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CPPC 02-09-04 Meeting AgendaCOUNTY of FREDERICK Department of Planning and Development 5401665-5651 FAX: 540/665-6395 MEMORANDUM TO: Comprehensive Plans and Programs Subcommittee FROM: Abbe S. Kennedy, Senior Planner DATE: February 1, 2004 RE: February Meeting and Agenda The Frederick County Comprehensive Plans and Programs Subcommittee (CPPS) will be meeting on Monday, February 9, 2004, at 7:30 p.m. in the first floor conference room of the County Administration Building, 107 North Kent Street, Winchester, Virginia. The CPPS will discuss the following agenda items: AGENDA 1) Rural Areas Study - Issues Identification: UDAIRural Areas Relationship 2) Planning Commission Retreat - Overview of February 7, 2004 discussions regarding rural areas. Please contact our department if you are unable to attend this meeting. Thank you. Access to the County Administration Building for night meetings that do not occur in the Board Room will be limited to the back door of the four-story wing. I would encourage committee members to park in the county parking lot located behind the new addition or in the Joint Judicial Center parking lot and follow the sidewalks to the back door of the four-story wing. The door will be locked, therefore, please wait for staff to open the door. Attachments 107 North Kent Street • Winchester, Virginia 22601-5000 File Copy ITEM #1 Rural Areas Study Issues Identification: Rural Areas/UDA Relationship Primer for 02/09/04 Discussion The Relationship of the Urban Development Area (UDA) and the Rural Areas Early in the rural areas study process, the awareness of a distinct correlation between the UDA and the Rural Areas emerged. This correlation became worthy of attention by the committee while establishing the rural areas study framework. It is essential to evaluate the effectiveness of our UDA boundary and evaluate the policies for expanding the growth areas. Expansion of the UDA bears a direct relationship to rural land consumption. This is the final "issue identification area" of the Committee's rural areas study. The input received during this meeting will culminate the first round of the study process. The next step in the process leads us to the preparation of a citizen survey and public input sessions. The UDA The Urban Development Area (UDA) in Frederick County is a growth management policy used to identify the areas where more intensive residential development will occur. The Sewer and Water Service Area (SWSA) is the growth boundary that designates commercial and industrial land areas. It is the County's intent that the UDA and SWSA boundaries to accommodate growth for the ensuing decade. In 1987, Frederick County established one residential growth area, the UDA. At the time of its inception in 1987, the UDA included 22,678 acres of land, predominately contiguous to the City of Winchester. Currently, the UDA has evolved to encompass 28,644 acres of land, as of August 2003. In recent years, the county has considered a number of expansion requests from applicants desiring to include property within the SWSA for industrial or commercial use, as well as requests to include property within the UDA for residential land use. As you are well aware, each request for expansion is a proposed amendment to the Comprehensive Policy Plan, and proceeds through a public process that includes discussion by the CPPS, discussion by both the Planning Commission and Board of Supervisors, and public hearings by both the Planning Commission and Board of Supervisors. Rural Areas Approximately 30% of all new residential dwellings are developed on rural lands outside of the UDA in Frederick County, with fully one half ofthe County's population residing in the rural areas. The 2000 Comprehensive Policy Plan identifies the rural areas of the county as consisting of approximately 243,122 acres. The 2003 statistic for RA land equates to 241,811 acres, a .5% reduction of RA land in the last three years. During the three-year period from October 1, 2000 through October 1, 2003, the county has added 311 acres of rural land in the SWSA for potential industrial and commercial development. This period also saw the addition of 1,000 acres of land to the UDA. Rural land converted for urban land use equates to 1,311 acres over the last three years, expanding the County's growth area by an average of 437 acres per year. Another interesting rural area statistic is the change (or lack of change) in protected agricultural lands. The County's three agricultural and forestal districts (AFD) are renewed every five years. At the time the South Frederick AFD was created in 1980, it included 11,563.57 acres. Renewals and additions in 1990 and 1995 culminated in a peak acreage of 15,105.98 acres. At the time of the 2000 renewal, however, there was a loss of 3,179 acres as a result of landowners who declined renewal. The current South Frederick AFD contains 11, 452.29 acres, close to the original acreage included when the district was created in 1980. No new districts have formed in Frederick County since 1995. Taking a look at other jurisdictions within our region, Rockingham County has formed nine of their AFD's since 2000, protecting 26,218 acres. Moreover, Shenandoah County has aggressively pursued the program, and leads the region with 20 districts totaling 43,137 acres. The County must identify it's intent regarding the protection of agricultural land. The South Frederick, Double Church, and Refuge Church Agricultural and Forestal districts are scheduled for renewal next year. Is there farm community interest or desire to make Frederick County's AFD program more successful? Is there a desire by the County to purchase development rights on significant lands that it would like to see protected, such as farmland, or other significant resources? There are programs that encourage landowners to donate as well as sell development rights to preserve the land. Target Development Areas Targeted development areas are areas targeted for growth and development, created within the framework ofthe comprehensive plan. Targeted development areas canbe utilized by phasing tiered growth boundaries around a developed area 5 to 20 years into the future. They can also be used to create multiple service districts within a county. The Committee has discussed the idea of village growth boundaries for our Rural Community Centers. Also discussed was the idea of a transitional growth area between the UDA and rural areas. Wherever the