Loading...
CPPC 02-12-07 Meeting AgendaCOUNTY of FREDERICK i� Department of Planning and Development 540/665-5651 FAX: 540/665-6395 TO: Comprehensive Plans and Programs Subcommittee (CPPS) FROM: Michael T. Ruddy, AICP, Deputy Director RE: February 12, 2007 Meeting and Agenda DATE: February 5, 2007 The Frederick County Comprehensive Plans and Programs Subcommittee (CPPS) will be meeting on Monday, February 12 2007 at 7:30 p.m. in the Board of Supervisor's Room of the County Administration Building, 107 North Kent Street, Winchester, Virginia. The CPPS will discuss the following agenda items: AGENDA 1) Discussion of subcommittee work program priorities for 2007. Staff is seeking input from the CPPS regarding the work program for 2007. A draft CPPS work program priority list is attached. 2) Discussion of the update to the Community Facilities and Services and Parks and Recreation Chapters of the Comprehensive Policy Plan. 3) Discussion of Subdivision Streets. Staff is seeking input from the CPPS regarding the use of public or private streets within the community. A discussion of this issue is attached for your information. 4) Other Access is limited during the evening hours. Therefore, it will be necessary to enter the building through the back double doors of the Board of Supervisors Room, located in the rear of the new addition of the County building p would encourage committee members and interested citizens to park in the County parking lot located in the rear of the building and follow the sidewalk to the back double doors of the Board Room. 107 North Dent Street, Suite 202 • Winchester, Virginia 22601-5000 Item #1: 2007 CPPS Work Program Priorities Staff is seeking input from the CPPS regarding the 2007 work program. This is an opportunity for the subcommittee to set work priorities for the year. These priorities will be studied by staff and forwarded to the subcommittee for action. Below is the list of CPPS related priorities that is made up of items distributed at the 2006 Planning Commission retreat and items discussed throughout 2006. Please take the time to fill out this work program list and add others that you believe are important. This list will be discussed at the February 12th meeting and at the 2007 Planning Commission Retreat. CPPS Work Program Priorities Rank Project Title Complete a comprehensive review of the County's Comprehensive Policy Plan. Develop Neighborhood Village and Urban Community Center Land Use Plans for specific locations of the County's Urban Areas as part of the ongoing implementation of the UDA Study. Develop a coordinated approach to the planning of public services and community facilities within the County. Develop Corridor Land Use Plans to enhance the corridors and gateways of the community. Conduct an update to existing land use plans to reflect current planning efforts. Develop Small Area Plans for the Rural Community Centers. Develop a long range transportation plan which complements the regional effort made by the Metropolitan Planning Organization and coordinates with recent updates of the Eastern Road Plan and Bike and Pedestrian Mobility Plan. Continue efforts to implement the Winchester -Frederick County Battlefield Network Plan through the development of grant applications and assistance in plan preparation. Develop an on-line process for the review and completion of various development applications. Increase the level of information available through the County's Webpage and promote interaction on planning issues through this forum. Itein #2: Update of the Community Facilities and Services and Parks and Recreation Chapters of the Comprehensive Policy Plan The Planning Department will be updating the 2003 Comprehensive Policy Plan in early 2007. In an effort to update the Community Facilities and Services and Parks and Recreation Chapters of the Plan, relevant departments were asked to review the description of their facilities and services as currently found in the plan. They were then requested to draft a new version and forward this to the Planning Department. The description of services and facilities, and the issues, goals, strategies and implementation sections are under review. The CPPS initially reviewed the information provided by the relevant departments at their November 2006 meeting. A subsequent joint meeting was held in December with representatives from the Parks and Recreation Commission. This meeting sought to advance the discussion and coordination from the Community Facility providers and also included a representative of the School Board. It is anticipated that the Comprehensive Plans and Programs Subcommittee (CPPS) will provide a recommendation on the enclosed text changes that will be forwarded to the Planning Commission for review prior to adoption by the Board of Supervisors. Attached you will find the existing chapters in the Comp Plan, and the updated sections that were submitted from the Parks and Recreation Department and Public Works Department. Proposed new text changes are shown in red and underlined. Also attached is a new map from the School Department. Proposed New Text for: Community Facilities and Services Section (substantial changes are noted in red underlined text) Proposed new text for Schools: Also see included map. Frederick County Public Schools is the 22"d largest of the 134 systems in the state of Virginia. There are over 2,000 full time employees as of 2007 thus making the Frederick County School Board the second largest employer in the Winchester -Frederick County Area. The school district has 11 elementary schools 4 middle schools 3 high schools and 1 alternative education/career & technical school. The school division also owns and operates two regional special education facilities: Northwestern Regional Education Program(NREP),housed in NREP Center, and the Robinson Educational Center. The NREP is a regional pLogram that provides special education services to students from Frederick and Clarke Counties and the City of Winchester. Other support facilities include the administration building, the maintenance/warehouse facility, and the transportation facility. In addition to the 24 schools and administrative support facilities, there are 32 modular units and two Sprung Instant Structure units maintained as classrooms and offices. The schools stem also provides building maintenance services for the count government. During the past several decades, the student enrollment in the school division has increased steadily. Historical data shows student membership grew by 1,540 students over the past five years. This was an increase of 14.5% when comparing FY2006 to FY2001. Student membership from FY 2006 to FY2007 grew 2.7% with a net increase of 326 students. In order to meet the need for additional school space, a number of school construction and renovation projects have occurred over the past decade. Despite the completion of these capital facilities projects, overcrowding is still a problem in a number of Frederick County's Public Schools. In order to meet the need for projected membership over the next decade, a number of new construction and renovation projects have been proposed through the capital improvements plan (CIP). With the completion of the replacement Gainesboro Elementary School in 2007 the 12th 13th and 14th elementary schools are