 522 South area, which addresses land use, traffic patterns, and facilities.
3. Develop an interchange area/corridor plan for the Interstate 81, Interchange 81 - Route
7 East area, which addresses land use, traffic patterns, and facilities.
4. Provide incentives to encourage the inclusion of affordable housing in larger scale
planned developments.
5. Develop a comprehensive housing plan for the City and County to achieve decent,
affordable housing for all.
6. Develop a geographic database for the County which is continuously updated and which
can be used to monitor development in the County.
7. Develop a comprehensive system for preserving historic sites and battlefields using land
dedication and historic districts and use these historic resources to promote tourism and
education.
8. Complete the inventory, investigation, and documentation of historic sites and develop
methods to protect those sites. Recognize significant sites with plaques and signs.
9. Review provisions and policies for Rural Community Centers.
10. Develop comprehensive watershed management plans for the urban development area
to address existing drainage problems and to develop sufficient stormwater management
standards for new development.
11. Identify and investigate alternative sources of water supply. Develop methods to protect
those sources.
12. Undertake an effort to establish appropriate rural and urban residential densities based
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on the carrying capacity of the environment, roads, and facilities. Develop information to
estimate carrying capacity. Establish density standards which provide a balanced distribution
of population growth.
13. Undertake a study to identify the impacts of development on groundwater.
14. Develop an interchange area/corridor plan for the Interstate 81, Interchange 79 - Route
11 South - Route 37 area, which addresses land use, traffic patterns, and facilities.
15. Review and develop procedures and criteria for secondary and primary road plans.
16. Develop an interchange area/corridor plan for the Route 37 - Route 522 North area,
which addresses land use, traffic patterns, and facilities.
17. Develop an interchange area/corridor plan for the Route 37 - Route 50 West area,
which addresses land use, traffic patterns, and facilities.
18. Develop an interchange area/corridor plan for the Interstate 81, Interchange 82 - Route
11 North - Route 37 area, which addresses land use, traffic patterns, and facilities.
19. Undertake a study of the Albin area for inclusion as a Rural Community Center.
20. Study the public service needs and costs associated with development. Develop methods
to identify the impacts of land use decisions on public facilities and services. Accept
proffers to address the cost impacts on community facilities.
21. Work with local farmers, agricultural organizations, and agriculturally related businesses
to develop economic development strategies in relation to agriculture.
22. Work with the Towns of Stephens City and Middletown to develop plans for land in the
County surrounding those towns.
23. Develop a means to provide limited sewer and water service to the Round Hill and
Clearbrook- Brucetown-Stephenson rural community centers.
24. Develop an interchange area/corridor plan for the Interstate 81, Interchange 78 - Route
277 area which addresses land use, traffic patterns, and facilities.
25. Prepare a County -wide recreation plan identifying parks and recreation needs and
addressing the following:
Park, open space, and faC:I.ty need in the i"rb"in deve!opment Dire",
Open space and facility standards for new development
Rural and rural community center recreation needs
Program Needs
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26. Design and begin construction of new or renovated County offices.
27. Review ordinances to allow public review of development proposals in rural community
centers.
28• Continue to
support fire and rescue squads and plan to increase support according to development in
the various service areas. Develop a plan for new fire and rescue facilities.
29. Develop an interchange area/corridor plan for the Interstate 81, Interchange 83 - Route
672 area which addresses land use, traffic patterns, and facilities.
30. Study the transit needs of the urban areas in the County.
31. Undertake a study to develop standards to evaluate proposals for new EM, Extractive
Manufacturing areas.
32. Develop an interchange area/corridor plan for the Interstate 81, Interchange 77 - Route
627 area which addresses land use, traffic patterns, and facilities.
33. Develop an interchange area/corridor plan for the Interstate 81, Interchange 84 - Route
669 area which addresses land use, traffic patterns, and facilities.
34. Identify scenic vistas in the County and identify methods to protect those vistas.
35: Review development ordinances to insure that provisions for pedestrian and bicycle
travel are made in developments in the urban areas.
36. Review park and ride needs and identify possible locations.
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Annual Activities
The following summarizes some of the additional actions that should be undertaken on an
annual or continuous basis to implement the policies in the Plan. The order listed is not
meant to indicate importance.
General
1. Hold joint meetings between the Frederick County Planning Commission and the
Commissions of the City of Winchester and the Towns of Stephens City and Middletown or
use joint subcommittees to review plans, regulations, and development proposals of joint
interest. Communications between staffs on these issues should be increased and
formalized.
Economic Development
2. Continue to provide staff support and other forms of support to the Frederick County -
Winchester Economic Development Commission.