county determines it best to target growth, it is imperative to maximize the developmental options inside the growth areas, and basically reduce the pressure for development outside of the growth boundaries. ITEM #2 Rural Areas Study 2004 Annual Planning Commission Retreat Overview of the day's discussion Attached is the report of the preliminary planning activities of the CPPS regarding the Rural Areas Study. This report was prepared by Chris Mohn, Deputy Planning Director, for the 2004 Annual Retreat agenda package to summarize the committee's process to date. During the February 9, 2004 CPPS meeting, staff will address the committee with regards to the input and direction received from the participants of the retreat. Attachment 2004 Annual Planning Retreat Rural Areas Study Report of the Preliminary Planning Activities of the Comprehensive Plans and Programs Subcommittee (CPPS) January 21, 2004 The rural areas of Frederick County have been a recurring subject on past retreat agendas. Indeed, awareness of the rural areas' increasing popularity as a destination for new residential development has long prompted concern regarding its impacts on rural resources, community services, and the long-standing rural character of Frederick County. In 2003, the Frederick County Board of Supervisors formally responded to this concern by identifying completion of a rural areas study as the top priority of the Planning Department's long-range planning program. The rural areas study is intended to be comprehensive in scope, with a principal objective being attainment of an improved understanding of the evolving rural landscape. In addition to obtaining an informed vision for the future of the rural areas, the study will result in the formulation of policies that will catalyze attainment of community objectives. These policies will ultimately be recommended to the Board of Supervisors for inclusion in the Comprehensive Policy Plan. The content of this report includes an overview of the study process to date as well as a summary of the planned public involvement program. Additionally, the background information prepared for the Comprehensive Plans and Programs Subcommittee (CPPS) concerning the study's seven policy areas is provided and the issues identified through committee dialogue are listed. These issues represent both challenges and opportunities for the rural community and Frederick County as a whole, and are presented to illicit community reflection, input, and action through the remainder of the planning process. The Study Process to Date - Defining Study Scope and Issues Identification In keeping with the established protocol for long range planning projects, the rural areas study was tasked to the Comprehensive Plans and Programs Subcommittee (CPPS) of the Planning Commission, which began its preliminary study efforts in August 2003. As the initial step of the study process, the CPPS identified seven distinct policy areas that will serve as the framework for analysis and policy formulation. Specifically, the study framework is proposed to consist of the following policy areas: Page 1 of 16 1. The Rural Economy 2. Rural Community Centers 3. Community and Public Services 4. Transportation 5. Natural and Heritage Resources 6. Land Development and Design 7. The UDA - Rural Areas Relationship Prior to seeking broader public input through community and stake holder work sessions, the CPPS has undertaken discussion concerning each policy area in order to establish a fundamental set of rural issues that will guide and inform the study process. The background information prepared for the committee concerning each policy area and the issues identified via subsequent discussion are presented in this report. It is noted that discussion concerning the final policy area, The UDA - Rural Areas Relationship, will occur during the February 9, 2004 CPPS meeting, which will follow the annual planning retreat. A matrix outlining the schedule and principal benchmarks of the rural areas study is attached with this report. Public Participation in the Study Process Public participation is acknowledged as the key to a successful planning process. It is recognized that a plan's long-term relevance and legitimacy will depend largely on the degree to which the public and impacted stake holders are involved in the plan -making process. Indeed, the effectiveness of a plan will arguably be diminished should it fail to be a reflection of the community it is intended to serve. Public and stake holder involvement will be the foundation of the rural areas study. A variety of fonnats will be used to obtain the input of stake holders and the general public throughout the process, to include visioning and issue identification workshops, stake holder group presentations, and a citizen survey. All of these methods will complement the on-going efforts of the CPPS, which is a standing committee of the Planning Commission comprised of citizens and Planning Commissioners. The involvement of the CPPS ensures a public role throughout every phase of the study process. Public and Stake Holder Work Sessions The preliminary efforts of the CPPS and the input gathered from the Planning Commission and Board of Supervisors at the annual planning retreat will lead to the initial and arguably most important round of public input. A series of community work sessions have been scheduled for the general public during the second and third weeks of April 2004. These input sessions have been scheduled as follows: Page 2 of 16 Date Monday, April 12, 2004 Wednesday, April 14, 2004 Thursday, April 15, 2004 Tuesday, April 20, 2004 Thursday, April 22, 2004 Location Frederick County Middle School Indian Hollow Elementary School Armel Elementary School Stonewall Elementary School Middletown Elementary School The public work sessions will be complemented by presentations and discussions with particular stake holder groups, such as the Farm Bureau, Frederick County Fruit Growers Association, Community Consensus Coalition, Winchester Wheelmen, and Top of Virginia Builders Association. Such stake holder work sessions will be scheduled in the weeks immediately preceding and following the public meetings. Input received during the public and stake holder work sessions will complete the issues identification process begun by the CPPS and contribute to the prioritization of identified issues. Such input will enable the CPPS and staff to articulate policy objectives and begin the policy formulation process. A second round