proiected to open between FY2010 and FY2016. A renovation to Apple Pie Ride Elementary School and an addition to Bass -Hoover Elementar School are also projected within this same time period. As students matriculate from elementary school to middle school and high school levels, the need to provide additional space for the increase in student population and to meet changing education requirements will become a necessity. Between FY2011 and FY2013, it is projected that a 5th middle school a 4th high school a renovation to James Wood High School a renovation/addition to Robert E. A for Middle School and an addition to Bass -Hoover Elementary School will also occur within the same time period In addition to the space need to accommodate student growth, there is also a need for larger administrative and operation support facilities. The current transportation site can no longer adequately accommodate work performed at this facility,and the current location is not sufficient to expand the existing facilfty to safely maintain a bus fleet qpproaching approaching175 school buses. The central administration building is over 40 years old and the current number of staff exceeds the building's safe -carrying capacity. This issue will require attention within the next few years. A plan for the replacement of Frederick County Middle School in the proposed CIP and the renovation of that facility to house the central administration offices will address this issue. As Frederick County looks toward the future it will need to plan for new school facilities that are strategically located to help mitigate overcrowding for staff and students The rate of residential growth continues to impact the school system as subdivisions are developed within the Urban Development Area (UDA). Additionally, it is important to monitor residentialrg owth outside of the UDA that has historically accounted for a least one-third of the new residences in Frederick County. Along with growth in student enrollment, the school division is faced with the responsibility of providing instruction in order to prepare students to work and live in the 21St century. The use of technology as a tool in nearly every facet of education has dramatically changed the way in which instructional services are provided to students. Required technology -related instruction at all levels will continue to necessitate increased expenditures for computers and computer related hardware/software. Mandates from the federal and state governments, particularly in special education services, will require localities to expend additional financial resources to meet education requirements. The requirements associated with technology -related instruction and the provision of appropriate special education services to students will create the need for investment in future capital projects with the school division. The school division and the Board of Supervisors have made major efforts to consolidate services in order to serve the residents of Frederick County more effectively which include the following: • Cooperative agreements relative to sharing school facilities for recreation use by a wide range of community organizations • Maintenance of school grounds, provided by the Department of Parks and Recreation, which has resulted in greater utilization of space. • Maintenance of Frederick County's office complex provided by the school division's Building & Grounds Department • Warehouse space in the Buildings and Grounds Department's Facility, provided by Frederick County School Board, for other local government departments • Fueling services to other local government departments provided by the school division's transportation department. Also, whenever possible, the school board has endeavored to support other Frederick County departments by making school facilities available during non -school hours for community and recreational use. Proposed new text for Emergency Services: None. Proposed new text for Handley Library: Library service is provided to Frederick County through the Handley Regional Library, which also serves Clarke County and the City of Winchester. Currently, there are 21,107 active registered library card holders in Frederick County. The regional system supports education, preschool through post -secondary, by providing assistance and research materials for projects and papers, and by being open weeknights, Saturdays and some Sundays. The library is also open during the summer when schools are closed. It is also an important resource for adults seeking to improve their skills and for introducing preschoolers to books and reading. The library also provides the business community and the general public within information for their research needs as well as recreations reading. The Bookmobile service to the residents of southern and western Frederick County was expanded in July of 1996, as a result of an agreement between the Library and the Trinity Lutheran Church in Stephens City. This agreement has allowed the library to use the church parking lot on Wednesdays and Thursdays as a Bookmobile stop. In addition, Trinity has allowed the library to offer story hours for children in the church hall. The regional library system continues to be below per capita state standards in the areas of books, square footage, seating, and periodical holdings; however, important steps have been taken to remedy this. The predominant project through the County's CIP is the construction of a Northern Frederick County Branch This project entails the acquisition of 3 to 4 acres and the construction of a 7,000 square foot library branch with expansion possible to 10,000 square feet along Route 522 N near Cross Junction. Initial parking would accommodate 35 vehicles There is no library in this area of the county to serve residents The residents of the Gainesboro District comprise the largest population group the greatest distance away from a library. The library would serve members of the population from toddlers to senior citizens Another important capital project for the Library will be the expansion of the parking lot and sidewalks at the Bowman Library Branch This proposal would expand the parking lot on the Lakeside Drive side of the library from 101 to 221ap rking spaces and to provide a sidewalk that will extend agpproximately 400 to 500 feet beyond the sidewalk that now borders the parking lot to connect to the sidewalk on Lakeside Drive The parking lot expansion is needed to relieve overcrowding and to accommodate library patrons The sidewalk is necessary o provide safe access for pedestrians to the library. Planning consideration for alternative modes of transportation such as bicycle connectivity should also be considered Proposed new text for Winchester Regional Airport: The Winchester Regional Airport is a 376 -acre, all weather, 24-hour general aviation airport with a 5,500 foot long runway. The Airport is located south east of Interstate 81. The facility currently has 75 tie down spaces, two 12,000 square foot public clear span hangars, 62 T -hangars, and three private corporate hangars. Based aircraft total 115, and range in size from single engine to large cabin craft and business aircraft. Services available include 24-hour U.S. Customs and Immigrations, 24-hour line service, automated weather observation