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CPPC 08-12-96 Meeting Agenda� & CPCV- COUNTY of FREDERICK Department of Planning and Development 540/665-5651 FAX: 540/678-0682 LMEMORANDU TO: Comprehensive Plans and Programs Committee FROM: Kris C. Tierney, Deputy Planning Directo RE: Meeting Date and Agenda DATE: August 6, 1996 There will be a meeting of the Comprehensive Plans and Programs Committee on August 12, 1996 at 7:30 p.m. in the Conference Room of the Old Frederick County Court House. Please let me know if you are unable to attend. AGENDA 1) Discussion of draft text of the Route 11 North Land Use Plan Attached is a copy of the text which staff has developed to accompany the proposed land use plan map. The Committee members are asked to try and read the text and come prepared to share your thoughts and or concerns. If the Committee feels that the plan is in satisfactory form, the staff will be proposing a joint Planning Commission and Board work session on the plan for later this month. 2) Other KCT/cg 107 North Kent Street • Winchester, Virginia 22601-5000 ROUTE 1 1 NORTH -1 996 STUDY AREA - PROPOSED LAND USE PLAN Draft Prepared for the Comprehensive Plans and Programs Subcommittee August 12, 1996 Table of Contents Introduction.................................................. 1 The Planning Process ................................................. 3 Understanding the Route 11 North Area ................................... 4 Existing Conditions .............................................. 4 Historical Features ...... ........................................ 7 Environmental Features ........................................... 7 Objectives for the Land Use Plan ......................................... 9 LandUse ...................................................... 9 Transportation................................................. 10 Historical...................................................... 9 Environmental.................................................. 9 Public Utilities ................................................... 9 The Land Use Plan ................................................... 10 Land Use Components .......................................... 11 Infrastructure Components ....................................... 12 Transportation ............................................ 12 Sewer.................................................. 12 Water.................................................. 13 Summary.......................................................... 15 Maus Location Map ...................................................... 2 Existing Conditions Map ................................................ 6 Historical Features Map ................................................ 8 Environmental Features Map ............................................ 9 Land Use Plan ...................................................... 14 Introduction The Frederick County Comprehensive Plan contains land use plans for numerous designated areas of the County. These areas, Rural Community Centers and business corridors, are acknowledged as having specific characteristics that should be preserved and promoted accordingly. By properly planning for each area, the County hopes to guide the community toward a prosperous future. In late 1993, the County identified a shortage of available industrial sites with rail access, a vital element in recruiting potential industries. A community's ability to promote economic development may be considered the deciding factor between prosperity and despair. As a result, the county initiated a search for potential locations for such uses. Numerous key areas were identified in Northeastern Frederick County that could be attractive sites for industrial development with rail access. The aim of this plan is to identify the most appropriate locations for industrial areas, business concentrations, open space and historic and neighborhood preservation efforts within the Route 11 North area. The County does not feel that additional large scale residential development is appropriate for this area of the County. On those grounds, new residential development is not the aim of this study. The drive comes from the need to establish more employment opportunities, and create a more profitable tax base that will assist the County in continuing to maintain the high quality of life that our community's residents have become accustomed to. The challenge facing the County is to develop land use policies and regulations which will allow the Route 11 North area to continue to maintain the residential characteristics of a community, while accommodating sought after industrial uses. Portions of Stephenson and Clearbrook, acknowledged as Rural Community Centers by the County's Comprehensive Plan, are located within the study area. With this in mind, the Comprehensive Plans and Programs Subcommittee has undertaken the task of developing a long-range land use plan for the Route 11 North area. Route 11 North 1 Draft Land Use Plan The Planning Process The process of formulating a plan began in spring of 1996. The Frederick County Comprehensive Plans and Programs Subcommittee (CPPS, a subcommittee of the Frederick County Planning Commission) discussed the interests previously expressed by County Officials for locating industrial sites with rail access in Northeastern Frederick County. The subcommittee delineated a 14,700 -acre area that would become known