CPPC 04-14-99 Meeting Agendacocly-
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MEMORANDUM
TO: Comprehensive Plans and Programs Subcommittee
FROM: Evan A. Wyatt, Deputy Director
RE: April Meeting
DATE: April 8, 1999
The Frederick County Comprehensive Plans and Programs Subcommittee (CPPS) will be meeting
on Wednesday, April 14, 1999 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) Review and discussion of information proposed for the update of the 1999 Comprehensive
Policy Plan.
2) Other.
Staff has been directed to advise all committee members that 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
sidewalk to the back door of the four-story wing.
Information regarding this discussion item will be presented by staff during the meeting of the
subcommittee. Please contact our department if you are unable to attend this meeting. Thank you.
U: \Evan\Common\Cpps1041499.CPP S Meedng.wpd
197 north Keret Street . Winchester,'Virginia 22601-5000
ITEM #i 1999 COMI'RERENSIVEPOLICY PL4N UPDATE
Included within this agenda item is the information that is proposed for the update of the 1999
Comprehensive Policy Plan. Staff requests that the Comprehensive PIans and Programs
Subcommittee (CPPS) review this information for the purpose of discussion and recommendation.
It is the desire of staff to present this information for discussion at the Planning Commission level on
April 21, 1999; therefore, any modifications recommended by the CPPS will be presented at that time.
A topical list for items that will be discussed by the CPPS is presented below. Additional information
for each topic is included in this packet or will be presented during the April 14, 1999 meeting.
Topics For Proposed Update
• Southern Frederick Land Use Plan
• Modifications To Existing Language As Proposed By Various Agencies
• Amendments To The Eastern Road Plan Map
• Sewer And Water Service Area (SWSA) Expansion
• Third Winchester Battlefield Preservation Plan
• Relocation Of Information To The Annual Report
(A) SQUTTHER—T FREDE-MCK LAND USE PLAN
The CPPS and staff have completed the public information meeting process for the Southern
Frederick Land Use Study. This process, which accounted for 16 separate meetings, provided an
opportunity for the general public and organizations to participate in issues identification and the
development of land use plan alternatives. The Board of Supervisors endorsed a preferred land use
plan during the January 27, 1999 work session with the Planning Commission and the CPPS. The
text for the Southern Frederick Land Use Plan is provided under this agenda item for review and
discussion by the CPPS. Staff will have the Southern Frederick Land Use Plan Map for the preferred
alternative available during the meeting. Staff asks that the CPPS consider this information and
forward a recommendation to the Planning Commission for the purpose of their discussion regarding
this issue.
Southern Frederick Land Use Plan
General Information
During the 1998 Planning Commission Retreat, held at the Wayside Inn in Middletown, the Board
of Supervisors requested that a land use plan be prepared for the southern portion of the Urban
Development Area (UDA) and the Sewer and Water Service Area (SWSA). The elements considered
as a catalyst for the development of a land use plan in this area include the planned improvements to
existing road systems, the development of new roads systems and sewer and water infrastructure, and
the desire to establish industrial areas with rail access, as well as industrial areas that would utilize
the Virginia Inland Port. A land use study was initiated to identify the most desirable land uses and
plans for future development and preservation within the area as a whole.
In May 1998, Frederick County identified a study area for the southern portion of the Urban
Development Area (UDA) and the Sewer and Water Service Area (SWSA) which would be
significantly influenced by the planned road systems and sewer and water infrastructure. This study
area, encompassing 7,050 acres (11 square miles), is bounded by the City of Winchester Corporate
Limits, Interstate 81, and Buffalo Lick Run to the north, Airport Road (Route 645), West Parkins
Mill Road (Route 644), and Front Royal Pike (Route 522 South) to the east, the Upper Opequon
Watershed and the Opequon Creek to the south, and Middle Road (Route 628) to the west.
Several public information meetings were conducted in the fall of 1998. The purpose of these
meetings was to identify issues and obtain input from the general public and local organizations that
would be utilized to develop land use plan alternatives for the study area. A work session was
conducted with the Board of Supervisors and the Planning Commission January 1999, to review the
preferred land use plan alternative that was recommended by the Comprehensive Plans and Programs
Subcommittee (CPPS). A background report was prepared for this work session to provide
information regarding the characteristics of the study area, issues and input received during the public
information meetings, and the elements of the recommended land use plan. This background report
is maintained in the Department of Planning and Development.
Page -1-
Objectives for the Southern Frederick Land Use Plan
Land Use
• Promote orderly development within areas impacted by new infrastructure.
• Provide an equal balance of industrial, commercial, residential, and agricultural areas.
• Develop land use patterns that promote Planned Unit Development (PUDs) and mixed-
use development in -lieu of large areas of residential.
• Concentrate industrial and commercial uses near and around interstate, arterial, and
major collector interchanges and intersections.
• Encourage the preservation of prime agricultural areas and the continuation of
Agricultural and Forestal Districts.
Environmental
Identify environmental resources and develop methods to protect sensitive areas.
Encourage land use patterns that are not automotive dependent to protect air quality.
Promote development standards such as riparian zones and regional stormwater
management facilities to protect water quality from point and non -point sources.
Historical
Encourage the protection of potentially significant historic structures and sites as
identified by the Frederick County Rural Landmarks Survey.
Encourage the establishment of historic districts and the protection of historic areas
identified by the Battlefield Network Plan, particularly the Kernstown Battlefield site.
Transportation
• Ensure that components of the Interstate 81, Route 37, and WATS Plans are
implemented.
• Promote areas of viable rail access for industrial uses.
• Require connections between arterial and major collector road systems within industrial,
PUD, and mixed-use and developments.
• Provide signalization at major intersections to promote efficient traffic movement.
• Encourage intermodal opportunities including bicycle and pedestrian systems.
Public Utilities
Ensure the availability of adequate water resources prior to future development.