system, computerized weather and flight planning equipment, high speed internet service, and full instrument landing system. In addition to these flight related services rental car and catering services are also available. The Winchester Regional Airport Authority (WRAA) was formed by the Virginia General Assembly on July 1, 1987. The Authority consists of representatives from the City of Winchester and Frederick, Clarke, Shenandoah, and Warren Counties. Since its formation, the WRAA has embarked on an extensive airport improvement program. Major capital improvements have been accomplished in order to comply with Federal safety and design standards. Completed construction projects include: a 1,100 foot runway extension, pavement resurfacing of the entire runway, relocation of the taxiway, the creation of safety areas at each end of the runway, and the remarking of the runway and taxiway. New buildings constructed under this program include a modern general aviation terminal, a 12,000 square foot clear span hangar, a maintenance hangar with Fixed Base Operator offices, and 62 T -hangar units. Other completed projects include the airfield lighting upgrade, installation of a 60,000 gallon above ground fuel storage facility, a security fence around the Airport's perimeter, and the installation of a precision instrument approach to provide better all weather access to the Airport. Collaborating with Frederick County and the Virginia Department of Transportation (VDOT), the Authority has also made improvements to primary access roads for the Airport. Also completed was the relocation of Airport Road to remove a portion of the road which infringed on controlled airspace. Sewer and Water service is also established for the Airport. To date, more than $19 million dollars has been invested in the Winchester Regional Airport's capital improvements, equipment, and promotions through funding received from the Federal Aviation Administration, Virginia Department of Aviation, and the local jurisdictions. Remaining capital projects include the acquisition of land along Bufflick Road for noise abatement, development of the northern side of the runway, renovation of the 17 year old terminal building and construction of an aircraft wash rack. Through the support of the member jurisdictions, the Airport will continue to evolve into a modern, first class air transportation facility which will assist economic development endeavors in the attraction of new industrial and commercial businesses to the region. Proposed new text for County Offices: In addition to the County's main 100,000 square foot administrative office complex in downtown Winchester, construction began on a 68,000 square foot for Public Safety Building was in the summer of 2006. The new facility, which is scheduled to open in spring of 2007 is located south of Route 50, adiacent the regional airportand will house the Fire and Rescue and Sheriffs departments. This facility is anticipated to accommodate the space needs of these two departments for 15-20 years The building and site were also designed to allow for future expansion of an additional 30,000 square feet Proposed new text for Refuse Collection, Landfill, and Recycling: Eleven refuse collection stations are located throughout Frederick County. Nine refuse collection stations consist of hydraulic compactors with separable roll -off containers and collection facilities for recyclables. Two sites consist of front end dumpsters and collection containers for recyclables. The County converts dumpster sites to compactor stations when warranted by tonnage levels. When practical, the consolidation of sites during the conversion process is also desirable. For residents who prefer curbside refuse collection service is provided by a number of private haulers. The Frederick County Landfill is a regional facility which receives refuse from Frederick and Clarke Counties, as well as the City of Winchester. The landfill is operated by Frederick County as an enterprise fund and the landfill operation is fee sustaining. The management and planning of landfill operations are solely the responsibility of Frederick County, with input from an oversight committee comprised of representatives from Frederick and Clarke Counties and the City of Winchester. Closure of the older section of the landfill, which opened in 1976, was completed in 1994. A new 160 -acre tract of adjacent land, purchased in 1986, was opened for landfilling in 1993. Approximately 90 acres of this tract have been permitted for landfilling under current Subtitle "D" Solid Waste Regulations. Both the closure of the old section and the construction of the section were carried out in accordance with state regulations that require sophisticated environmental protection measures, including: composite impermeable linersa complete leachate collection system, leachate treatment facility, groundwater monitoring, and gas monitoring. In an effort to extend the useful life of the municipal solid waste landfill, a 109 acre wooded tract was purchased from Ryland Carper for the future development of a construction debris landfill. The permitting, design, and construction of this new CDD landfill were completed in 1998. Through diversion of bulky, construction debris to a separate landfill; an amendment to the state permit allowing vertical expansion and improved compaction technologies the life of the landfill has been extended to approximately 40 years. A new program to recirculate leachate or liquids through the landfill will also increase decomposition and extend the life of the municipal solid waste landfill. The County should continue to evaluate new methods for waste reduction and support recycling programs, both of which will extend the life of the landfill. During the 1990s, the County placed collection boxes for recyclable materials at each of the citizens' convenience areas located throughout the County. In 2004, containers were also added at dumpster sites. Through this voluntary collection effort, the County was able to meet the 1995 state recycling mandate of 25 percent. Due to the rapid growth in Frederick County, additional programs have been implemented to enable the County to exceed the state's 25 percent recycling goal. These programs include: brush and yard waste mulching, composting, waste oil recycling, oil filter recycling, cardboard and phone book recycling, tire shredding, household hazardous waste collection, and electronics recycling. It is essential that new residential developments are provided with an appropriate means of solid waste collection. Either private collection or new collection stations, including land, should be provided by developers. Proposed new text for Sewer and Water Facilities: See Attached. Proposed new text for Capital Improvements Plan: None. Proposed new text for Facility Cost Impacts: Rezoning requests should be evaluated to determine their potential impacts on the community facilities. Costs to the County should be estimated in terms of what impact the development, which could result from the proposed rezoning, would have on facilities and infrastructure. These costs are estimated in terms of facility use per unit of development. The estimated facility use is determined through the use of established multipliers which use averages derived from existing development. These