of public and stake holder work sessions will be conducted to acquire feedback concerning the draft policies generated by the CPPS. These sessions are tentatively scheduled for late August 2004, and will involve the same stake holder groups and locations associated with the initial phase of input. The feedback received during these work sessions will be used by staff and the CPPS to further refine the draft policies prior to endorsing a proposed Rural Areas Policy Plan for consideration by the Planning Commission and Board of Supervisors. Other Methods of Input and Involvement The public and stake holder input sessions will allow for the exchange of information and ideas between citizens, staff, and the CPPS in a facilitated setting. However, public involvement will not be limited to these important events. Indeed, communication will also occur through other mechanisms designed to maximize public awareness and involvement. In particular, all information generated through the rural areas study will be made available on the Planning Department's web page (www.co.frederick.va.us/planninganddevelopment) through a "Special Projects" link. An email contact will be provided on the site to allow citizens to request technical assistance and/or submit comments concerning the study to staff and the CPPS. Moreover, the local news media will be a critical means of sharing study information with the community at large. Several articles discussing the preliminary work of the CPPS have been printed in The Winchester Star, and further coverage will be pursued as the study proceeds into the public input phase. Staff will also produce visual displays that introduce the study, identify key process dates, and define methods available for public input. Staff will seek to locate these displays in the Frederick County Government Center lobby and at the local branches of the Handley Regional Library. Page 3 of 16 Another method of obtaining public input that will be used during the study is a citizen survey. Staff will collaborate with students from the Service Learning Program of the Frederick County Public Schools to design and conduct the survey, the results of which should be available to coincide with the public and stake holder work sessions in April 2004. The students will also develop an informational newsletter to accompany the survey. A wider distribution of the newsletter may be considered should resources allow. Legally advertised public hearings at the Planning Commission and Board of Supervisors will be held prior to any formal action on the proposed Rural Areas Policy Plan. Such public hearings are required by the State Code and will likely conclude structured opportunities for public participation during the rural areas study. Policy Areas and Issues The CPPS has been actively engaged with the rural areas study since August 2003. The committee has focused its efforts on a preliminary period of issues identification involving the seven policy areas comprising the study framework. The issues identified by the committee are intended to outline the fundamental challenges and opportunities facing the rural areas, and will ultimately be used to guide policy formulation efforts. Moreover, the issues raised by the committee will provide a tangible basis for public and stake holder response through subsequent work sessions. An overview of the policy areas discussed by the committee is provided below, followed by the issues identified for each. It is noted that the final policy area, The UDA - Rural Areas Relationship, has yet to be discussed by the committee and is therefore not included in this report. It is requested that issues of particular interest to Planning Commission and Board of Supervisor members be identified during the annual retreat to aid in focusing committee and staff efforts. An appendix of the issues identified to date is attached to this report for ease of reference. The Rural Economy and Rural Community Centers The Rural Economy Agriculture has historically served as the foundation of Frederick County's rural economy. In particular, Frederick County is associated with the apple in and its various support services. However, agricultural activities occur on both a large and small scale in the rural areas, with open land devoted not only to orchards, but also to hay production, cattle grazing, and crop cultivation. The central role of agriculture to the rural economy translated into the land use patterns that shaped the rural landscape traditionally associated with Frederick County. Understanding the current condition of the rural economy and envisioning its future are therefore essential to recognizing the forces influencing land use decisions and catalyzing change in the rural areas. When considering the rural economy of Frederick County, perhaps the underlying theme of Page 4 of 16 committee discussion should be opportunity. As such, it is necessary to explore and advocate policies and programs that both buttress existing agricultural enterprises and enable opportunities for diversification_ The enhancement of economic opportunity in the rural areas may ultimately involve a diverse array of approaches ranging from the complex, such as purchase of development right (PDR) programs and incentives for agricultural and open space land uses, to the more mundane, such as amending the Zoning Ordinance to allow additional non-residential uses in rural zoning districts. Regardless of the methods promoted through the study process, efforts to stimulate and support the rural economy will be critical to expanding the land use options available to rural landowners. Rural Community Centers The land- use chapter of the Comprehensive Policy Plan identifies rural community centers as "relatively small centers of population and activity in the rural areas of Frederick County" (p. 6-44). A study of the characteristics of rural community centers and identification of their potential locations occurred through the efforts of a sub -committee of the Planning Commission in the mid 1980's. It was recommended through this process that each potential center be considered individually to establish appropriate long-range land use plans that accommodate the unique attributes of these places and their respective roles within the rural areas. Subsequent to this study, the Round Hill Community Land Use Plan was adopted in 1996 as the first, and thus far only, small area land use plan for an identified rural community center. The Rural Areas Study offers an ideal