CPPC 06-14-21 Meeting Agenda1.Comprehensive Plan Update
1.A.Comprehensive Plan Update
The CPPC will review:
A. The Plan (Draft Section Review - Part 3) – Section V – Transportation, Section
VIII – Historic Resources
B. Appendix II – Land Use
2.Other
AGENDA
COMPREHENSIVE PLANS AND PROGRAMS COMMITTEE
MONDAY, JUNE 14, 2021
7:00 PM
FIRST-FLOOR CONFERENCE ROOM
FREDERICK COUNTY ADMINISTRATION BUILDING
WINCHESTER, VIRGINIA
CPPC06-14-21ComprehensivePlanUpdatePart3.pdf
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Comprehensive Plans and Programs Committee
Agenda Item Detail
Meeting Date: June 14, 2021
Agenda Section: Comprehensive Plan Update
Title: Comprehensive Plan Update
Attachments:
CPPC06-14-21ComprehensivePlanUpdatePart3.pdf
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COUNTY of FREDERICK
Department of Planning and Development
540/ 665-5651
Fax: 540/ 665-6395
MEMORANDUM
TO: Comprehensive Plans and Programs Committee (CPPC)
FROM: Candice Perkins, AICP, CZA, Assistant Director
SUBJECT: June 2021 Meeting - Comprehensive Plan Update – Part 3
DATE: May 25, 2021
At the June 2021 meeting, the Comprehensive Plans and Programs Committee (CPPC) will continue
working on the update for the County’s Comprehensive Plan. The current 2035 Comprehensive Plan
was adopted in January of 2017. The Code of Virginia requires localities to review and update their
plan every five years; therefore, the updated Plan would need to be adopted by January of 2022.
To date the CPPC has reviewed the following sections:
• March 2021 – Part 1 - (The Plan: Purpose of the Plan, Core Values, Code of Virginia,
Implementing the Plan, Supporting Planning Documents, Comprehensive Plan Amendments
and Section I - Urban Areas) and Appendix II (Historical Background, Geography and
Demographics).
• April 2021 – Part 2 – (The Plan: Section II – Rural Areas, Section III – Residential Development,
and Section VII Natural Resources) and Appendix II (Economic Analysis).
Please find attached the following sections for the Part 3 review:
1. The Plan (Draft Section Review - Part 3) – Section V Transportation, Section VII Historic
Resources
2. Appendix II –Land Use (This section will complete the update for Appendix II)
The attached documents show the existing Plan with the proposed changes (with additions shown in
red and deletions in strikethrough). The following areas of the Plan will be reviewed at a subsequent
date: Business Development, Public Facilities, and Appendix I – Area Plans.
Staff is seeking comments and recommendations from the CPPC on the attached sections. Please
contact staff if you have any questions or need additional information.
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V. TRANSPORTATION
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TRANSPORTATION
CURRENT CONDITIONS
Frederick County has grown significantly in the past two decades in both population and
economic development, placing a significant demand upon the transportation system. Current
County policy follows State Code guidance to ensure that new development offsets its impacts
to the transportation system. A significant portion of congested roadways in the County can
be linked to by-right development that does not offset its transportation impacts since it is
not required by the Code of Virginia. This has had the greatest impact upon Interstate 81 and
the primary highways in the County. Primary Highways include Routes 37, 522, 50, 7, 277
and 11.
Based upon the most recent Virginia Department of Transportation (VDOT) data available
(2016) Frederick County has 1,853 lane miles of roadway that are part of the state system.
As of 2019, VDOT estimates that vehicles traveled 3,323,511 miles per day on Frederick
County roadways. This is an over 200% increase since 1990. The vast majority of this travel
is focused upon the Interstate and Primary systems.