multipliers set out such factors as: expected numbers of vehicle trips, school children, gallons of sewer and water usage per dwelling unit, square footage of commercial use, or person. The demand on various facilities resulting from a proposed rezoning can then be estimated based on the costs of facilities listed in the Capital Improvements Plan. Initially, costs are estimated in terms of the actual costs of providing facilities to support the potential development. In 1991, Frederick County's first impact model was developed. The fiscal impact model was utilized to project the fiscal impacts of rezonings on public schools, parks and recreation, and fire and rescue services for capital facilities costs. In 1998, a revised version of the impact model was adopted by the Board of Supervisors. This new model was designed to project the fiscal impacts of miscellaneous public facilities, as well as the public agencies that were accounted for in the previous impact model. The impact model projects the gross potential costs of the facilities that would be needed to support a new development using the basic formula described above. In 2005, the Board of Supervisors endorsed for use a new Development Impact Model (DIM) designed specifically for Frederick County. This model projects the capital fiscal impacts that would be associated with specific development projects on the budget of Frederick County Government and the Frederick County School Board The DIM was developed to represent the budgetary structure of the County and could be used to evaluate future land use planning scenarios. No rezoning should be approved unless the net impacts on community facilities are positive, or if the negative impacts can be adequately addressed through proffers or some other means. A request for rezoning may be turned down even though all fiscal impacts appear to be addressed. If there are other impacts which are not addressed by the rezoning application, or if the request does not conform to this plan, a similar method should be developed for determining the impacts of proposed developments on transportation systems and other public facilities. Proposed new text for Issues: None. Proposed new text for Community Facility and Service Policy: None. Proposed new text for 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. 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 facilities. 4. Continue to convert dumpster sites to compactor sites. Monitor usage. Plan for new refuse collection sites according to use and planned development patterns. 5. Monitor landfill use. Plan for additional landfill capacity on adjacent land. Explore alternative disposal methods and new technologies. 6. 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. 7. Provide for recycling at collection stations and support a regional recycling center. Encourage private haulers to offer recycling services to their customers. 8. Carefully monitor sewer and water use and develop a Capital Improvements Plan to accommodate projected development. 9. Consider means to provide water service to Brueetown. 10. Consider alternative sources of water supply. 11. Minor extensions of sewer and water service to business and industrial uses beyond the service area may be considered if such uses conform to other County standards. Such extensions should be reviewed by the Planning Commission for conformance with the Plan. 12. 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. No rezoning should be approved unless all impacts are adequately addressed. 13. 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 Are 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. 14. Plans for new facilities should be based on demand projections as derived from population projections in the Comprehensive Plan. Proposed New Text .for: Parks and Recreation Section (Substantial changes are noted in red underlined text) PARKS AND RECREATION SECTION FREDERICK COUNTY COMPREHENSIVE PLAN The purpose of this chapter is to outline the County's recreational policies and identify implementation methods to accomplish the stated goals for recreational facilities, programs, studies, and plans. This narrative is a broad overview of parks and recreation goals, needs and standards, and serves as a guide to decision making. This overview is a part of the County's continuing planning process. Facilities The County currently owns and operates two district parks. Clearbrook Park, located five miles north of Winchester on Route 11, consisting of approximately 55 acres (44 which are owned by the County) and Sherando Park, located two miles east of Stephens City on Route 277, consisting of approximately 334 acres. Both district parks currently serve the County's population with active and passive recreational programs and facilities. The four County neighborhood parks are located at: the Reynolds Store Fire Company and Gainesboro Fire Company in the Gainesboro District, Round Hill Fire Company in the Back Creek District, and the Frederick Heights subdivision in the Red Bud District. These neighborhood parks consist primarily of playground equipment for young children. In 1987, master development plans were adopted for both Clearbrook and Sherando Parks. These master plans established development goals for each park, identified unmet recreational needs, provided unified facility plans, and proposed 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, additional sports venues, picnic areas, and maintenance support facilities. In 2001, the Sherando Park Master Plan was revised and adopted. Since the adoption of the Master Plans, the County has completed the construction of: two outdoor swimming pool complexes, four irrigated soccer fields, a maintenance building, three shelters, a gazebo, two playground areas, two sand volleyball courts and two fields of a four field softball complex. 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, volleyball, open space areas, and support facilities. Clearbrook Park, Sherando Park, neighborhood parks and all public schools are maintained by the Parks Division of the County Parks and Recreation Department. To date, the County has constructed a 2.4 mile bicycle/pedestrian trail to serve several residential areas east of Stephens City. The County has also committed to the construction of a.6 mile trail to serve residential areas on the northern perimeter of Sherando Park. These bicycle facilities will link those residential areas with Sherando Park and Sherando High School. Additional trails would provide residents the ability to travel safely from their homes to schools, stores, work or recreation areas without having to share the overcrowded arterial and collector roads with automobiles. The majority of recreation programs offered by the Parks and Recreation Department are held within the 18 public schools in Frederick County and the Parks and Recreation Department's Community Centers. Consequently, this wide variety of recreation offerings has maximized the use of county school buildings. The joint efforts of the Frederick County Public Schools and the Parks and Recreation Department resulted in the inclusion of recreational facilities within Sherando High School. The Parks and Recreation Department's Community Center, which adjoins Sherando High School, opened in September of 1993 and contains two racquetball courts, a weight room and a multipurpose room with kitchen. Building upon the Sherando concept, the Orchard View Community Center, which is attached to Orchard View Elementary School was opened in August 2000. This facility features a full-size gymnasium available for recreational activities during non -school hours. The Evendale Community Center, our third center, opened in 2006 includes two multi-purpose rooms and a full size gymnasium. 