opportunity to revisit the rural community center concept and the role of these unique places in the future of Frederick County's rural areas. Indeed, as existing nodes of activity, it is logical to consider the rural community centers as locations for more intensive land uses than may be appropriate elsewhere in the rural areas. Through the study process, alternative methods for providing central water and sewer service to certain rural community centers may be explored and opportunities for these places to more effectively accommodate the diverse needs of the dispersed rural areas population should be identified. Moreover, consideration of guidelines and techniques intended to ensure that new development proposed within and adjacent to rural community centers is complementary and compatible with existing land use patterns would be appropriate. The CPPS identified the following issues concerning the rural economy and rural community centers: Rural Economy Issues: 1. The agricultural economy is rapidly changing due to the decline of the traditional large scale farming operation. 2. A working farm today requires less land than farms of the past due to efficiencies achieved through advances in agricultural techniques and technologies. Page 5 of 16 3. Fanning is a business and must therefore be profitable to remain viable. 4. A profit is increasingly difficult to realize thereby requiring farmers to sell land to obtain the capital needed to sustain farming operations. 5. The best land for farming is also the most conducive to private septic systems and therefore new residential development. 6. The future of the local fruit industry is likely to be small operations serving "niche" markets. 7. The County needs to play a direct role in cultivating local markets for locally grown crops. 8. The location of Virginia Tech's Agricultural Research Center in Frederick County presents a unique opportunity to develop relationships and programs that may benefit the local agricultural community. 9. The County should explore policies that support the area's use by Virginia Tech as an "urban agricultural" laboratory, which, coupled with community visioning, may assist in opening new avenues for agricultural activity. 10. The "structure" necessary to create and sustain new relationships between farmers and the regional market should be established to promote a new perspective on the future of agriculture in Frederick County. Specifically, the County should explore and institute the policies, programs and staffnecessaryto develop such relationships, perhaps in collaboration with Virginia Tech and the Economic Development Commission. 11. Approach to rural economy must be future oriented and therefore focused on facilitating economic opportunities that transcend what Frederick County has historically known in its rural areas. To employ this approach, the rural areas must be viewed as a desirable location for new business activity, particularly those businesses that support tourism and complement the emergence of Frederick County as a retirement destination. Rural Community Centers Issues: 1. The rural community centers currently identified in the Comprehensive Policy Plan accurately capture the established nodes of activity in the rural areas. 2. Small area plans need to be developed for each rural community center as per established policy. However, such planning should be undertaken as a separate exercise, rather than as a part of a larger rural areas planning process. 3. Although the character of the rural community centers has generally been maintained over Page 6 of 16 time, the number of small businesses has diminished within community center core areas and new residential uses are beginning to locate on the fringes of community centers. 4. New development proposals in the vicinity of the rural community centers of Stephenson, Clearbrook, Brucetown and Round Hill will result in the location of public sewer facilities adjacent to these areas in the foreseeable future. As such, strategies must be developed to extend facilities into these community centers and conclusively address identified problems with private septic systems. 5. Rural community centers served by public facilities should be planned to accommodate additional development and thereby function as a "relief valve" for development pressure in the greater rural areas of the County. 6. In addition to the rural community centers, the Comprehensive Policy Plan must recognize the towns of Stephens City and Middletown as focal points of activity that influence land use in the rural areas. Transportation and Community and Public Services: The symbiotic relationship between public investment in infrastructure and the location of new development is a well documented planning reality. Indeed, one of the principal tools a jurisdiction possesses in directing the pattern and - to a certain degree - pace of development is the funding and placement of public infrastructure and services. This is particularly true relative to road improvements and the provision of public water and sewer facilities. An example of the recognized nexus between public facilities and the intensity of development is the increasing use of urban growth boundaries as a means of defining the geographic area wherein public investment will be focused and, in turn, where more intensive forms of development are planned. Frederick County has employed this concept through the combined use ofthe Urban Development Area (UDA) and Sewer and Water Service Area (SWSA). Of course, not all development occurs within established growth boundaries and therefore places demands on existing rural infrastructure that is not necessarily planned to accommodate such growth. In the case of Frederick County, approximately 30% of all new residential dwellings are developed on rural land outside of the UDA, with fully one half of the County's population residing in the rural areas. This population is served almost exclusively by on-site private well and septic systems and utilizes the vast system of secondary roads that traverse the County for access. Assuming continued population growth in the rural areas of Frederick County, impacts on the rural infrastructure will inevitably increase and existing service capacities will be stressed. Transportation Using traffic generation figures from the I.T.E. Trip Generation Manual, 6"' Edition, each new residential unit built in the rural areas adds roughly ten (10) vehicle trips per day to the roads that Page 7 of 16 connect