as "Northeastern Frederick County." They also developed a list of concerns and issues that would need to be addressed during the study. A joint work session with the Board of Supervisors and the Planning Commission was held on May 22, 1996, at which time the 14,700 -acre study area, "Northeastern Frederick County" was presented. Numerous members of the Board and Commission expressed concerns that the area was too large to conduct a comprehensive land use study in a timely fashion. It was recommended that the study area be reduced to emphasize the southwestern portion of the area, including Route 11 North from Interstate 81 Exit 317 north to Clearbrook, and the CSX and Winchester & Western Railroads. The CPPS met on June 11, 1996 and delineated a 1,890 -acre study area, the 1996 Study Area", which encompassed Routes 11, 761, 664, and the two rail lines. A key determination in selecting the boundaries for the 1996 Study area" was the ability to follow the natural drainage basin of three watersheds. The 1996 Study Area would become the first portion of Northeastern Frederick County to be studied and provided a land use plan. The list of concerns and issues was also reviewed and revised to incorporate potential development concepts. At a meeting July 1, 1996, the CPPS endorsed a proposed land use plan for the study area. On July 16, 1996, a public meeting was sponsored by the CPPS and the Planning Department to present the proposed land use plan to the public. Attendance at the meeting was estimated to exceed 100 people. This turnout was attributed to the meeting notices that were advertised in the Winchester Star and the Northern Virginia Daily. WINC also broadcast the meeting notice on local radio and cable television. Flyers, which announced the time, location, and intention of the meeting were sent to all property owners within the established boundaries of the study area. Additionally, the Winchester Star ran an article the Saturday prior to the meeting, informing the public about the planning process and visions for the area. The public meeting was successful in that many of those in attendance were not opposed to the proposed plan. Numerous participants voiced interests that sewer should be extended to the area, as discussed some 20 years prior. The proposed plan attempted to separate and buffer industrial uses from existing residential uses, a proposal that received general acceptance. Route 11 North 3 Draft Land Use Plan The proposals made by the CPPS for the Route 11 North area take into consideration input received from residents and land owners within the area, both as a result of the public meeting and the comment sheets which were distributed and returned. In all, 18 comment sheets have been received. A majority of the comments received (14) were in favor of providing sewer to the study area. Also, a majority (16) was in favor of industrial de'veiopinent so long as the sense o ccommunity was not lost. Understanding the Route 11 North Area As with any study, it is very important to understand the numerous elements that exist within and adjacent to the study area. Together, elements such as environmental features and existing neighborhoods establish a community's character. Existing Conditions An overview of the existing conditions of the Route 11 North area indicate how the area has developed over time. The concentration of uses such as residential, business, industrial and public all indicate trends in development and location of uses. Observations of the existing conditions exposed characteristics such as: A number of major transportation systems currently exist within the area. Interstate 81 establishes a natural boundary along the western edge of the area. The Interstate not only acts as a natural boundary, it also contains two interchanges (Exits 317 and 321) that enable vehicular traffic to expediently exit the area, the County and the state, a valuable asset when promoting an area for economic development. US Route 11 North bisects the area in a north -south linear fashion. Route 11 enables vehicular traffic to quickly move from the center of the area to the northern and southern fringes, where Interstate 81 awaits. CSX and the Winchester and Western Railroads have rail lines paralleling Route 11 North. The availability of rail increases the opportunities for transporting freight in and out of the area. The proposed alignment of Route 37, a limited -access major arterial, transverses the southern portion of the area. This proposed road has the potential to provide direct access from the larger undeveloped land parcels to Interstate 81, bypassing US Route 11 North. Route 11 North 4 Draft Land Use Plan 2. Residential uses are generally concentrated along US Route 11 North. Three mobile home park facilities are located along Route 11 within the Stephenson community. Most of the single-family residential uses located along Route 11 North are setback at least 100 feet from the road right-of-way. 3. Industrial uses are randomly located throughout the area. Most often these uses have rail access. 4. Business uses are randomly located along Route 11 North, typically within walking distance of residential uses. 5. The southern portion of the study area is located within the Sewer and Water Service Area (SWSA). The southern portion is also within the Urban Development Area (UDA). 