Planning Activities
Transportation planning for Frederick County takes place in many ways. In addition to local
comprehensive planning, Frederick County is a member of the WinFred Metropolitan Planning
Organization. As part that organization the County participates in regional long range
planning and has access to resources for numerous other planning studies. In addition, the
County annually updates the Frederick County Interstate, Primary, and Secondary Road Plans
which highlight key priorities. Finally, the County also regularly conducts small area plans
such as the Northeast Land Use Plan and the 277 Triangle Land Use Plan which focus on
smaller portions of the County. With the exception of a situation where the small area plan
is more detailed, any discrepancy between the two plans will be resolved by the Eastern Road
Plan.
Urban Areas
It is the County’s policy to focus future growth in the Urban Areas, within the boundaries of
the Urban Development Area (UDA) and Sewer and Water Service Area (SWSA). In addition,
the County has recently taken additional steps for growth within the UDA by adopting a
Transfer of Development Rights (TDR) ordinance which allows by-right residential
development rights to be sold by landowners in the Rural Areas to landowners inside the UDA.
Ultimately, while this results in increased traffic in the UDA, this is still a net financial benefit
to the County. This allows the County and State to focus roadway improvements within the
UDA as opposed to having to expand roadways throughout the entire County. The Eastern
Road Plan is the guide to roadway development/improvements in and around the Urban Areas.
As of the year 2000 census, the urbanized portions of Frederick County, Winchester, and
Stephens City area reached the population threshold (50,000) that led to the federally
required creation of a Metropolitan Planning Organization (MPO). In Frederick County the
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MPO boundary is concentrated around the development in the eastern section, and along
Route 11 to West Virginia in the north, and to Stephens City in the South. Staffed by the
Northern Shenandoah Valley Regional Commission, the MPO is responsible for creating a long
range transportation plan that meets air quality standards. The MPO is currently operating
under the 2040 Metropolitan Transportation Plan; a planned update will be undertaken in
2021.
Rural Areas
Improvements to secondary roads in the more rural western portion of the County are focused
on safety and maintenance as opposed to creating additional capacity. The possible exception
to this would be areas where the Comprehensive Plan proposes the development of Rural
Community Centers. Capacity and safety improvements to primary roadways in the rural areas
will be addressed on an as needed basis.
Transportation funding for improvements in Frederick County has largely been accomplished
through development proffers and the VDOT Revenue Sharing Program. Whenever possible,
the County uses public-private partnerships to make improvements. Key examples of this
include the Crossover Blvd. connection from Route 522 to the City of Winchester over I-81,
Phase I of Renaissance Drive, and Snowden Bridge Blvd from Route 11 North to Milburn Road.
The County is also active in the areas of rail access funding and economic development road
access funding. The Commonwealth’s role in transportation funding has been declining over
the years and has now reached the point where some federal funds are being used for
maintenance with very little new construction taking place. The State has been actively
encouraging localities to take on maintenance of their road systems. In recent years new
legislation has created additional revenue streams to fund transportation in the
Commonwealth. The most important development for Frederick County has been the creation
of the I-81 Authority, which provides additional gas tax revenue for projects along and related
to the function of I-81. However, roadway construction and maintenance in Frederick County
primarily remains the responsibility of the State and Federal Government. However, in spite
of new state level funding for roads other than I-81, the VDOT Staunton District, in which
Frederick County resides, continues to receive one of the lowest District Grant allocations in
the state, which results in a significant backlog of critical needs projects. How the County,
State, and Federal governments work together to create a long-term funding policy for
transportation will have far reaching impacts on transportation systems in Frederick County.
The majority of construction in Virginia is funded through the Smart Scale Program (formerly
HB2) and HB1887, which has significantly changed the process by which transportation
projects will be funded within the Commonwealth. The stated purpose of the new system is
to score transportation projects and remove politics from the decision making process. Based
on Commonwealth Transportation Board (CTB) adopted criteria, economic development is the
most influential factor in scoring criteria for Frederick County. The County will continue to
coordinate with the Economic Development Authority (EDA) to highlight the economic
development importance of key roadways and improvements. During the first round of the
Smart Scale Program the County was successful on a number of applications, the most
significant of which was Route 277 from I-81 Exit 307 to Double Church Road which includes
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widening, access management for safety and a realignment of the Aylor Road intersection
away from the interchange. To date, that project, now under construction, remains as
Frederick County’s largest funded project under the SmartScale project.