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 is provided for all age groups. This broad base of activities includes, but is not limited to, instructional classes, outdoor adventure programs, sports and athletics, lifetime leisure and fitness programs, cultural and community events, as well as, trips and excursions. Programming responsibilities are assigned within the Division's four interest sections: 1. Community Events 2. Before & After School Programs 3. Sports & Athletics 4. Lifetime Leisure and Fitness 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 within age categories such as preschool, youth, teen, adult and senior adult. Current Needs and Future Demands To meet present requests and plan for future leisure service demands the Parks and Recreation Department has completed Master Plans for the County's two District Parks through community involvement; studies of national standards provided in the Virginia Outdoor Plan; and surveyed information relating to the provision of leisure services. Through utilization of these and any other available resources it is projected that the following areas must be addressed if we are to meet leisure demands. 1. Land acquisition to meet minimum standards. 2. Facility development to meet minimum standards. 3. Development of recreation centers. 4. Increased programming for special populations. 5. Increased programming for teens. 6. Greater diversity of programming to better meet the needs of the entire community. 7. Expansion of trail systems and bikeways. To serve our current population and ensure adequate public park land and recreational facilities are available for future generations of Frederick County residents the Parks and Recreation _Commission supports an approach which would require developers to set aside open space for use by the Home Owners Association and encourage a proffer which would enable the county to accomplish a master planned urban park system With the required open space set aside provided by the developer, the Home Owners Association would have the option of developing recreational amenities of their choosing. The developer would also have the opportunity to include features which may help market their property. The county would then encourage a proffer, based on the approved urban park master plan of land if determined suitable If land within a certain development does not conform to the urban park master plana monetary proffer to _help offset the cost of completing the plan could be considered The Parks and Recreation Commission would also advocate developers being required to offer easements and construct pedestrian/bicycle trails through their developments Maintenance and upkeep of these public trails would then become the responsibility of the Home Owners Associations The acquisition of these public trail easements would be necessary to provide an array of non vehicular access to the public parks, schools, libraries and commercial establishments The Parks and Recreation Commission also recommend the county actively pursue land acquisition and facility development through appropriations bond referendums donations partnerships and bequest. Additionally, the Parks and Recreation Commission would support the monetary proffers for parks and recreation being put into an interest barring account with all interest earned being added to the proffer intended for parks and recreation capital development. Area Standard As suggested by the 2002 Virginia Outdoor Plan, the area standard for local recreation and park sites in Virginia are ten acres of developed park land per thousand populations. Frederick County has a population of approximately 70,575 (based on 2006 estimates provided by the Planning Department) and currently maintains 400 acres of park land. Of the 400 acres assigned to the parks, about 220 acres would be considered developed. Using the population projections provided by the Frederick County Planning Department, an additional 286 acres are needed to meet the current demand; another 37 acres by 2010 and 60 acres by 2015 will be required if we are to keep pace with the recommended standard of the ten acres per thousand population. It is estimated by the Parks and Recreation Department that by the year 2020, Frederick County will need approximately 843 acres of developed park land to adequately serve the County's population. The following are different park types for development: MINI PARK Size 0 — 4 acres Service Area %4 Mile Administrative Responsibility Local Unit of Government Pmose The Mini parks offer close to home open space and limited recreational amenities which are typically accessible by bicycle/pedestrian trails. Mini Parks have a service area of approximately 1/4 mile and are less than five acres It is important for these parks to be accessible by bike/pedestrian trails In most cases it is not practical to include athletic fields or major facility development in a mini park As a result these areas offer very little in terms of design elements which create a self policing environment These areas can become attractive to the occasional/drop—in visitor and supervision is often necessary to ensure the park remains an asset to the community. Mini parks are the least desirable type of park for inclusion into a public park system because the are small inefficient to maintain and difficult to police. Typically, the amenities found in the Mini Park are the same as found in home owner association open space areas However, if strategically located and offering a unique value not available as a Home Owners Association recreational unit the Mini Park may be considered. NEIGHBORHOOD PARK + Size 5-24 acres Plan at 3 acres/1000 Population gPrvir•P Aran Approximately 5 — 15 minutes walking distance or % mile to 1 '/2 miles Administrative Responsibility Local Unit of Government. 