the household to the community. Increases in residential traffic on rural roads often result in intensified demands by new and old residents alike for improvements to the conditions of such roads, many of which have historically consisted ofnarrow widths and/or gravel surfaces. Moreover, new trips may stress or exceed the designed capacity of rural roads thereby diminishing their safety and efficiency, especially as residential and agricultural traffic co-mingle. Rural roads also must accommodate school bus and emergency services traffic serving both established and new residences. All public roads in Frederick County are owned and maintained by the Virginia Department of Transportation (VDOT). Development in the rural areas generally occurs via "by right" subdivision activity, meaning that the review process is primarily an administrative function oriented on ensuring compliance with applicable ordinance and other technical standards. As such, the scope of the transportation improvement program proposed by an applicant and subsequent staff analysis is limited to subdivision access and the internal street network. Indeed, improvements to the external road system are more challenging to achieve via "by right" development, and are certainly beyond the County's jurisdiction to compel. Traffic impacts generated through "by right" development are therefore absorbed by the secondary and primary road systems without mitigation. Addressing the form and function of the rural transportation network is an important component of the Rural Areas Study. Improving safety is arguably the foremost objective of any rural transportation policy. Large scale road improvement projects may not always be necessary to achieve enhanced safety, as approaches including access management strategies and intelligent transportation systems (ITS) are possible alternatives that may be effective. Also promoting safety, the VDOT Rural Rustic Road program seeks to improve surface conditions through coordination with local efforts to limit the intensity of development along targeted rural roads. This program promises to provide a more expedient method for hard surfacing rural roads in the County than is currently possible. However, more substantial improvement projects such as lane additions and road widening may indeed be necessary on certain rural routes to achieve improved level of service conditions in the context of steadily increasing trip counts. Such improvements must be scheduled through the Frederick County Secondary Road Improvement Plan and ultimately completed when funding is available from VDOT. Trafficshed analysis represents another method available to evaluate the impacts of new vehicle trips on the capacity of rural roads. If effectively linked to the subdivision review process, trafficshed analysis may offer a means of measuring the adequacy of existing transportation infrastructure to serve new development and, in turn, quantify what improvements are needed to accommodate a proposed project. At present, no such system is used to evaluate system- wide impacts of "by right" development. In addition to general road conditions, it is appropriate to consider methods for creating a multi- modal transportation system within the rural areas. In particular, the Rural Areas Study should explore opportunities to achieve an environment conducive to bicycle, pedestrian, and horseback travel. A system capable of supporting such travel modes would not only enable alternatives to the Page 8 of 16 automobile, but also promote the recreational and environmental value of the rural landscape. Community and Public Services New rural residential development is often located a substantial distance from existing and planned nodes of employment and commercial activity as well as cultural and public amenities, to include libraries and educational facilities. Moreover, the dispersed nature of rural residential land use effectively extends the rural population away from centralized medical facilities, and beyond easy access by emergency services and public safety personnel. Such geographic realities present distinct service delivery challenges to affected public agencies, and potentially impact the quality of life enjoyed by rural residents. Although the availability of public amenities comparable to those provided in the UDA may serve as an inducement to new development, it is important to consider the extent to which public services and facilities should be located in the rural areas. More importantly, in what manner can new development occur that will maximize efficiencies in service delivery, particularly relative to essential services such as public health, safety, and education. The CPPS identified the following issues concerning transportation and community and public facilities: Transportation Issues: 1. Policies for the rural transportation network need to be clearly articulated in the Comprehensive Policy Plan, and must identify how rural infrastructure and improvements will interact and complement the system envisioned for the Urban Development Area (UDA). Such policies and the identification of inter -relationships should ultimately form a countywide transportation plan that will be regularly updated. No such plan currently exists. 2. Data explaining land use and development activities in the rural areas is difficult to assemble due to the variety of agencies and technologies involved in the regulation and oversight of such activities. A more comprehensive and centrally managed data tracking system is necessary to enable effective policy formulation, which should include, but not be limited to, information concerning the following: rural demographics, health system approvals and types, traffic -shed conditions/rural road trips v. capacity, and acreage of resource areas existing and developed. 3. By -right residential development is not accompanied by improvements to the rural transportation system that are necessary to either improve level of service conditions or achieve system enhancements (lane additions, etc.). To address the transportation impacts that accompany new residential subdivisions, a rural residential rezoning option may be appropriate as a method to realize improvements necessitated by new development at particular densities. Such a process would enable the County to accept proffered Page 9 of 16 improvements to the rural transportation network. 