FOCUS FOR THE FUTURE
In the next twenty to thirty years it is expected that a number of key transportation milestones
will be reached. The issue of long-term road construction funding must be resolved, which
will allow significant transportation system improvements to move forward. Most crucial is
the completion of the Route 37 East bypass, which is critical for both residential and economic
development traffic. Completion of this roadway has been a top priority for Frederick County
for many years. The next most needed project in the County is the update of the Exit 317
Interchange which the County has applied for through SmartScale several times at this point.
The Eastern Road Plan will continue to guide road projects and will evolve to address the long-
range transportation needs of the County.
The County will work to insure that development and transportation agencies routinely design
and operate the entire right-of-way to enable safe access for drivers, transit users and
vehicles, pedestrians, and bicyclists, as well as for older people, children, and people with
disabilities. This goal aims to balance the diverse needs of all users of the public right-of-way
and promote an integrated, multi-modal (or multiple modes of transportation) transportation
system. Simply put, when roads in the secondary and primary system are being improved
this means that the County will consider all potential users of the transportation system when
making improvements or, working with development, or constructing new facilities. This goal
will benefit Frederick County as it addresses important safety, health, and environmental
considerations, and promotes growth and revitalization within the Community.
Over time, it is expected that private transit options will begin to play a larger role in Frederick
County’s transportation network. This would likely begin with demand type services for the
special need’s populations, elderly, and disabled. The County has routinely supported
applications for funding to the state for providers of these services through the MPO.
As densities increase in the UDA and citizen preferences continue to shift, it is expected that
bicycle and pedestrian accommodations will continue to increase in importance. The Frederick
County School System has opened its first elementary school (Greenwood Mill Elementary)
with a walk zone now opened more than one elementary school with incorporated walk zones
and they plan to continue promotion of this type of school.
Finally, with the growth potential of the Virginia Inland Port in Warren County, Frederick
County has experienced and can expect a continuing increase in freight movement via rail
and roadways. The development of the County’s transportation infrastructure should continue
to address transportation improvements that will further the economic growth of the
Community. This would also include future growth of the Winchester Regional Airport.
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COMMUNITY BENEFITS
The benefits to the Community of a healthy transportation system are immeasurable. An
efficient transportation system leads to communities that are less stressed, healthier, less
polluted, safer, and more attractive to economic development opportunities and new
residents.
A policy that creates an interconnected system of bicycle and pedestrian facilities will lead to
a healthier and fitter community as well as increased home values. Removal of cars from the
roadway would reduce congestion and air pollution. The mixed-use land use pattern promoted
by New Urbanism and the Urban Center concept of this Plan further promotes these policies.
The transportation system is also a key consideration for business locations. An efficient
transportation system will make the County more attractive to new businesses and will also
keep existing businesses from looking to locate elsewhere. In addition, continued focus in
intermodal opportunities (the transfer of goods between different transportation modes such
as truck to rail or air) in the area will make the County more attractive to businesses looking
to take advantage of rail sidings or locations near the airport. The County’s willingness to
support both road and rail access funding has already led to increased economic development
interest. The result is more jobs for County citizens as well as a more valuable and diverse
tax base.
As residential and commercial development continues, increasing demands will be placed upon
the County’s transportation infrastructure. Challenges will continue to be placed on the
County by users of Interstate 81 and commuters through the area.
The role of Frederick County is to first plan the transportation system and then work with new
and existing development to preserve corridor right-of- ways and implement construction
needs. It is the role of the State and Federal government along with development to fund
transportation improvements necessary to ensure the future health of the County’s
transportation network.
GOALS/STRATEGIES
GOAL: TO PROMOTE THE DEVELOPMENT OF NEW ROADWAYS AND THE REDEVELOPMENT OF
EXISTING ROADWAYS IN A MANNER THAT MAKES THEM OPEN, AVAILABLE, AND SAFE
TO ALL MODES OF TRANSPORTATION.