Determine the capacities of water and sewer treatment facilities and projected impacts
of future land uses.
Provide opportunities for expansion of water and sewage treatment facilities.
Page -2-
Land Use Plan
Existing areas of residential, commercial, industrial and agricultural land use are contained within the
7,050 -acre study area. The majority of the commercial and industrial areas are located on the west
side of Interstate 81 near the Valley Pike corridor (Route 11 South), while residential areas exist
along Valley Pike and Front Royal Pike (Route 522 South). Agricultural land use exists along the
Front Royal Pike corridor; however, the greatest concentration is located west of Valley Pike due to
the significant amount of prime agricultural soils. Approximately 4,500 acres of land within the study
area is currently zoned RA, Rural Areas District. The majority of this land is located east of
Interstate 81; therefore, it is probable that future zoning change requests will be presented to the
county. The development of future land uses throughout the study area should be sensitive to
existing uses and should demonstrate continuity with planned uses.
Future land uses recommended for the 7,050 -acre study area include residential, commercial,
industrial, agricultural, mixed-use, planned unit development (PUD), and a historic district. A
detailed description of the recommended land uses is described within three separate land areas due
to the considerable size of the study area. The description of each geographic area and recommended
land use is as follows:
Western Area
This land area includes the portion of the study area west of Interstate 81 to Middle Road
(Route 628). Recommended land uses include industrial areas along the east and west side
of the CSX Railroad, as well as the continuation of industrial use on the east side of Route
37 and the southwest side of Apple Valley Road (Route 652). Agricultural areas are
recommended west of Route 37 and Shady Elm Road (Route 651). This will encourage the
continuation of agribusiness activity and protect the integrity of the properties voluntarily
placed in the South Frederick Agricultural and Forestal District. A historic district
designation is recommended for the portion of the Grim Farm that is located in the county.
This designation is intended to assist in the preservation of the core area of the Kernstown
Battlefield. County regulations stipulate that the formation of a historic district must be
accomplished through the consent of the land owner.
Ventral Area
This land area includes the portion of the study area east of Interstate 81 and west of Front
Royal Pike (Route 522 South). Residential areas are recommended north of the Lakeside,
Wakeland Manor, and Tasker Land Bay developments. Commercial areas are recommended
at the Battaile Drive interchange between Interstate 81 and Warrior Drive. Mixed-use areas
are recommended to occur within the proximity of the Route 37 interchange locations at
Interstate 81, Front Royal Pike, and Warrior Drive, as well as in the northern portion of the
study area between Front Royal Pike and Warrior Drive. Mixed-use areas are envisioned to
include residential and commercial components, of which a maximum of 75% ofthe land area
Page -3-
would be residential. A planned unit development (PUD) is recommended for the land area
between Route 37, Front Royal Pike, Warrior Drive, and Papermill Road. The PUD is
envisioned to include residential, commercial and light industrial/office components, of which
a maximum of 50% of the land area would be residential. The mixed-use areas and the PUD
are proposed as alternative land uses from the typical residential development patterns that
have occurred in the past. The mixed-use and PUD concepts are intended to promote land
use patterns that allow for internal service, employment, and intermodal transportation
opportunities with public open space linkages between various developments.
Eastern Area
This land area includes the portion of the study area east of Front Royal Pike (Route 522
South). Residential areas are recommended adjacent to Armel Elementary School and to the
north and west of the proposed public golf course located along West Parkins Mill Road
(Route 644). An industrial area is recommended on Front Royal Pike, north of the Route 37
interchange area, to take advantage of the arterial road systems and the proximity to the
Virginia Inland Port. An area has been identified to the south of the relocated portion of west
Parkins NO Road for the future expansion of the Parkins Mill Wastewater Treatment Plant.
It is believed that this would provide adequate area to expand the capacity of the existing
facility from 2 MGD to 4 MGD,
Infrastructure Components
The majority of the land within the study area boundaries will be impacted by transportation, sewer,
and water facilities improvements. These improvements are proposed to traverse properties that are
currently located within and outside of the county's Urban Development Area (UDA) and the Sewer
and Water Service Area (SWSA). Improvements to existing arterial and collector road systems, the
development of new major and minor collector road systems, and the expansion and installation of
public water and sewer facilities will be the responsibility of individual property owners and
developers. Improvements to Interstate 81 and the Route 37 Eastern Bypass will be conducted by
federal, state, and local officials; however, it is recommended that adjacent land uses be situated a
minimum of 100 feet from these right-of-ways to avoid future conflicts associated with widening and
interchange reconfiguration. A detailed description of the proposed transportation, sewer, and water
facilities improvements are described below:
Transportation
The Winchester Area Transportation Study (WATS) and the Comprehensive Policy Plan's
Eastern Road Plan identify several significant transportation improvements within the study
area boundaries. These plans call for improvements to existing road alignments and
interchanges, the relocation of existing roadways, and the construction of new road systems
Page -4-
and interchanges. Transportation improvements to the interstate, arterial, and collector road
systems will assist in improved levels of service throughout the study area, and will shape the
land use patterns in the short and long term.
The following table describes the transportation improvements that will occur within the study
area:
Southern Frederick Ladd Use Plan W Transportation Improvements
Road Name and/or
Route Number
Functional
Classification
Type of Improvement
Typical Section
Interstate 81
Interstate
Existing Alignment
(I6); 6 lane Interstate
Route 37
Major Arterial
New Construction
(R4D); 4 lane divided
I- 81 Exit 310
Interstate Interchange
Existing Alignment
Full Cloverleaf
I-81Battaile Drive
Interstate Interchange
New Interchange
Full Cloverleaf
Rt.37/522 South
Arterial Interchange
New Interchange
Diamond
Rt. 3 7/Warrior Drive
Arterial Interchange
New Interchange
Diamond
Rt.37/Shady Elm Rd.