4; Frederick County is not currently enabled to assess road impact fees on new residential developments that stress the rural transportation network. Authority to enact an impact fee program i_s desirable as a means of mitigating the transportation impacts of new rural development. 5. Alternative modes of transportation are not overtly accommodated in the rural areas. The rural transportation system should be improved to include a contiguous network of bicycle, pedestrian/hiker, and equine (horseback) facilities that would be designed and constructed to link with similar facilities within the UDA. 6. No form of transit is currently available for disadvantaged and place -bound rural residents, who are therefore dependant on often unreliable means of transportation to accomplish essential tasks (basic medical care, grocery shopping, etc.). Development of a transit system targeted to serve this segment of the rural population is worthy of exploration. Community and Public Services Issues: L The expansion of telecommunications facilities (broadband cable, etc.) should be encouraged as a means of stimulating rural economic growth and to enhance the quality of life for rural residents. 2. Technological improvements in alternative health systems have enabled virtually any piece of land to be developed for residential use, regardless of soil quality. As such, the natural capacity of land to support residential development is increasingly irrelevant as alternative systems theoretically allow maximum build -out of rural land not otherwise constrained by environmental features (steep slopes, flood plain, etc.). 3. The health system requirements applicable to new residential development in the rural areas of Frederick County reflect the minimum standards of the State Code. Some jurisdictions have imposed more stringent health system standards through their local code, which is an option available to Frederick County. 4. Localized rural service areas may be the most effective means of providing public water and sewer service to rural community centers experiencing private health system failures. Exploration of this service delivery option would inherently require consideration of package treatment plants and the incorporation of such facilities into the overall public system. 5. Clustering of residential development in the rural areas may create greater demand for public services, which could be an unintended and potentially costly outcome of a seemingly preferred development option. Page 10 of 16 6. The presence of premier medical and cultural facilities in the Frederick County - Winchester area has attracted a growing population of retirees, many of whom are choosing to settle in the rural areas. Special attention must be given to the unique needs and demands of this emergent population set. 7. Basic services and conveniences such as groceries, medical care, and fuel sales are increasingly rare in the rural areas, to include the rural community centers. Incentives are necessary to promote the re-establishment of such uses within the rural community centers and elsewhere in the rural areas to enable efficient access by the rural population. Natural and Heritage Resources and Land Development and Design There is an accelerating loss of critical resource lands to inefficient low density development, often referred to as sprawl. The cumulative effects of this development pattern have had significant impacts on the environmental resources of the region. Recognizing this trend, sound planning and innovative land -use practices are arguably essential to the conservation and protection of the natural and cultural heritage of Frederick County and the surrounding region. While individuals may feel that their actions only have minor impacts on the environmental resources of a region, every part of the natural system is related and therefore affected by even the most discrete land use decision. Moreover, there are competing, but not mutually exclusive, land use interests influencing environmental integrity. Indeed, farmland preservationists seek to protect prime fields and orchards, environmentalists work to preserve woodland habitats, and developers must find sites for new subdivisions. In light of these realities, a quote from Representative Tayloe Murphy of the Virginia State Legislature regarding the problems of the Chesapeake Bay is especially relevant: "Every individual and seemingly isolated action has consequences. Most activities that affect the bay and other public resources are of little apparent consequence in themselves: a subdivision here, a road there, a filled wetland, a new field cleared from a forest - but as they are added together, they have the effect of an avalanche that starts with a few pebbles rolling down a hillside... There are simply too many of us doing too many things in the bay's vicinity to continue with the notion that our individual actions make no difference." As noted in last month's agenda, approximately 30% of all new residential dwellings are developed on rural lands outside of the UDA in Frederick County, with fully one half of the County's population residing in the rural areas. Rural area development is served almost exclusively by on- site private well and septic systems, and with the continued population growth in the rural areas of the county, impacts on environmental resources will inevitably increase and existing resources will continue to be stressed. More innovative land -use practices including conservation subdivision design can assist in the mitigation of these impacts. Page 11 of 16 Natural and Heritage Resources The application requirements for rezoning petitions include the submission of an impact analysis statement. The location of site constraints and features are addressed in this analysis, and depicted on the plan. An estimate of the amount of area in 100 year flood plains, wetlands, steep slopes over 50%, mature woodlands, prime agricultural soils, and soil conditions that may create construction difficulties are expected to be noted in the analysis. It is noted that an impact analysis statement is not required for master development plan, site plan, or subdivision applications - each of which is used to govern by -right development proposals. Many of these environmental features are documented through the County's Geographic Information System (GIS). This technology and its various applications, to include mapping, are an invaluable tracking tool for these significant environmental resources. Additionally, many of Frederick County's heritage resources are documented through the existing Rural Landmarks