STRATEGIES:
• Match desired form of development to roadway classification to simplify the
determination of which roadways receive which treatment. That is, different types of
streets for different land uses. For example, while some roadways would require a
separate bicycle and pedestrian trail in order to be more accessible to bicyclists and
pedestrians. In rural areas a wider shoulder section may be more appropriate.
• Work with new development and redevelopment to implement this policy and the
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overall transportation plan. This may require analysis and modification of the
existing subdivision ordinance.
• Work cooperatively with the School Board to identify school locations that meet both
school and County goals of public access and safe walkability.
• Seek outside funding sources to fill in gaps in order to attach separate segments and
create a fully interconnected system.
• Continue to monitor the County ordinances to ensure they meet the shifting needs
of facility planning and VDOT standards.
GOAL: IMPLEMENT THE ROADWAY PRIORITIES OF THE COUNTY AS OUTLINED ANNUALLY IN
THE CAPITAL IMPROVEMENT PLAN, THE INTERSTATE, PRIMARY AND SECONDARY
ROAD PLANS, AND THE EASTERN ROAD PLAN, AND PARTICULARLY ROUTE 37 EAST.
STRATEGIES:
• Work with new development and redevelopment to implement the Eastern Road Plan
through construction and preservation of rights-of- way.
• Continue to work closely with VDOT, State and Federal representatives, and any
other available revenue sources to increase transportation funding.
• In the absence of outside funding, continue to protect rights-of-way and move
forward on planning transportation priorities.
• Coordinate with VDOT to make sure the required percentage of maintenance funds
to be spent on other accommodations is used on County priorities.
• Maintain the character of the rural roadways in the County while addressing safety
issues as they may arise.
GOAL: IMPROVE UPON EXISTING TRANSPORTATION SAFETY AND SERVICE LEVELS IN THE
COUNTY.
STRATEGIES:
• Coordinate with VDOT in the scoping and review of Traffic Impact Analyses (TIA).
• Analyze VDOT Access Management standards and, when needed, adopt County
standards that are stronger.
• Work with new development and redevelopment to ensure that trip generation and
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new movements do not degrade the transportation system, increase delays, or
reduce service levels.
• Create an informal working group with Staff, VDOT, and law enforcement to identify
and address safety concerns with coordination to be handled by Planning and
Development and the Board’s Transportation Committee (TC).
GOAL: FIND WAYS TO IMPLEMENT TRANSPORTATION NEEDS WHILE KEEPING THE COST
OF INDUSTRIAL PROPERTY COMPETITIVE. WORK TO ENHANCE USE OF
INTERMODAL FREIGHT MOVEMENT WHEREVER POSSIBLE.
STRATEGIES:
• Coordinate with local business to maximize the use of Economic Development Road
Access funding, as well as Rail Access funding.
• Actively work with rail carriers through the Economic Development Authority to
maximize the amount of material that is shipped into and out of Frederick County via
rail.
• Perform a study to discern where opportunities to bring air freight into the regional
airport may be available.
• Work to encourage and maximize opportunities presented by expansion of the
Virginia Inland Port. and the new multimodal facility coming to Martinsburg, WV.
• Make use of revenue sharing funds for development of industrial property when the
Board of Supervisors determines that it is in the best interest of Frederick County.
• Incorporate the Airport Master Plan into the County planning efforts.
GOAL: IMPROVE THE BEAUTY OF TRANSPORTATION CORRIDORS AT THE COUNTY
GATEWAYS AND ALONG COMMERCIAL ROADWAYS.
STRATEGIES:
• Work with VDOT to create roadway design plans that meet standards while
beautifying local gateways and commercial corridors.
• Through the Transportation Committee, develop a plan and actively promote corridor
beautification. This should include working with local institutions to create more
attractive County entrances into their facilities.