Arterial Interchange
New Interchange
Diamond
Interstate 81 CD Lane
Collector/Distributor
New Construction
(U2); 2 lane urban
Rt.636 White Oak Rd
Major Collector
New Construction
(U4R); 4 lane urban
Tasker Rd.to Rt. l l
Major Collector
Relocation
(U4R); 4 lane urban
Tasker Rd.to Warrior
Major Collector
Relocation
(R2); 2 lane rural
Rt.644 Papermill Rd
Major Collector
New Construction
(R2); 2 lane rural
Rt.644 Parkins Mill
Major Collector
New Construction
(R2); 2 lane rural
Rt.651 Shady Elm Rd
Major Collector
Existing Alignment
(R4D); 4 lane rural
Rt.652 Apple Valley
Major Collector
Existing Alignment
(R2); 2 lane rural
Warrior Drive
Major Collector
New Construction
(U4); 4 lane urban
In addition to the new road systems proposed by the WATS and the Eastern Road Plan,
additional road systems are proposed to effectively manage traffic generated from residential,
commercial, and industrial land uses along the Front Royal Pike corridor. These road systems
are intended to link various land uses with arterial and collector road systems and to provide
Page -5-
for signalization opportunities at critical intersections as areas develop. Development
proposals submitted for these areas will be expected to provide for road connections and for
signalization agreements with the Virginia Department of Transportation to achieve the intent
of this plan, although the alignment of these road systems is not expected to be definite.
The development of new road systems and the improvements to existing road systems will
need to be planned to mitigate impacts to the environmental features and historic areas that
are identified in the land use plan. It is recommended that transportation systems planning
efforts consider the feasibility of providing direct access or easements to historic properties
and features to ensure public access opportunities, to encourage the development of bicycle
facilities and pedestrian walkway systems that serve residential, mixed-use, and PUD areas,
to discourage an excessive number of commercial and industrial entrances, to utilize master
planned boulevard entrances with adequate turn lanes, and to increase setbacks for parking
lots to provide for green space and landscaping opportunities, while providing future right-of-
way to mitigate impacts to existing and future land uses.
Water and Sewer
In Fall 1997, the Board of Supervisors authorized the Frederick County Sanitation Authority
to undertake a major capital project designed to provide public water and sewer service from
the Parkins Mill Wastewater Treatment Facility to the Kernstown environs. Construction of
this project commenced in Fall, 1998, which involves the extension of a 20 -inch water
transmission line from Front Royal Pike and a 15 -inch sewer interceptor line from the Parkins
Mill Wastewater Treatment Facility to Apple Valley Road (Route 652) and Shady Elm Road
(Route 65 1) at Route 37.
This project was authorized primarily to provide public water and sewer service to existing
and proposed industrial uses west of Interstate 81 and northeast of Route 37; however, it is
anticipated that this project will impact other portions of the study area east of Interstate 81.
The sewer interceptor line follows Hoge Run, which is the current boundary of the county's
Urban Development Area (UDA) and the Sewer and Water Service Area (SWSA). The
water transmission line traverses a distance of approximately one mile within the study area
that is located outside of the UDA and SWSA, then continues into the service area before
crossing Interstate 81. The entire portion of the study area between Front Royal Pike and
Interstate 81 that will be traversed by this water and sewer project is currently zoned for rural
area use, therefore, the county should expect to receive requests for property rezoning in this
portion of the study area over the short term.
Page -6-
Future Land Use Development Phasing
Approximately 3,470 acres, or 49%, of the 7,050 -acre study area is currently within the Urban
Development Area (UDA) and the Sewer and Water Service Area (SWSA). Of this 3,470 acres,
1,845 acres is currently zoned for rural area use (53%), 655 acres is zoned for residential use (19%),
645 acres is zoned for industrial use (19%), and 325 acres is zoned for commercial use (9%). The
remaining 3,580 acres that is located outside of the UDA and SWSA is predominately zoned for rural
area use, with the exception of small residential areas located along Papermill Road (Route 644) and
Apple Valley Road (Route 652).
The land use plan recommends an adjustment of the SWSA in the western portion of the study area
in the proximity of Apple Valley Road. This adjustment relocates the SWSA to the southeast of the
Kernstown Battlefield on the north side of Apple Valley Road and to the north of the Blackburn
Limited Partnership tract on the south side of Apple Valley Road. This adjustment results in an
addition of 3.5 acres into the SWSA, as 35.7 acres are included within the Blackburn Limited
Partnership tract, while 32.2 acres is removed from the Kernstown Battlefield site.
A phasing plan is not recommended for the acreage located within the UDA and SWSA boundaries,
as favorable economic and market conditions will drive development decisions. Future expansion of
the SWSA is appropriate to accommodate areas of future industrial use; however, the expansion of
this service area should not extend west of Shady EIm Road or south of the proposed segment of
Route 3 7 between Front Royal Pike and Buffalo Lick Run. The land use plan does not propose the
expansion of the UDA in any part of the study area boundary. It is recommended that the county
monitor growth trends within the UDA to ensure that the timing for expansion of this development
area is linked to the need to provide additional residential areas to maintain a competitive market.
It is recommended that the properties located west of Front Royal Pike and east of Interstate 81 be
considered first for inclusion into the UDA when the expansion of this development area is
determined to be appropriate.
Page -7-
(B) PROPOSED AGENCY AMENDMENTS TO COMPREHENSIVE POLICY PLAN
Staff has received proposed addendums to the language within the Comprehensive Policy Plan for
Chapter 3 - Population and Housing, Chapter 4 - Economy, Chapter 6 - Land Use, Chapter 8 -
Community Facilities and Services, and Chapter 9 - Parks and Recreation. These addendums were
submitted by the following agencies and departments:
• Building Inspections
• Economic Development Commission
• Emergency Services (Fire and Rescue)
• Frederick County Sanitation Authority
• Handley Regional Library
• Parks and Recreation
• Public Schools
• Public Works
• Winchester Regional Airport
The Chapter and associated text for the proposed addendums to the Comprehensive Policy Plan is
provided under this agenda item for review and discussion by the CPPS. Staff asks that the CPPS
consider this information and forward a recommendation to the Planning Commission for the purpose
of their discussion regarding this issue.