6. About a third of the area (670 acres) may be considered undeveloped; there are no buildings or structures apparent. This figure does not include acreage where a portion of a parcel is being utilized for commercial or industrial use but has additional acreage that could be utilized. Route 11 North 5 Draft Land Use Plan i.. //.iii .sir..,.. i'.'i`////ii.,,....._ - . n,.. .,d��//,/ / jj�/� �! Historical Features Many elements combine to illustrate an historical image of the area. In the early 1990's, the County conducted a survey to locate and understand the County's architectural and cultural history. This survey, called the Rural Landmark Survey, identified structures that satisfied a list of criteria, just one of which was a structure's age. There are 38 sites in the study area that were identified by this survey. The study area also played a key role in the Civil War. The County's Battlefield Network Plan illustrates the importance of the Civil War within Frederick County, and identifies three sites for potential Civil War preservation. These potential Civil War sites, Stephenson's Depot, Third Winchester, and the Milburn Road corridor, are illustrated on the Historical Features map and have been taken into consideration in planning for the Route 11 North area's future. Environmental Features A look into the topography and other environmental concerns is important. The Environmental Features map is used to identify floodplains and steep slopes within the area. The County Zoning Ordinance presently places restrictions on the disturbance of such elements. The southeastern portion of the study area contains a significant amount of steep slopes (steep slopes are defined as slopes greater than 15 percent). Some flood plain areas are also identified. Route 11 North 7 Draft Land Use Plan 10 Objectives for the Land Use Plan Land Use • Discourage industrial uses in close proximity to existing residential uses. • Encourage industrial uses within planned industrial parks. • Concentrate industrial uses near transportation systems, including rail and road. • Concentrate business uses around existing and proposed intersections. • Discourage spot business and industrial uses along Route 11. Transportation • Provide for additional traffic control by proposing signalized intersections. • Encourage central access points to industrial areas, minimizing new driveways and intersections with Route 11, 761, 664. • Encourage the expansion of Route 11 to a four -lane roadway. • Require connector roads within industrial areas to minimize traffic impacts on Route 11. Historical • Protect rural landmark sites as identified by the Rural Landmark Survey. • Protect the historic areas and corridor as identified by the Battlefields Network Plan. Environmental • Identify environmentally sensitive areas based on floodplains and steep slopes. Public Utilities • Determine the potential for provisions of water and sewer service to area. The Land Use Plan After compiling and understanding the community's issues, concerns and existing conditions, the committee was able to develop a proposed land use plan, a plan that achieves the study's objectives. The plan incorporates all written comments and those expressed by the Frederick County Board of Supervisors, Planning Commission, Committees, and the residents of the County. Key components of the plan are the proposed land uses and infrastructure. Future land uses within the Route 11 North area should be sensitive to existing and planned uses. All planned uses should be compatible with adjacent existing uses. Route 11 North 10 Draft Land Use Plan Land Use Components The plan has been designed to provide the opportunity to develop industrial, business, and infill residential uses in a well-planned, coordinated manner. Industrial uses are proposed adjacent to both railroad corridors and the largely undeveloped southeastern portion of the area. Industrial uses should be developed within master planned industrial parks. These industrial parks could cater to numerous industrial interests, in a planned environment. Such uses should be adequately screened and buffered from adjacent business and residential use. Industrial use is discouraged from fronting directly on along Route 11; buffering and screening should be exercised to mitigate any impacts on Route 11. The development of business uses are encouraged at designated road intersections. A transportation benefit associated with concentrating business uses at key intersections is the potential reduction in vehicle trips as individuals will be able to park their vehicles at one location and walk to another. As proposed, the residential areas would have pedestrian access to and from these designated business concentrations. Preserving and protecting the existing residential, historic, and significant open space areas within the study area is encouraged. These areas have not been designated for business and industrial use. The Developmentally Sensitive Areas (DSA), located along Route 11 and Milburn Road, has two purposes. First, it discourages any development along the Milburn Corridor; the corridor has been identified as a key contributor during the Civil War. Secondly, the DSA would call for a higher standard of development along Route 11, where residential uses dominate. Residential structure setbacks of 100 feet should be encouraged along Route 11, similar to those of existing residential uses. As the DSA is a community and historical preservation area, adjacent uses which are not compatible should be adequately