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 Badminton Courts Ball Diamonds Swimming Pool Basketball Courts Volleyball Courts Tennis Courts Fishing Pond Shuffleboard Courts Recreation Center Picnic facilities Trails Horseshoe Pits Bikeway Football/Soccer Field Play fields 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, well designed, larger facilities are likely to be less expensive to maintain than several small sites. COMMUNITY PARK Size 25-99 acres Plan at 3 acres/1000 population Service Area Approximately 15 minutes driving time Administrative Responsibility Local Unit of Government PLiMose Community parks should primarily support active recreation activities and be 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. Access is gained by auto, bicycles, or walking. T .no.atinn Locate when possible near the center of the community with good access and serviced by a public transportation system. Potential Facilities Same as Neighborhood Park in addition: Natural Areas Lake or Stream Boating/Fishing Parking Areas Golf Beach Area DISTRICT PARK Size 100-999 acres Plan at 4 acres/1000 population Service Area 15-25 minutes driving time 5-15 miles service radius Administrative Responsibility Local Unit of Government Pum District Parks should serve the recreational needs of large portions of the local population. They 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 hosting a diversity of activities, effectively buffering natural areas and open space from active recreation areas. A site location along a stream or lake is highly desirable. The regional park needs to be accessible by auto, as well as, pedestrians and bicycles. Location Where possible, regional parks should be located near the center of the service area, and on or close by an arterial or major road providing good access situations, easy access to mass transit is highly desirable. pedestrians and bicyclists. Potential Facilities Same as Community Park to the facility. In urban or suburban The site should also be accessible by GREENWAY Size Any length referable longer than one mile Typically 75-100 feet or wider Service area Dependant upon the location size and significance of the corridor Administrative Responsibility Federal, state, local or public/private partnership Purpose Greenwa s are established to protect, preserve,and maintain existing natural and cultural corridors-, to link population centers with recreational educational and business areas and other population centers,• and to provide recreational and non -motorized transportation opportunities along these corridors by usin natural features (ridge -lines, steep slopes), utility ri hts-of-wa and watercourses (streams, rivers, canals etc.). Character Depending on the location it can range from rugged terrain with scenic views and extensive vegetation too en level meadows. The greenway can be a separate entity ora portion of any of the other park categories. Potential facilities Access Points Camping Picnic Facilities Parking Areas COMMUNITY CENTERS Canoeing Historic Sites Fishing Boating Trails Natural Area Winter Sports Community Centers are facilities which provide a multi-purpose room, kitchen area. and a fitness or gymnasium element. These facilities are usually constructed between 15,000 and 20,000 square feet. These facilities may be reserved for the general public. Community Centers may be a stand alone facility within a Neighborhood or Communitv Park. or may be co -located with other County Agency Buildings. RECREATION CENTERS Recreation Centers are typically found in District or Regional Parks. These 100,000- 150,000 sq feet facilities provide an indoor aquatic venue, gymnasium, fitness, multi-purpose rooms, a kitchen, lobby area, and significant locker room space. In providing Recreation Centers, one should consider adequate storage. These facilities are open to the general public for drop-in use. FCPRD Comprehensive Plan Facility Standards 2006 2020 Needs Needs Facility Existing Gap Gap Park Land 400 286 443 '/ Mile Track 1 3 4 Baseball Fields 8 6 9 Basketball Courts 5 9 12 Bike Trails/ Roadways 2 66 82 Greenway Fishing (bank) 69 84 Amphitheatre 0 2 2 Horseshoes 8 -1 0 Outdoor Swimming 2 1 2 Volleyball 3 11 14 Football 1 6 8 Picnicking 400 286 443 Community Centers 6 1 3 Recreation Center 0 1 1 Skateboard Park 0 1 3 Soccer Fields 4 10 13 Softball Fields 5 9 12 Tennis Courts 6 11 36 Special Use Facility As needed As needed Ice Skating/Hockey 0 1 1 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 2002 Virginia Outdoor Plan, referred to in this chapter, there exists a need to concentrate on developing facilities to meet present minimum standards, and an even greater need to establish a long range capital improvement program to ensure the provision of the physical amenities required to meet future leisure demands. The County has already begun to address long term multi -use trail needs as discussed in this chapter with a strategy which involves the creation of a complete network of transportation modes, including non -motorized and pedestrian use In addition the UDA study of April 2005 sets as one of its goals to examine "providing adequate area for district community, and neighborhood parks and ensure broad access to a variety of recreational opportunities." It is increasingly important to integrate development of parks and recreation facilities and programs into the overall County plan to make Frederick County an attractive place to live and work Since the existing parks and recreation facilities are below the recommended minimum standards for a locality of our size, priority should be given to bringing our system up to standard. Strong consideration should also be given to the acquisition of park land to meet future needs while desirable open space is still available To complement the strategies and standards identified the Parks and Recreation Department staff is creating a blueprint which will strategically locate areas for park land acquisition to meet existing and future demands It is anticipated a draft of this plan will be completed by July 1 2007 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 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 the implementation of an integrated plan for recreation programs and park facilities. Strategy 1 - Identify the recreational, parks, and open space needs of the County. Strategy 2 - Make available a wide range of year-round recreational opportunities. Strategy 3 - Seek alternative funding methods for the provision of existing and identified recreational needs. Strategy 4 - Encourage cooperative efforts with private, semi-public, and public providers of recreational opportunities. Implementation Methods: 1. Promote the completion of 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 as 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 master plans. 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. Goal - Ensure that appropriate recreational facilities are provided in urban and rural areas. Strati — Promote the completion of a County -wide plan to ensure that appropriate open space and recreational facilities are provided in association with new urban development. Strategy - Provide for suitable recreational opportunities for all portions of the County. Strategy 3 — Promote the development of a comprehensive 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 development. 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 ensure 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. Straw - Identify recreational program needs. Strategy 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. 