Winchester -Frederick County Economic Development Commission
In 1982, the Winchester -Frederick County Economic Development Commission was created by joint
resolution of the City of Winchester and the Frederick County governing bodies. The Commission
is composed of representatives from the County and the City, along with representation from local
industry.. The Economic. Development Conor- ission's mission is ",,...to create a desirable balance of
value in the form afrncreased tax revenues to the City. of Winchester and the County of Frederick and
the towns withLn, income to its 00;0_ a, and an en�rtronment wla�ch fac htat profit for the business
community." The Economic Development Commission is charged with fostering an efficient and
cooperative effort toward economic development for the Winchester -Frederick County area. The
Commission maintains an office and employs a director who is Charged With who's responsibility is
the coordination of efforts to develop and implement an Economic Development Strategy for
Winchester -F, eder ick ecanty. the immunity. Revised annually, thei 997-1998:M9-2000 strategy
addresses four three program areas: Existing Industry Development, , Agribusiness
Business ,Attraction, anal � raver.
CURRENT PROGRAM AREAS
OF THE
WINCHESTER -FREDERICK COUNTY ECONOMIC DEVELOPMENT STRATEGY
MISSIONS/OBJECTIVES
1, Existing Industry Development
Mission: To create an effective business environment which fosters the growth and
prosperity of existing industries and to communicate the availability of supporting resources.
Objectives:
-5. L To assist in the maintenance of a fully trained, competent workforce
-1-- 2.; To assist in increasing demand for local products and services.
2-3, To help reduce the cost of business in order to increase profits and promote growth.
3- 4, To assist with regulatory requirements.
5 To increase public awareness of the economic impact ofthe community's industrial base.
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2. Travel
Mission: To develop a comprehensive plan to attract visitors which with benefit to the
community.
Objectives:
1. To increase the number of visitors to the community.-
• Leisure/group travelers
• Conventions
• Business travelers
2. To increase the average length of stay fbr each visitor.
3. To increase expenditures made by visitors.
4. To improve the infrastructure which supports the travel effort.
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4-3. Business Attraction
Mission: To conduct a coordinated program to target and attract compatible business and
industry to Winchester -Frederick County.
Obj ectives:
1. To balance the proportion of commercial and industrial real estate tax base for both the
City and the County.
2. To create jobs, especially those which are - compatible with existing
industry needs.
3. To impact the quality of life through increased income.
4. To diversify the type of business in the economic base to provide stabilization and a
broader selection of employment opportunities for community citizens.
5. To increase worker skills to remain competitive as a business location.
6. To build on the existing industry and business base by attracting new companies which
provide services and products needed by the base.
Multiple activities have been identified in support of these objectives along with impact measures to
assess the effectiveness of each program.
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While for the first time the service sector has exceeded the percent of manufacturing, the numbers
Of manufacturinu jobs continue to grow, particularly in Frederick County where most ofthe available
industrial sites are located. That sector accounts for 4,264 persons, or 28% of the total 15.519 jobs
in Frederick County.
Emergency Services
The Frederick County Fire and Rescue epartment was established
1n 1.990 t#3 provide support and guidance fnr the eleven volunteer ::re �aiid rescue cGiiiparueS `41fd1
provide Etre suppression and. emergency medical services to the citizens of Frederick County. Each
volunteer fire and rescue company provides fire suppression service, eight provide advanced life
support emergency medical service, one provides basic life support emergency medical service, and
two provide first responder level medical care. The County Fire and Rescue Companies are as
follows:'
e�ergenciesi
The Training Division is responsible for developing, providing and overseeing training programs for
the volunteer and career fire and.rescue personnel. This Dion is headed by a :full-time Fire/Rescue
Battalion Chief - Training Officer employed by the County. The Training Officer is also the Career
nevemt 4vi.gnr rP.-,nngilP fn CIMerfnn fe Career D"`a.«rsj i
Program.
Sewer and Water Facilities
The location of public sewer and water lines determines where urban development will occur. The
Urban Development Area described by the Frederick County Comprehensive Plan is roughly the same
as the service areas for public sewer and water. Because sewer and water facility location determines
the location of urban development, great care is needed in planning where such facilities will be
provided..
The Frederick County Sanitation Authority has the responsibility for the treatment, transmission, and
distribution of potable water and the collection and transmission of wastewater. Most of the sewer
and water mains and laterals in the County are owned, operated, and maintained by the Sanitation
Authority.
Frederick County and the Sanitation Authority have executed a Facilities Planning Agreement which
sets forth procedures for the planning of sewer and water mains in the County. The agreement
includes provisions for adopting a water and sewer facilities plan as a part of the Comprehensive Plan,
specifying the location of mains over eight inches in size. It also includes provisions for review and
update of the plan and for including sewer and water facilities projects in the Frederick County
Capital Improvements Plan.
The City of Winchester owns and maintains sewer and water lines in portions of the County adjacent
to the City corporate limits. Such lines have been extended into the County following a previous
agreement between the City and the County. A Gravity Flow Sewer Agreement between the City
of Winchester and the Frederick County Sanitation Authority has been adopted which specifies that
either jurisdiction may transmit sewage from the other jurisdiction to the Opequon Plant if that
sewage flows by gravity to the receiving jurisdiction. This agreement requires that the delivering area
be of a minimum size and that the receiving jurisdiction has adequate collection system capacity to
accommodate the additional flows. The delivering jurisdiction will be charged for the service
provided by the receiving jurisdiction. Th - agreemgnt expires Decemnber3 I, 2 00an �s not e-pebted'
to be renewed by the Qty
The Winchester -Frederick Service Authority has the responsibility ofproviding wastewater treatment
for the Sanitation Authority and the City of Winchester. The Service Authority currently owns the
Opequon Water Reclamation Facility and the Parkins Mills Plant and contracts for their operation.