Survey of Frederick County (adopted in 1992), the Frederick County - Winchester Battlefield Network Plan, and the National Park Service's Study of Civil War Sites in the Shenandoah Valley of Virizinia. Over 1,800 properties are documented in the Rural Landmarks Survey, and many are historically significant. Several areas of the County have been identified as having potential for designated historic districts. There are over 12,000 acres of land in Frederick County located within recorded Civil War battlefields. However, substantial battlefield land has been lost to development within the UDA and the rural areas. Of critical importance is the preservation of core battlefield land. The submission standards for rezoning and master development plan applications require that the location of historic sites - to include core battlefield land - and structures be described in the impact analysis statement. Battlefield management plans have been adopted for Cedar Creek, Third Winchester, and Kemstown battlefields, as well as Star Fort. Indeed, as per the Frederick County - Winchester Battlefield Network Plan, the "critical mass" of resources for a local battlefield park network will consist of land within the Cedar Creek, Third Winchester, and Kernstown battlefields. Efforts are underway to protect local battlefield sites and create both a local and regional battlefield park network. Although the current approach to land use planning in Frederick County has made substantial progress in protecting and preserving our natural and cultural heritage, it is reasonable to assess the effectiveness of the current policy framework and determine whether there is a need for a "new paradigm" of development design that may achieve more sustainable development. Indeed, under the County's existing development process, the conservation of a contiguous system of natural and heritage resources is difficult outside of the legislative process. The rich tapestry of the rural areas is bound by its diverse natural and heritage resources; keeping this tapestry intact for future generations will arguably demand elevating conservation as a principal objective of by -right subdivision design. Page 12 of 16 Land Development and Design Sustainable development integrates long-term environmental viability, non -exploitive economic development, and equity across populations, space, and time. "Sustainable development meets the needs of the present generation without compromising the ability of future generations to meet their own needs." (The Practice ofLocal Government PlanniUZ Third Edition, Ch. 7, p. 1 SI ) A "conservation focus" on development design, or the "Growing Greener" approach, is an emerging philosophical basis for land use planning. Conservation design gives one the ability to link actions on specific parcels of land to larger regional systems, a method for organizing land use actions that enables a community to visualize and shape the future of its land area. Conservation design can achieve a regional system of resource amenities by orienting development to focus on the resources of the subject site, as well as the resources of the adjacent land. The detailed assessment of resources and the integration of those resources will allow for new developments to add to an overall, larger contiguous open space system. Conservation subdivision design should assist in the local review and approval process by identifying and addressing environmental and heritage resources as the initial step of design, thereby enabling a pro -active approach to conservation. When employed, conservation design results in a variety of open spaces. These open spaces may be mature woodlands, farm fields, formal greens, wetlands, and/or active recreational facilities. The Four -Step Approach to designing conservation subdivisions is firmly based on detailed site information provided in a Site Analysis Map together with a Context Map regarding potential linkages to resource areas on adjoining properties and the surrounding neighborhood in general. The primary purpose of this design approach is to provide landowners and developers with their full density in a way that conserves the most special features of the site, and also helps to protect an interconnected network of conservation lands extending across the community. The four steps of the conservation design process are as follows: • Step 1: Identifying Conservation Area • Step 2: Locating the House Sites • Step 3: Aligning Streets and Trails • Step 4: Drawing in the Lot Lines Alterative methods of designing for the same overall density while also preserving 50% or more of the site create more attractive and pleasing living environments that sell more easily and appreciate faster than conventional house lot and street developments. Today, golf course developments offer comparable open space to conservation subdivisions; however, golf courses are managed for only one kind of activity and are not usable open space to everyone. Additionally, the greens are uninviting to most forms of wildlife. The four -step approach in conservation design shows how a community can use this technique to Page 13 of 16 outline the open space first and to let its size and location become the central organizing elements driving the rest of the design. The next three steps are to locate the houses around the open space, to trace in streets and trail corridors, and finally to set the lot lines. Conservation zoning is fundamentally equitable because it allows landowners and developers to achieve full density under the current zoning and even to increase that density through bonuses enabled by different "by -right" options. At the beginning of the application process for conservation design, two key maps are submitted by the applicant: (1) a context map of the property showing major resource areas or features that cross parcel lines on the adjacent lands; and, (2) a detailed site resources/site analysis map of the proposed development identifying all the special elements of the natural and cultural landscape. The site analysis map is perhaps the most important document in the conservation design process because it provides the information base upon which every major design decision turns. Landowners should be consulted in this process, as they will often know exactly where the largest trees are located, where wildlife can be seen and heard at different times of the day and year, where seasonally damp areas can be found, and where the most favorable soil conditions are likely