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. Proposed new text for Sewer and Water Facilities: (substantial changes are noted in red underlined text) The location of public sewer and water lines determines where urban development will occur. The Urban Development Area defines the general area in which more intensive forms of residential development will occur. Commercial industrial and institutional land uses are also encouraged within the Urban Development Area The Sewer and Water Service Area is consistent with the Urban Development Area in many locations However, the Sewer and Water Service Area may extend beyond the Urban Development Area to promote commercial industrial and institutional land uses in areas where residential land uses are not desirable 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 Frederick County Sanitation Authority (FCSA) have executed a Facilities Planning Agreement which sets forth procedures for the planning of sewer and water mains in the 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, and 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. The Frederick -Winchester Service Authority (FWSA) has the sole responsibility of providing wastewater facilities to serve the FCSA and the City of Winchester's treatment needs. The FWSA currently owns the Opequon Water Reclamation Facility. The Parkins Mills Wastewater Treatment Plant and the Crooked Run Wastewater Treatment Plant have operational agreements with the City and the FCSA for their operation. The City operates and maintains the Opequon Facility while the Sanitation Authority is responsible for operations of Parkins Mills and Crooked Run Facilities. Treatment of wastewater generated from within the County's Sewer and Water Service Area (SWSA) is undertaken at all plants. The Opequon Service Area is comprised of the Abrams Creek drainage area which includes the City of Winchester and adjacent drainage areas located east, west and north of the City of Winchester. All wastewater coming from the City of Winchester is transported to and iriaL .d aL LIR, Opequon Water Reclamation Facility. The Parkins Mills Wastewater Treatment Plant serves Sanitation Authority customers located in the upper Opequon Creek, Wrights Run, and Stephens Run drainage areas along with the Town of Stephens City. The Crooked Run Service Area services the Shenandoah Community in southeastern Frederick County_ The Opequon Water Reclamation Facility presently has a seasonal hydraulic capacity of 8.4 millions gallons per day during summer months and 16.0 million allonsep r day during the winter months. The facility has 18,000 pounds per day of biological capacity and also provides for biological nutrient removal of nitrogen and phosphorus Based on the projections contained in the 1997 Opequon Water Reclamation Facility Capacity Needs Evaluation Report the present treatment configuration will meet both hydraulic and biological demands through 2007 - 2008 The Frederick Winchester Service Authority has already begun design for an expansion and upgrade of the Opequon Water Reclamation Facility to meet future growth needs and regulatory requirements requiring dramatic reductions of nutrient discharges from treatment facilities located in the Chesapeake Bay Watershed. The initial expansion and upgrade will increase the hydraulic capacity of the facility to a maximum of 12.6 million gallons per day. Obtaining this capacity will depend on the final wasteload allocation for nutrients assigned to the Opequon Facility under the Water Quality Management Plan Regulations adopted by the Commonwealth of Virginia Present planning would anticipate the expanded facility would be operational by 2010-2011 The Parkins Mills Wastewater Treatment Plant which serves the upper Stephens Run, Wrights Run, and Opequon drainage areas has a present rated capacity of 2.0 million gallons per day. The current average daily flow of this plant is about 75% of the design capacity. This facility also will be limited in it ultimate capacity by nutrients Design of an expanded and upgraded facility is complete and construction of that facility will begin in 2007 When construction is complete in 2009 the Parkins Mills Wastewater Treatment Plant will have a capacity of 5.0 million gallons per day. 9.00 8.00 7.00 6.00 0 a) CL 5.00 c 0 R 0 4.00 C 0 � 3.00 2.00 1.00 0.00 Opequon Water Reclamation Facility Sewer Flow Versus Capacity 50vp X91 o o°� ��� �9a a o^ ^a tia h yRP ^99 apo ADO ADO . Fiscal Years —.$.—OWRF —A—County —A—City —Capacity 2.5 0 1 0.5 0 Fig 7 - PMTP Fiscal Year =Flow- - Limit 0 97 98 99 00 01 02 03 04 05 06 Fiscal Year =Flow- - Limit Fig 6 - Annual Connections Fiscal Year ® Water 22 Sewer E11 - { gld s si ig3s= 'e's:mgz ` 3R:3=s3 �: $ : aasa :s :•:$ `° HOUSE i3gss sl ase: gess = d=sgss: 1 d =! � •sd•:s ° ` = 1 1 �. ss �g •$ ass°E�ad.'s� sd3 d� .. d:=• a d; t••g:Rgi Ilse "_ gg;::3 !3 ;� dd:•::d I. . I !! ...s. Eggs :: .:d " sR$ '_•� :g: _ • gss3 ! •g d.: g •• ,ggR�gg d•d :+�g :. s.13 ,.;=EEEg�,/� :: � !a: •.fid.= �g ��� �='s gd :! _ 1,00 g:..• gs3� d= igg =s'� 9E$ dE gE lsdd IEda !3 $204 a::E•Er gi:' g :3$ %°::e31,/ S; E _• _ _$ 6 =� ly= � $:dsE.g 3 ddd • =x 1 � ::s.•:: ddR::.g3�' i' s Rsdd3$d� 3$$d�E �' g3g•'s$3 ;;g�g�g� gegd's'� � s s•s: ! �.g :051..•g•• $� 3d = ! ' s !$ dE� =d ;'OEEd r�3;�s .g g e c33g g= 's's ��$'' gg s e� E§'s :sg gig Ig•s=d, �; : =E� e's�. s ; 3a:=!$, E•ss b E s°= 1 .,� sem#, -- ,:g::�� , �`R•�+i . ss3•s $'sa R g �$"R�.R3 ,s �gegg,�' "_ = ="s, s:� 4 _ _ .: gam_ :sa Fiscal Year ® Water 22 Sewer Item #3: Discussion of Public and Private Subdivision Street Requirements. The Board of Supervisors at its meeting on January 10, 2007 provided direction to the Comprehensive Plans and Programs Subcommittee and Planning Commission to study and make a recommendation to the Board regarding a change to the Frederick County Code to require subdivision streets not to be maintained by VDOT; however, the streets should be built to State standards. The Board of Supervisors discussion and motion is provided at the end of this report. The first step in the process is for the CPPS to study the issue and make a recommendation to the Planning Commission. It is anticipated that this item will be further discussed by the Commission and Board at the 2007 Planning Commission Retreat. Current Polic The Frederick County Subdivision Ordinance requires that all lots abut and have direct access to a public street or right-of-way dedicated for maintenance by the Virginia Department of Transportation. The vast majority of new lots created in Frederick County are created consistent with this policy. Exceptions to this policy include multifamily, single family attached, and single family small lot housing types which may abut private roads, parking lots, or access easements, and Minor Rural Subdivisions. In the case of proffered age restricted communities, the Board of Supervisors may provide a waiver to the public street requirement. However, the private street must meet or exceed VDOT Standards. Virginia is a state that manages and maintains the maintenance and operation of local streets. Therefore, in Frederick County, VDOT maintains the local streets. VDOT's Subdivision Street Requirements (SSRs) establishes the criteria governing VDOT's acceptance of new roads. Each locality is responsible for establishing new streets and roads within its jurisdiction, including those that VDOT will maintain. These new streets are usually built through the efforts of land developers. To qualify for VDOT acceptance, new streets must: - Be available for unrestricted public use, - Provide public service sufficient to warrant maintenance at public expense, - Be located on right-of-way that is dedicated to public use; and - Have been fully and properly constructed to a standard adequate to sustain the traffic volume anticipated when the land served is fully developed. Historic Perspective Prior to the requirement for all lots to have access to state maintained roads, many lots in Frederick County were provided access via private easements which in many cases were not improved to any particular