The City operates the Opequon Facility and the Sanitation Authority operates Parkins Mills.
Treatment of wastewater generated in the County is provided by two sewage treatment plants: the
Opequon Water Reclamation Facility and the Parkins Mills Plant. The Opequon Plant serves the
Abrams Creek drainage area and surrounding drainage areas east and north of Winchester, and
provides sewage treatment for Winchester. The Parkins Mills plant serves the upper Opequon Creek,
Wrights Run, and Stephens Run drainage areas.
The Frederick -Winchester Service Authority is presently undertaking design o constructing the
expansion of the Opequon Water Reclamation Facility to a capacity of 8.4 million gallons per day
with an increase in the biological treatment capacity of 5 -,OW 8,000 pounds per day or an increase of
50% 80% in the present plant capacity. This expansion is projected by the Opequon Water
Reclamation Facility Capacity Needs Evaluation Report to meet the needs for both flow and
biological capacity through the year 2008.
The Parkins Mills Plant serves the upper Stephens Run, Wrights Run, and Opequon drainage areas.
The rated capacity of this plant is 2.0 million gallons per day. The current average daily flow of this
plant is about +.-f one- mi'llion gallons per day.
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 17,74321.,107 active
registered library_ card holders in Frederick County. During the I998 fiscal year, Frederick
County residents borrowed 213,9452481,988items from the Handley Library, the Clarke County
Library, and the Bookmobile. , a 23.9% increase ove, the pieviotts year.
The regional system supports education, preschool through post -secondary, by providing assistance
and research materials for projects and papers, and by being open nights, Saturdays, some Sundays,
and 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 public with information for their research needs as well as
recreational reading.
fn ftfly f 996-, Bookmobile service to the residents of southern and western Frederick County was
expanded in July 1996 as the result of an agreement between the library and 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 social hall. During fiscal year 199$, nearly 1,000
children and adults have attended the story hours.
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 Frederick County Board of Supervisors designated a site fo, a fib,ary building Within t
county in f 996, and passed a resolution on August f 3, f 997 to seek an at chitect to design the
building, with a targeted opeping date in i999.- has hiked the Lukmire partnerslup of Arlington,
Virginia, to design a 35,000 square foot library for a site at the corner of Tasker Road and Lakeside
Drive, lust east of Stephens City. The design prmess is nowde
u rwa . It is expected that
groundbreaking will take place during the coming surzzM- er, and that the library yell open for the
publ7c wit n 18-24 months thereafter. Other improvements are proceeding simultaneously. The-eitp
of Winchesterhas hired maich4eetto plan mid direct a complete renovabon of the histotic ffrc�ey
hibrarq, and A complete renovation of the historic Handley Library building was begun to the fall'
of 1998. Roof repairs and replacement have been completed:, and work on the interior is scheduled
tc begin. in Rine 1999 and to be completed to appro ately two years In addition. a volunteer -
directed campaign to raise three million dollars for books for the regional system, which began last
in November 1997, is more than ane-tlmel ;one -hal of the way towards its goal.
Parks and Recreation
The purpose of this chapter is to outline the County's recreational policies and to identify
implementation methods for accomplishing recreational facilities, programs, studies, and plans. It is
not meant to bc acLaueu recreation plan, but rather it is a part of hie County's continuing planning
process and a guide to decision making.
Facilities
The County currently owns and operates two regional parks. Clearbrook Park, located five miles
north of Winchester on Route 11, consists of approximately 55 acres and Sherando Park, located two
miles east of Stephens City on Route 277, consists of approximately 330 acres. Both regional parks
currently serve the County's population with both active and passive recreational programs and
facilities. In addition to these regional parks, five neighborhood parks have been developed which
serve a more specific group with more limited facilities than those in the regional parks.
The neighborhood parks are located at: Reynolds Store Fire Company and Gainesboro Fire Company
in the Gainesboro District, North Mountain Fire Company and Round Hill Fire Company in the Back
Creek District, and at Frederick Heights subdivision in the Shawnee District. These neighborhood
parks consist primarily of playground equipment for young children.
In 1987, master development plans were adopted for both Clearbrook and Sherando Parks. These
master plans establish development goals for each park, identify unmet recreational needs, provide
unified facility plans, and propose a development program for each park. The master plan for both
Clearbrook and Sherando Parks reflect the recommendations of the County residents and national
standards as outlined in the Virginia Outdoor Plan. These plans emphasize the development of a
swimming pool complex and additional sports, picnic, maintenance, and other support facilities.
Since the adoption of the master plans, the County has completed the construction of two outdoor
swimming pool complexes, four soccer fields, a . maintenance building, one shelter, two playground
areas, ane) -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, and volleyball, open space
areas and support facilities. Clearbrook Park, Sherando Park, andthe neighborhood parks and all
public school athletic fields and grounds are maintained by the Parks Division of the County Parks
and Recreation Department. As a result of a joint operating agreement with the County School
Board, the Parks and Recreation Department has use of the following Sherando High School facilities
when they are not in use by the high school: lighted football field and track, baseball field, eight
outdoor lighted tennis courts, and four outdoor lighted basketball courts. The Parks and Recreation
Department's Community Center, which was built adjoined to Sherando High School, opened in
September of 1993 and contains two racquetball courts, a weight room and a multipurpose room.
Frederick County
Comprehensive Plan 9 - 1
Parks and Recreation
Citizen Participation
Citizen participation and input regarding recreation programs and park development have been
actively solicited since the creation of the department in 1971.
The Parks and Recreation Commission consists of seven members, including one from each
magisterial district, appointed by the Board of Supervisors for four year terms and two at -large
members recommended by the Commission and appointed by the Board to serve staggered four year
terms.