GOAL: ENSURE SAFE OPERATION OF FIRE AND RESCUE VEHICLES AND SCHOOL BUSSES.
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STRATEGIES:
• Investigate the existence and potential removal of barriers between neighborhoods
that lead to delays in response, particularly for the Greenwood and Millwood
Companies.
• Promote the adoption of a uniform locking technology acceptable to the Fire and
Rescue Department for use on gated and locked emergency access points.
• Analyze driving, road, and parking standards and actively seek the Fire and Rescue
Department input for driveways and roads to ensure that all approved developments
are accessible by fire equipment.
GOAL: PROVIDE COST-EFFECTIVE ALTERNATIVES TO AUTOMOBILE TRAVEL AS NEEDED,
FOR THE ELDERLY, DISABLED, STUDENTS, AND WORKFORCE.
STRATEGIES:
• Coordinate with existing agencies such as the Shenandoah Area Agency on Aging
(SAAA) and Access Independence to secure outside funding to enhance service to
the elderly and disabled in the community.
• Make use of the Winchester-Frederick Metropolitan Planning Organization (MPO)
resources to identify areas of most critical need.
• Monitor existing data source updates to determine areas of growing need.
STATE CODE COMPLIANCE
The Code of Virginia, Section 15.2-2222.1, states specific requirements for the development
of a transportation plan as it relates to comprehensive plans:
B.1. As part of the comprehensive plan, each locality shall develop a transportation
plan that designates a system of transportation infrastructure needs and
recommendations that include the designation of new and expanded
transportation facilities and that support the planned development of the territory
covered by the plan and shall include, as appropriate, but not be limited to,
roadways, bicycle accommodations, pedestrian accommodations, railways,
bridges, waterways, airports, ports, and public transportation facilities. The plan
shall recognize and differentiate among a hierarchy of roads such as expressways,
arterials, and collectors. In developing the plan, the locality shall take into
consideration how to align transportation infrastructure and facilities with
affordable, accessible housing and community services that are located within the
territory in order to facilitate community integration of the elderly and persons
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with disabilities. The Virginia Department of Transportation shall, upon request,
provide localities with technical assistance in preparing such transportation plan.
B.2. The transportation plan shall include a map that shall show road and transportation
improvements, including the cost estimates of such road and transportation
improvements from the Virginia Department of Transportation, taking into
account the current and future needs of residents in the locality while considering
the current and future needs of the planning district within which the locality is
situated.
This chapter has been reviewed by VDOT officials and has been determined to meet the
requirements outlined in state code.
PLANNING ASSUMPTIONS
While many factors impact changes in transportation needs and patterns, the most significant
factors impacting the transportation system in Frederick County are population and
employment growth. Desired patterns for that growth and policies and strategies to support
those patterns are outline earlier in this chapter of the Comprehensive Plan. As noted in the
WinFred MPO 2040 Metropolitan Transportation Plan, population in Frederick County which
was 78,305 in 2010 is expected to reach 151,408 by 2040. This is a decrease from the
previously expected horizon year population of 153,945 from the 2035 plan. Employment
which was 23,499 in 2010 is expected to reach 93,000 by 2040. This growth particularly the
population is expected to add significant stress to the Frederick County transportation system.
NEEDS ASSUMPTIONS
A number of factors aid in determining near and long term needs in the County. While the
most key input in determining needs and impacts is the modeling processes undertaken
through the WinFred Metropolitan Planning Organization, many factors help in determining
needs such as coordination with the Virginia Department of Transportation, safety concerns,
maintenance needs, citizen concerns, and economic development. Shown below are the 2040
Projected Volumes and Volume/Capacity Ratio maps from the modeling work done with the
WinFred Metropolitan Planning Organization. These modeling outputs are a significant tool in
determining and vetting near term as well as long range transportation needs.