standard. Frederick County historically had little involvement in the ongoing maintenance of the streets or their administration. Most of the lots and access roads were rural in character with the private property owners and users being responsible for their maintenance. The County's involvement was limited and consisted of responding to citizen concerns regarding access to their homes. Frederick County's most significant involvement with roads occurred in Shawneeland. The Shawneeland Sanitary District was created in response to a variety of public health, safety, and welfare issues which were occurring in Shawneeland. As a result, the Shawneeland Sanitary District has a program for improving and maintaining roads in Shawneeland. Policy alternatives In lieu of the current system of constructing and maintaining residential subdivision streets, two alternatives are available for consideration; l) Public maintenance of subdivision streets by County, and 2) Private maintenance of subdivision streets by Home/Property Owners Associations. The Board's discussion sought to transfer this responsibility to Home Owners Associations. Issues for discussion In general, public street systems, in particular residential streets, are designed to balance considerations of safety and efficiency, cost effectiveness, livability, and community attractiveness. The entire community benefits from street improvements that are functionally adequate, durable, and cost effective. Current County and State policies seek to achieve this. Any future policies should seek to ensure this position is maintained or enhanced. Regardless of the approach taken by the County, a significant increase in the County's transportation and infrastructure construction and maintenance capabilities would be needed to effectively administer a road program. Such a change in policy would in essence transfer many of the roles and responsibilities currently provided by VDOT to the County. Frederick County Public Works Department has expressed that this would include the adoption of road standards, the addition of personnel, and potentially the acquisition of equipment. An alternative would be to contract for the same. Overall, the fiscal responsibility for such programs would also need to be increased. A significant consideration of the public maintenance of the streets by the County is the current status of Frederick County's Stormwater Management Permitting. The Frederick County Public Works Department has advised that the Department of Conservation and Recreation (DCR) recently ruled that Frederick County does not have to obtain a Phase II stormwater discharge permit. Should the County assume responsibility for the roads within the County and their associated drainage infrastructure, Frederick County would be required to participate in this expensive stormwater program. The application of a Phase II permit to Frederick County would require a major investment from the County. The private maintenance of subdivision streets by Home/Property Owners Associations, which the Board's discussion sought to achieve, would be a major policy change for the County. The function of Home Owners or Property Owners Associations should be a significant consideration when evaluating requiring private streets for all development in the County. Such a responsibility would be beyond the scope of such an organization's customary duty. Recent experiences throughout the County would indicate that Homeowners Associations do not typically function effectively. Therefore, to require such associations to be responsible for privately maintaining a public street system would require a great deal of consideration and, ultimately, oversight. The transfer of all public streets over to the ownership and control of the Property Owners Associations of Subdivisions within which the Public Streets are located would appear to have many important considerations for the County and the Community. Such considerations include but are not limited to the following: - Maintaining the Public Health, Safety, and Welfare of the residents of the Subdivision and the Community. - Public Access. - Emergency responsiveness. - Maintainingproperty values and quality communities. - Increase the financial responsibility of the residents of the Subdivision and Community in their on-going maintenance of the public road system. - Long term life cycle costs of road programs. - Equitable distribution of taxation revenues. - Potential source of conflict between the County and residents. - Additional fiscal impacts to County. An alternate view of the proposal might suggest that transferring the responsibility for Subdivision Streets to the County or a Private Home Owners Association may provide additional flexibility in the design of the streets beyond that which is presently afforded by the State. However, this point is immaterial if the private streets have to meet VDOT Standards. Such a proposal would appear to reduce the financial responsibility of the State in their on-going maintenance of the State's road system. Virginia State Legislature Current discussion at the State level related to this issue is in response to a bill that included provisions for VDOT no longer accepting roads into the State System. This is a transportation issue with budgetary constraints, the on-going restructuring of VDOT, and the financing of transportation improvements within the State having a bearing on the bill's consideration. As of February 2, 2007, the State Legislature defeated the initial consideration of this bill. Final resolution at the State level is pending. VACO and VAPA's positions were generally opposed to this road reversion legislation based upon the transfer of this responsibility from the State to the Localities without a revenue source and the use of general funds for transportation. As noted previously, the first step in the process is for the CPPS to discuss this issue further and make a recominendation for the Planning Commission's consideration. Board of Supervisors discussion and motion (01/10/07) Supervisor Dove stated that the Board approved resolutions tonight (1/10/07) dedicating roads to VDOT, which put more burden on the State to maintain subdivision streets. He would like to make a change in Frederick County that all subdivision streets would be maintained by the Homeowners' Association. He went on to say that if the Board does not do this then they will be forced to when the State mandates it. Upon a motion by Supervisor Dove, seconded by Vice - Chairman Fisher, the Board unanimously directed the Comprehensive Plans and Programs Subcommittee and the Planning Commission to study and make a recommendation to the Board. Chairman Shickle stated that this suggestion should go to committee because it needs to be discussed. Supervisor DeHaven stated that he did not oppose discussion because there were a lot of issues associated with this proposal that needed to be discussed. Supervisor Van Osten stated that it was reasonable to look at this, but she also had interest in waiting to see what comes out of the State. Supervisor Ewing stated this proposal was worth studying. Supervisor Lemieux stated that his only concern was the homeowners' associations trying to fund this maintenance because they often do not have the cash to pay for these types of expenses.