Future Demands
To help plan for the future leisure service demands, the Parks and Recreation Department has
completed master plans for the County's two regional parks, studied national standards provided in
the Virginia Outdoor Plan, and gathered survey information relating to the provision of leisure
services. Through the utilization of these and any other available resources, it is projected that the
following areas must be addressed if we are to meet future leisure demands:
1. Land acquisition to meet minimum standards
2. Facility development to meet minimum standards
3. Development of recreational centers
4. Increased programming for special populations
5. Increased programming for teens
6. Great diversity of programming so -as -to better meet the needs of the entire community.
7. Establishment of trail systems and bikeways
Area Standards
As suggested by the 1996 Virginia Outdoor Plan, the area standard for local recreation and park sites
in Virginia is ten acres of developed park land per thousand population.
Frederick County has a population of approximately 53,20855,,80& ° (based on +9961998. provisional
estimate data provided by the University of Virginia Center for Public Services) and currently
maintains 404 acres of park land. Of the 404 acres assigned to the parks, about 240 acres would be
considered developed.
By the year 2000, using the population projections provided by the Frederick County Planning
Frederick County
Comprehensive Plan 9 - 3
Parks and Recreation
EXIS'T'ING REGIONAL PARD FACILITIES
Currently, the Parks and Recreation Department is responsible for operating and maintaining the
following facilities:
Clearbrook Park
Clearbrook Park, covering 55 acres, is located approximately five miles north of Winchester, on
Route 11. Clearbrook Park is open 365 days a year, from 8:36.0Q. a.m. to dark and includes:
Sherando Parksheker
Sherando
*three -acre lake
*horseshoe pits
*vintage red caboose
*passive areas
*tables & grills
*fishing
*volleyball
*fitnesscourt
*picnic o8heers
Sherando Park is located on Route 277, approximately two miles east of I-81, near Stephens City.
The park consists of 330 acres, approximately one-half of which is undeveloped. Sherando Park is
open 365 days a year, from 8:3$00 a.m. to dark and includes:
*five -acre lake
$radio *'model radio
airplane facility
*seven lighted
athletic des
I.faurficlds with concession
*four*fbur lid ted outdoor
basketball court
*eighteen -hole disc golf
course
*community center
facilities
Frederick County
Comprehensive Plan 9 - 8
areasatarlacet to
Sherando High School
*swimming*outdoor:
sWjm ning pool
*fishing
*four soccer fields
*horseshoe pits
'-eig eight lighted tennis
courts
*hiking trails
Parks and Recreation
*paddleboats
*passive areas
*vollevball
*playground
'fitness pat
cotrrse*play-gqu4#
*picnic shelters
*tables & grills
Based rills
*Additional maintenance
and s c h e d L, -n. g
responsibilities include
Sherando High School
athletic fields and grounds.
Based on the demand standards established by the 1996 Virginia Outdoor Plan, Frederick County
should use the following recommendations as a guide for future park development.
Frederick County
Comprehensive Plan 9-9
SCHOOLS
The Frederick County Public School system is composed of ten elementary schools serving students
in grades kindergarten through fifth grade; three middle schools serving grades six through eight; and two
high schools serving grades nine through twelve. The Northwestern Regional Education Programs (NREP)
is a regional program which provides special education services to students from Frederick and Clarke
Counties and the City of Winchester. Approximately 58% of the students who receive services attending
NREP are from Frederick County. The Dowell J. Howard Center provides vocational education services for
high school students and adults, and is also the location of The Learning Center, a high school alternative
program. In addition to the seventeen school facilities, twenty-five modular classrooms are used at eight
school sites to reduce overcrowding due to increased enrollment and to address the need for additional
space due to changes in educational programs.
During the past several decades, student enrollment in the school division has increased steadily. In
particular, the decade of the 1990's has witnessed a dramatic increase in student population. The school
division is growing at a rate which is three times greater than the average for the state. Over the past ten
years (1987 to 1997), student enrollment has increased 34.4%, while the state average has increased 11.3%.
In the fall of 1998, student enrollment was 10,408, which represents an increase of 2,185 students since
1990.
In order to meet the need for additional school space, a number of school construction and
renovation projects have taken place in the last decade. Despite these efforts, four of the ten elementary
schools exceeded 90% of their capacity (Apple Pie Ridge, 94%; Bass -Hoover, 93%; Indian Hollow, 94%;
and, Redbud Run, 105%). Construction of classroom additions to Armel and Middletown Elementary
Schools, which were completed in the fall of 1998, resulted in an increase in student capacity and reduction
in the percent of practical capacity utilized at each of these sites. Construction of a new elementary school
in the Back Creek Magisterial District will begin in the spring of 1999, and is scheduled to open for
students in the fall of 2000. The renovation of the Northwestern Regional Educational Programs (NREP)
facility will provide improved space for students whose educational needs cannot be met in the traditional
classroom setting.
As students matriculate from elementary school to the middle school level and ultimately to high
school, the need to provide additional space for a steadily expanding student population and to meet
changing educational requirements has increased pressure for new facilities and renovations to existing
facilities. Projects included in the 1999 Capital Improvements Plan reflect the need to address space
requirements for middle and high school enrollment, which is rapidly approaching 90% of capacity despite
the use of twenty modular classrooms at five different locations. A major renovation project at James Wood
Middle School and construction of a third county high school are two projects planned to combat the
effects of a steadily increasing middle and high school student population.
During the decade of the 1990's, the need to replace older facilities and to address the consequences
of significant residential growth in the county has resulted in the necessity to allocate financial resources to
the capital requirements of the school division. The pace of residential growth continues to greatly impact
the school system, particularly in southern and eastern Frederick County as large subdivisions are
developed in relatively small geographic areas. In addition, careful monitoring of incidental residential
growth, which accounts for approximately one-third of new residential building permits issued annually in
areas of the county outside the urban development zone, is necessary to accurately predict enrollment
trends. 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 21'` 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 has and
will continue to necessitate increased expenditures for computer and computer-related hardware and
software. Mandates from state and federal government in numerous areas, and in particular special
education, will require localities to expend additional financial resources to meet educational requirements
established by numerous laws and regulations. Without question, requirements associated with technology -
related instruction and providing appropriate special education services to students has and will continue to
impact the need for investment in a wide variety of capital projects in the future.