buffered and screened. Development regulations should be reviewed to ensure that they protect and promote a cohesive community environment within the study area with special attention to the DSA. As with all development occurring within Frederick County, the protection of environmental features continues to be of importance. The Environmentally Sensitive Areas (ESA) delineate the location of environmental features where minimal disturbance is permitted. The ESA is primarily located in the southern portion of the study area, and contains both floodplains and steep slopes. Prior to any development, environmental protection requirements will need to be addressed. Route 11 North 11 Draft Land Use Plan Infrastructure Components As with all development proposals in Frederick County, construction of new collector roads and the installation of sewer and water within the Route 11 North area would be the responsibility of the developer. Transportation : The use of collector roads has been proposed to channel vehicular traffic to and from key intersections along Routes 11, 761, 664. These collector roads would also act as bypasses to Route 11; traffic generated by the proposed industrial uses would use the collector roads to gain access to the north and south extremities of the area. This would minimize increased traffic on Routes 11, 664, and 761. The collector roads would also provide for safer vehicular movement as vehicles will be accessing the Routes from designated locations. These collector roads are seen as a preferred alternative to permitting an excessive number of individual business and industrial entrances on Route 11. The location of collector roads shown are not intended to be precise. Development proposals submitted for specific areas would be expected to provide for roads which make the connections indicated and serve the intended function, but would not necessarily follow the precise alignments shown. As the areas develop, signalization will be required at six proposed key intersections. Procedures already in place would require that development pay a pro rata share toward the cost of such facilities. Route 11 North should be improved to a four -lane facility as traffic increases, as has been previously proposed by the Winchester Area Transportation Study (WATS). Presently a three -lane facility, it is projected that the improvement would require that six feet be obtained from either side of the existing road right-of-way. A corridor has been reserved along the proposed alignment of Route 37. This corridor is flanked on either side by proposed industrial uses, minimizing the impact Route 37 could have on residential development, and maximizing the potential for an interchange from the industrial uses directly onto Route 37. Sewer: The Frederick County Sanitation Authority (FCSA) indicates that they would have the capacity to serve the entire 1,890 -acre study area, and the natural drainage basin makes it very feasible to provide this service. It is recommended that the entire study area be included in the SWSA; providing sewer expands the opportunity for industrial development. Additional residential development is not proposed, nor encouraged, for this area of the County. Any sewer extension should be designed in a manner to serve existing residential units within the study area. Route 11 North 12 Draft Land Use Plan The location of sewer mains would depend primarily upon the property owners that initiate sewer connections (as development occurs, the costs associated with sewer extension are the responsibility of the developer). It has been determined that the locating of sewer mains along the railroad lines is possible, but the most effective long-term location for sewer mains is to follow Hiatt Run. Water: The Sanitation Authority indicates that they would have the capacity to service the entire 1,890 -acre study area. Presently, water is available to a majority of the land in the study area. With the expansion of the SWSA, water could more easily be provided to those interested. Route 11 North 13 Draft Land Use Plan Northeastern Frederick County Land Use Plan 1996 STUDY AREA —Proposed- -Land Use Plan— Business Industrial Developmentally Sensitive Areas Environmentally Sensitive Areas ■■■■■■■■■■■ Proposed Collector Roads Signalized Intersection 1996 Study Area Railroad I 17 Frederick County Planning & Development Winchester, Virginia July 1996 Summary The primary goal of this land use plan has been to identify potential industrial sites with rail access, while minimizing the disruption to existing uses. A great deal of thought has gone into laying out a planned road network that separates industrial traffic from other trips as much as possible. Those land features and community characteristics that are prized or in need of protection have been identified and efforts have been made to minimize adverse impacts. The pace of development within the study area, including the future extension of sewer service, will be based on numerous factors: the economy, desires of individual property owners, and rezoning and Master Development Plan approval by the Frederick County Board of Supervisors. As parcels within the study area are proposed for rezoning, it will be incumbent upon the Planning staff, Planning Commission and Board of Supervisors to ensure that the development proposed is in keeping with the concepts discussed in this Plan. Route 11 North 15 Draft Land Use Plan