Some of the County’s most immediate near term needs are as follows:
Route 37
Route 37 has long been the County’s top priority and this continues to be true. The completion
of the Route 37 loop around the eastern portion of the County will not only relieve congestion
on numerous local routes that have become congested as the County has grown, but also
offers relief on I-81 by helping to remove local trips from the interstate as well as offering an
additional relief valve when there are incidents that lead to I-81 delays or closures. The
segment of Route 37 that is of top priority is from I-81 exit 310 to Route 522. This segment
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offers important additional connectivity between I-81 and Route 522, which, in addition to
significantly aiding local travel, will offer improved access to the Virginia Inland Port. This
roadway is also expected to ease congestion on Route 277 and at Exit 313.
I-81 Exit 313 Bridge
The I-81 Exit 313 Bridge has been identified as in need of replacement by VDOT due to it
reaching the end of the time where routine maintenance can adequately address bridge
issues. The I-81 Exit 313 Bridge replacement has been funded by VDOT, however relatively
few funds on the project allow for increased capacity. The need for significant capacity
improvements at this interchange remains a priority.
I-81 Exit 317 and Redbud Road
There are currently two projects that are being pursued for this project at this time.
One This project would realign the northbound exit ramp of I-81 onto Route 11 to the location
where Redbud Road currently intersects Route 11. This would align the interstate ramps
which are currently offset and allow the removal of a signal on Route 11 north. In addition
this project would realign Redbud Road to a new intersection with Snowden Bridge Boulevard.
This project is expected to aid congestion and improve safety at this area of Route 11 North
as well as reduce stacking of traffic at the exit ramps.
The other project, which his more costly, would implement a more long-term solution in the
form of a diverging diamond interchange.
With good design and planning, it is possible that the first project could be done in a way to
provide nearer term relief while the County continues to pursue the larger solution for the
long term without creating throwaway improvements.
Route 11 North Corridor Widening
Modeling of the expected development along the Route 11 North corridor indicates a need for
widening and access management to the entire corridor with the corridor to become 6 lanes
to Cedar Hill Road and 4 lanes to the West Virginia State line. The most immediate need is to
widen from Route 37 to Old Charlestown Road.
Route 11 South
Route 11 South, particularly in the vicinity of Apple Valley Road, Commonwealth Court, and
the interchange with Route 37 is becoming increasingly congested as surrounding area
economic development has taken place.
Additional near term needs:
Renaissance Drive from Prosperity Drive to Shady Elm (currently in design)
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Valley Mill Road Realignment (East)
Valley Mill Road Realignment (West)
Russell 150 Bridge over I-81
Airport Road Extension
Tevis Street Extension
Route 277 from Double Church Road to Warrior Drive
Jubal Early Drive Extension and Interchange with Route 37
Intersection of Crestleigh and Senseny Roads
Fox Drive/Route 522 Intersection Improvements
Papermill Road/Route 522 Intersection Improvements
Apple Valley Road/Route 11 Intersection Improvements
Back Mountain Road Safety Improvements
Route 11 at Old Charlestown Road Intersection Improvements
Warrior Drive extension to Brandy Lane and Brandy Land upgrade
Route 11 From Opequon Church to the City of Winchester upgrade
Sulphur Springs Road Improvements
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VIII. HISTORIC RESOURCES
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HISTORIC RESOURCES
CURRENT CONDITIONS
Frederick County has shifted in recent years from an agrarian community to one that has
seen strong residential growth and an expanding business base. As a consequence of With
the development and diversification experienced over the years, landscapes in Frederick
County have changed more dramatically during this period than any other. New residential
communities have emerged in what were once rural areas, and architectural styles have
become more uniform. However, the historic past (including sites, structures and landmarks)
of Frederick County continues to play a role in the changing landscape.
The Rural Landmarks Survey of Frederick County, a survey of the majority of structures built
prior to 1940 in Frederick County, was completed in 1992. It documents documented over
1800 properties, concluding that many are historically significant. Archaeological sites in the
County have also been inventoried. Many of the historically significant properties are
recognized on the local, state, and national levels.