The 1999 Capital Improvements Plan for the Frederick County Public Schools reflects the desire of
the school board to provide sufficient classroom space for a growing school population and maintain
acceptable student/teacher ratios in order to provide students with a quality educational program and the
opportunity to excel as they further their education or become part of the work force. Additionally, the
1999 Capital Improvements Plan coincides with several major efforts made by the school division and
county government to consolidate services in order to serve the residents of Frederick County more
effectively and efficiently. Cooperative agreements have been developed relative to sharing school facilities
for recreational use by a wide variety of community organizations; maintenance of school grounds
provided by parks and recreation department personnel, resulting in greater utilization of space;
maintenance of the county office complex provided by school division buildings and grounds personnel;
and, development of a memorandum of understanding concerning the construction of a combined school
division and county government transportation/maintenanc¢ral warehouse complex. One major
component of the 1999 Capital Improvements Plan includes construction of a facility to fulfill the concept
of combined services in the areas of transportation, maintenance, and warehousing.
Accomplishing the goals contained in the Capital Improvements Plan is a difficult challenge for the
school division and the county. In order to provide new facilities and renovate existing structures, scarce
financial resources must be allocated for capital needs rather than instructional services for students. A
dollar which is spent on renovating or building facilities cannot simultaneously provide direct instruction to
students. At the same time, a growing student population demands space which can only be accomplished
through funding. Long range planning is the primary avenue to achieve a balance between capital needs
which continue to grow and the mission of the school division to provide instruction to students.
Refuse Collection, Landfill, and Recycling
Refuse collection service is provided by Frederick County at 12 refuse collection stations. Nine
of these stations consist of hydraulic compactor machines with separable roll -off containers and
cofiection facilities for recgYolables; the other three sites consist of front end dumpsters. Currently,
the County is in the process of converting dumpster sites to compactor stations when warranted
by tonnage levels.
The County should continue to convert dumpster sites to compactor sites as tonnage increases.
Consolidation of sites during the conversion process is also desirable, when practical. T+e
ideaBased on research,: y the GovernpW t 12 Student Learning project and staff, the concept of
curbside pickup' lie&in the densely populated areas of Frederick County that are
currently served by public water and sewer was endorsed by a resolution of the board o
supervisors in August, 1998,
The Frederick County Landfill is a regional facility that receives refuse from Frederick and Clarke
Counties and the City of Winchester. The landfill is operated by Frederick County as an
enterprise fund and the landfill operation is fee sustaining. The management and planning of
landfill operations is solely the responsibility of Frederick County, with input from an oversight
committee comprised of representatives from Frederick County, Clarke County, 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 during 1993.
Approximately 90 acres of this tract has been permitted for landfilling under the newly adopted
Subtitle "D" Solid Waste Regulations. Both the close-out of the old section and the construction
of the new section have been carried out in accordance with new state regulations that require
much more sophisticated environmental protection measures, including composite impermeable
liners, a complete leachate collection system, leachate treatment facility, groundwater monitoring
and gas monitoring.
The current landfill was originally estimated to have adequate capacity for 25 years commencing
in October of 1993. The development of a construction debris landfill should extend the life of
the current sanitary landfill approximately eight years, resulting in a life of 33 years. A tract of
land consisting of 109 wooded acres was purchased from Ryland Carper for the future
development of a construction debris landfill. The permitting, design and construction of this
new construction debriss construction/debris landfill vM+-bewas completed in 1998 with the
year.compiction of construction in the �an�e calendar The County should reevaluate tonnage,
revenue, and expenditure trends everye4cl year and set fees accordingly. The County should also
continue to evaluate new technologies for waste reduction and recycling that would extend the
life of the landfill.
During the 1990's, the County placed collection boxes for recyclable materials at alleaeh of the
stens' convenience areas located within the County. Through this
effort, the County was able to meet the 1995 recycling mandate of 25%25percent placed on
localities by the Commonwealth of Virginia.
Due to the rapid growth in the County, additional programs have been implemented to enable the
County to maintain the 1995 recycling mandate of 25%. These programs include brush and yard
waste mulching, compacting, waste oil recycling, tire shredding, and household hazardous waste
collections. These new programs assisted the County in achieving the 25% recycling mandate for
1996.
New developments need to be provided with appropriate means of solid waste collection. Either
private collection or new collection stations should be provided by new developments.
Environment
The_ Virginia Erosion and Sediment Control_ Act and the Frederick County Code require that
properties and waters be protected from soil erosion and sedimentation resulting from development
activities. The current standards require that increased stormwater created by development be
conveyed to an adequate channel, capable of carrying the maximum storm that will occur on the
average once every two years.
Stormwater Management
Growth and development bring along with it changes in the natural condition of the land. Areas
which were once woodlands or pastures have been developed with roads, parking lots, and buildings.
This process brings changes to the runoff characteristics of surface water, both in quantity and
quality. The County recognizes the need to develop ordinances and standards relating to stormwater
runoff. fn order to accomplish tffis task
Currently, a stormwater
the ordinance is being drafted and should be approved by the board of supervisors on
or about July 1, 1999.
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Frederick County
Comprehensive Plan 5 - 4
Environment
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Frederick County
Comprehensive Plan 5-6
Environment
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Local land use regulations typically establish maximum densities and intensities at which
development can occur. Densities should be set based upon judgements concerning the
capacity of the land to sustain such development.