to be. The landowner may well know the locations of meadows, woodlands and any historic features on the property, and is likely to be very helpful in identifying what gives the property its special character or significance. In essence, through the site analysis map, the features of a given site that are of greatest value to the rural character are identified, and their perpetual conservation enabled. Frederick County has existing environmental mapping showing steep slopes, soils, farmland, wetlands and flood plains. Additional maps with data including historic and cultural features, views into and out from the site, and groundwater recharge areas can be mapped as resources. Resource areas are grouped into two categories. The first, Primary Conservation Areas, includes inherently unbuildable lands that are unfit for development. Frederick County's primary resources would include the flood plains, steep slopes, wetlands and hydrologic features. Other resources may be captured by Secondary Conservation Areas, which include noteworthy elements of the property that are not wet, flood -prone, or steep, but that still merit consideration for conservation. Such features include historic sites and features, wildlife habitat and corridors, woodlands, meadows and pasture land, and distinctive viewsheds. The buildable land will be those areas not limited by the basic constraints of the Primary Conservation Areas (wetlands, flood plains, and steep slopes). Residual land to be considered for conservation would be placed within the Secondary Conservation Areas, which will typically consume roughly half of the buildable land on the site, leaving the remainder for dwellings, yards and streets. In total, approximately 70% to 80% of the gross land area of a conservation subdivision will be permanently protected in designated conservation areas, with the remaining land supporting the full density permitted by ordinance. Priorities for conserving or developing certain kinds of resources should be grounded in policy and Page 14 of 16 based on an understanding of what is more special, unique, irreplaceable, environmentally valuable, historic, or scenic. A ratings approach can help to reduce inconsistency in choices, although subjectivity will not be totally alleviated in the process. However, the experience of those who practice conservation design indicates that it will often be clear which features are the most noteworthy for preservation within each category. Nevertheless, policy guidance articulating the value of given resources is essential to shaping a valuable conservation network. The CPPS identified the following issues concerning natural and heritage resources and rural land development and design: Natural and Heritage Resources Issues: The agricultural economy will not achieve resource conservation as it involves practices that are inherently consumptive of natural resources. Open space and resource conservation must occur explicitly through the land development process and other land management initiatives such as conservation easements and purchase of development rights programs. 2. The natural and heritage resources that the community desires to preserve must be identified clearly by policy. By identifying where development should not occur (i.e. within desired conservation areas), the community will more effectively influence where rural residential development will occur. 3. Natural and heritage resources must be "mapped and tracked" to ensure that new development does not occur at the expense of such resources. Knowledge of resources is critical for both the community and landowners to achieve conservation goals. 4. The land development process should include an assessment or inventory detailing natural and heritage resources on a given site, the results of which should guide ultimate design decisions. 5. Development and resource conservation are not mutually exclusive outcomes. Indeed, the policies and ordinances of Frederick County should identify resource conservation as a principal objective of new development. 6. Coupled with the agricultural economy, the natural and heritage resources define the rural areas of Frederick County. Conserving these resources should be viewed as an essential component of any strategy to maintain the community's rural character. Land Development and Design Issues: 1. Implementation of a conservation design approach may be a viable means of integrating resource conservation goals with new development. Maximizing and coordinating resource conservation to form a contiguous network of open space - or "green infrastructure" - will Page 15 of 16 necessitate enhanced regulatory flexibility. 2. A rural residential zoning district that allows increased densities through rezoning approval should be considered as an option for new rural development. The rezoning process would enable acceptance of proffers that would assist with mitigation of impacts to the transportation network and public services and facilities. 3. If a rezoning option is created for the rural areas, the "by right" density permitted in the RA Zoning District may require adjustment to ensure that overall residential densities are effectively managed in the rural areas. The availability of a rezoning option with an underlying by right density of one (1) dwelling unit per five (5) acres may result in more houses in the rural areas than is ultimately desired. The overall rural density envisioned for the rural areas must therefore be determined and used to establish the allowable densities via rezoning. 4. If development is allowed to continue as currently permitted by County ordinances, the long- term result will be a chaotic land use pattern that fragments the rural areas and diminishes the rural character. A new regulatory and design approach is necessary to maintain the natural systems that define the rural areas. 5. It is necessary to determine if there are parts of the rural areas that should not be developed. If so, these places should be clearly identified and programs should be instituted to incentivize voluntary protection (i.e. conservation easements, purchase of development rights, etc.). 6. New residential development in the rural areas creates compatibility problems, especially when development occurs adjacent to active agricultural operations. Regardless of the design options employed in the rural areas, there is a need to address the impacts of new residential development on existing agricultural activities and vice versa. Page 16 of 16