3. Continue to support industrial access requests.
4. Support improvements to the airport and airport access as a central factor in economic
development.
5. Include concerns for historic preservation and tourism in economic development
strategies.
Environment
b. Continue to develop an environmental database and use that database for general land
use planning and zoning decisions. Include information routinely collected by various
agencies. Use the database to monitor environmental impacts.
7. Require that information on carrying capacity be included with development proposals
and use that information to evaluate such proposals.
Land Use
8. Use the general urban development area boundaries to evaluate the appropriateness of
development proposals.
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9. Using information in annual reports on conditions in the County, review the boundaries
of the urban development area on an annual basis.
10. Use the Capital Improvements Plan to carefully plan land use according to existing and
planned facilities and to provide appropriate facilities for areas planned for development.
11. Coordinate capital improvements planning, road improvements planning, and land use
planning.
12. Review development and performance standards on an annual basis to insure that they
are protecting the environment, deterring impacts, and promoting development of sufficient
quality.
13. Monitor residential development each year to insure that sufficient appropriate sites are
available for suburban residential development.
14. Monitor the density of suburban residential developments each year and make
appropriate revisions to development regulations to insure that the average densities and
range of densities do not increase significantly.
15. Monitor development costs and review regulations to insure that development costs do
not increase unnecessarily and to insure that appropriate facilities are provided.
16. Provide a diversity of sites in a wide range of different types of locations for business
and industrial sites.
17. Evaluate business and industrial developments according to the appropriateness of the
site in relation to surrounding uses and the interchange development pattern.
18. Insure that industrial and business sites are provided with sufficient facilities, good
access, and appropriate locations to avoid congestion and to efficiently provide necessary
services.
19. Allow neighborhood business uses in the vicinity of residential areas. Such uses should
be limited to small areas at any particular location.
20. Require masterplans for all major developments in the urban areas.
21. Provide information on procedures for agricultural and forestal districts and actively
support and actively promote the inclusion of additional bona fide agricultural and forestal
land in districts.
22. Avoid large, higher density developments in important agricultural areas to avoid
conflicts with agriculture.
23. Use detailed impact analysis to evaluate new development proposals. Accept reasonable
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and sufficient proffers to address impacts.
24. Define an airport support area and limit new residential rezonings in the support area.
25. Allow new planned communities in the urban development area if sufficient facilities are
available.
26. Review the land development ordinances and administrative procedures to insure that
adequate provisions is airy made for administration and enforcement.
Transportation
27. Review and maintain a general road plan for the area with Winchester and the Virginia
Department of Transportation. Use the plan to identify and designate important existing
and planned travel routes. Reserve rights-of-way for planned routes and needed
improvements on development plans.
28. Use the secondary and primary road improvement planning process to carry out road
improvements.
29. Maintain and use general road plans to plan for new roads and to require appropriate
provision of roads in new developments. Accept dedications and proffers to implement road
plans. Require conformance with road plans in new developments.
30. Maintain appropriate levels of service on County roads through impact analysis, proffers,
and design requirements.
31. Explore private and other funding sources for road improvements.
Community Facilities and Services
32. Continue to plan for sewer and water main extensions according to the agreements
established with the Sanitation Authority and the City of Winchester. Include planned
extensions in the Capital Improvements Plan.
33. Carefully monitor sewer and water use and develop a capital improvements plan to
accommodate projected development.
34. Work with the Sanitation Authority, through the capital improvements planning process,
to insure that sufficient sewer and water capacity are available for expansion of business and
industrial uses.
35. Carefully monitor school enrollments and plan facilities according to enrollment and
development trends. Update the Capital Improvements Plan each year based on trends.
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36. Continue to convert dumpster sites to compactor sites. Monitor usage. Plan for new
refuse collection sites according to use and planned development patterns.
37. Monitor landfill use. Plan for additional landfill capacity on adjacent land.
38. Adopt methods to transfer costs to users of public services.
39. Use sanitary districts to provide services to rural areas.
Parks and Recreation
40. Continue to solicit public opinion in planning parks and recreation.
41. Encourage the use of State and Federal grants and loans for financing and programming
of County recreational needs and especially for major capital projects.
42. Cooperate with the Frederick County School Board in jointly meeting identified County
recreational needs.
43. Cooperate with the private sector, the semi-public sector, and other public providers of
recreation in meeting identified recreational needs.
44. Use the capital improvements planning process to provide improvements to the regional
parks.
45. Utilize the enterprise fund system to pay for the recreational programs and services
provided by the County.
46. Actively solicit contributions for the provision of recreational programs and program
facility needs, from all segments of the community, both private and public.
47. Structure the provision of all program facilities, such as indoor community centers, to
recognize land use decisions and policies.
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