The capacity of the land to carry development in rural areas will depend upon a number of factors,
including the following:
• Natural constraints on development, including steep slopes and floodplains;
• The ability of an area to accommodate sewage disposal;
• The need to protect natural resources, including groundwater aquifers and significant
agricultural and forestal areas; and,
• The capacity of rural roads.
Frederick County
Comprehensive Plan 5 -8
Winchester Regional Airport
The Winchester Regional Airport is a 364 -acre, all weather, 24-hour general aviation
airport with a 5,500 -foot runway located southeast of the Route 50 interchange of
Interstate 81. The facility currently has 75 tie down spaces, two 12,000 square foot
public clear span hangars, 52 t -hangars and three private corporate hangars. Based
aircraft total 72 and range in size from single engine to larger cabin class business
aircraft. Services available include 24-hour U.S. Customs and Immigrations, 24 hour on
call line service, automated weather observation system, computerized weather and flight
planning equipment, full instrument landing system and rental car service.
The Winchester Regional Airport Authority was formed by the Virginia General
Assembly on July 1, 1987. The Authority consists of representatives from the Counties
of Frederick, Clarke, Warren, Shenandoah and the City of Winchester. Since its
formation, the Winchester Regional Airport Authority 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 1,000 foot runway extension, pavement resurfacing of the entire runway,
relocation of the taxi way and the creation of safety areas at each end of the runway.
New buildings constructed under this program include a modern general aviation
terminal; 12,000 square foot clear span hangar; maintenance hangar with FBO offices
and 42 t -hangar units. Other projects included upgrading airfield lighting; installation of
a 40,000 gallon above ground fuel storage facility; fencing of the Airport perimeter and
installation of a precision instrument approach that provides better all weather access to
the Airport.
Collaborating with Frederick County and the Virginia Department of Transportation, the
Authority has also made improvements to primary access roads to the airport. Sewer and
water service has also been established. To date, more than $14 million dollars has been
invested in Airport capital improvements, equipment, and promotions through funding
received from the Federal Aviation Administration, Virginia Department of Aviation and
the local jurisdictions.
Future developments include relocation of Airport Road that will require additional land
acquisition. Other land acquisition projects will include areas along Bufflick Road that
infringe on controlled airspace. Through the support of the member jurisdictions, the
Winchester Regional Airport will continue to evolve into a modern first class air
transportation facility benefiting economic development in the attraction of new
industries and commercial business to the region.
(C) EASTERN ROAD PLAN MAP AMENDMENTS
Staff has revised the Eastern Road Plan Map to incorporate components of the Winchester Area
Transportation Study and components of the various land use plans that have been approved in the
eastern portion of the County between Route 37 and Fairfax Pike. The results of this revision
encompass the addition of new road segments, the elimination of road segments, the relocation of
road segments, and the modification of various road segments function classification. Staff will
present information at the meeting which delineates the proposed modifications to the eastern Road
Plan Map. The Eastern Road Plan Map is within Chapter 7 - Transportation on page 7-15. Staff asks
that the CPPS review the existing plan for the purpose of discussion and comparison to the proposed
amendments to the Eastern Road Plan Map.
(D) SEWER AND WATER SERVICE AREA EXPANSION
The CPPS considered a request to expand the Sewer and Water Service Area (SWSA) to incorporate
approximately 160 acres of land near Tasker Road (Route 642). These properties are situated on the
south side of Tasker Road between White Oak Road (Route 636) and the Eastgate Commerce
Center/Jouan Global Center development. The Planning Commission and the Board of Supervisors
held discussions regarding this request earlier in the year. The Planning Commission felt that the
request was appropriate, while the Board of Supervisors had concerns with capacities and impacts
to the service to the Eastgate Commerce Center/Jouan Global Center development. A straw vote
indicated that the Board of Supervisors would support this request by majority vote; however, a final
decision has not been rendered by this body.
Staff has provided a map which delineates the proposed expansion of the SWSA. Staff requests that
the CPPS review this information and determine if the proposed expansion should only include the
properties on the south side of Tasker Road, or if the proposed expansion should include the portions
of these properties which were severed by the construction of Tasker Road, and therefore, are located
on the north side of the right-of-way.
(E) THIRD WINCHESTER BATTLEFIELD PRESERVATION PLAN
Staff will present maps and associated information regarding the Third Winchester Battlefield
Preservation Plan during the April 14, 1999 meeting. The Third Winchester Battlefield Preservation
Plan is a wide -area plan, accounting for properties that are located outside of the core area of the
battlefield. Therefore, it has been suggested that this plan be formally incorporated into the
Comprehensive Policy Plan to ensure that issues associated with core area preservation, viewshed
protection, and the goals of the plan are recognized during decision making processes within the
study area for this plan. Staff asks that the CPPS consider this information, provide direction as to
the mapping and text that should be incorporated into the Comprehensive Policy Plan, and forward
a recommendation endorsing this concept.
(F) RELOCATION OF INFORMATION TO THE ANNUAL REPORT
Staff has reviewed the tables, figures, and maps within the Comprehensive Policy Plan to determine
the information which requires update on an annual basis. It is the belief of staff that this type of
information is better suited for inclusion in the Annual Report which is also prepared by the Planning
Department. The relocation of this type of information would also eliminate the need to update the
Comprehensive Policy Plan on an annual basis if this was the only information that .changed.
Therefore, staff has created a list which suggests items that could be placed in the Annual Report.
Should the CPPS agree with this recommendation, staff will modify any language that is affected by
the removal of the various tables, figures, or maps.
Recommended Annual Report Items
Table 6 - Employment Trends within Private Sector (Frederick County/Winchester): page 4-5
Table 7 - Employment Trends within Private Sector (Frederick County): page 4-7
Table 14- School Capacity and Enrollment for Frederick County: page 8-4
Figure 2 - Building Permits for New Residences: page 3-2
Figure 16 - Public School Enrollment: page 8-3
Figure 17 - Total New Connections (Water and Sewer): page 8-10
Neighborhoods Map: page 3-3