In addition to the many structures in Frederick County, six Civil War battlefields of great
national importance are located in the Frederick County and Winchester area. More than
12,000 acres of battlefield lands maintain high historic character and are enhanced by several
fortifications and entrenchments. A partnership involving Winchester and Frederick County
government, the Shenandoah Valley Battlefields Foundation, the Kernstown Battlefield
Association, the Cedar Creek Battlefield Foundation, the North-South Skirmish, and others is
underway to protect local battlefield sites and create a battlefield park network.
The Historic Overlay Zoning District has been developed as an option for owners who seek to
protect the historic resources on their property. This option provides a more regulated
approach to the preservation of structures and may be appropriate in areas seeking to
establish a historic district. Currently the County has four recognized historical districts and
one National Historic Park: Newtown/Stephensburg, Opequon, Middletown, and Bartonsville,
Cedar Creek Battlefield and Belle Grove National Historic Park.
The County has also identified Rural Community Centers throughout the County that have a
strong rural and historical character (See Rural Areas, Chapter 2).
FOCUS FOR THE FUTURE
The next twenty years should see the remainder of unidentified historic sites and archeological
resources discovered and recorded. Sites that qualify as historic will be added to an on-going
inventory. Such an inventory will include archeological surveys of properties surrounding
known battlefields, encampments, trenches, and cemeteries.
Heritage tourism will continue to be a strong component of Winchester-Frederick County’s
tourism program. Efforts to develop the battlefield park network will be underway in
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partnership with the Shenandoah Valley Battlefield Foundation and other community
stakeholders.
The economic and cultural importance of historic resources should also be promoted. In
combination with historic preservation and heritage tourism efforts, the County should partner
with local agencies, organizations, and other appropriate groups to provide education sessions
concerning preservation methods and programs. In addition, the Historic Resources Advisory
Board (HRAB), a County appointed group, should continue to coordinate with these agencies
when reviewing development applications.
COMMUNITY BENEFITS
The value of protecting our historical resources is immeasurable; once lost, historic structures
and areas cannot be replaced. They provide a sense of who we are and where we have been.
Our community benefits from a balance between surviving preserved historic resources and
the new development occurring in this area.
A battlefield park network in Frederick County and Winchester will provide substantial
economic and educational benefits and will create a much-desired avenue for heritage
tourism. Battlefield parks act as a means of meeting the County’s growing need for green
space and parkland by providing the opportunity for recreational facilities within the Parks
and Recreation Department. Preserving battlefields and historic sites provides open spaces
and scenic vistas. Incorporating trails, such as the five miles linking Route 661 to the Regency
Lakes Community and Millbrook High School at the Third Battle of Winchester, complements
the pedestrian and bike component of our transportation planning.
Archeological sites are also important to the development of public education and heritage
tourism programs as they provide a more detailed story of Frederick County’s history.
GOALS/STRATEGIES
GOAL: IDENTIFY AND RECOGNIZE HISTORIC RESOURCES IN THE LONG-RANGE PLANNING
EFFORTS OF THE COUNTY.
STRATEGIES:
• The Historic Resources Advisory Board (HRAB) will continue to assist the Department
of Planning and Development by reviewing development proposals to determine their
potential impact on historic sites and surrounding areas and make recommendations
regarding the mitigation of any impacts.
• Development should include a comprehensive approach to historic preservation that
will result in a system of coordinated sites and battlefields dedicated or protected in a
coordinated fashion, such as the Battlefield Park Network that preserves key resources
sites, attracts tourists, and supports education.
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• The Use the Rural Landmarks Survey shall continue to serve as a primary source for
determining identifying historic properties and districts that qualify for official
recognition.
• Update and maintain the Rural Landmarks Survey regularly in order to keep current
the inventory of structures older than fifty years.
• Develop, update, and maintain an inventory of archaeological sites and cemeteries in
Frederick County.
• Archaeological surveys should be conducted prior to development, particularly any that
involve battlefield areas, homesteads, Native American encampments, and waterways.
GOAL: INCREASE THE REHABILITATION, ADAPTIVE REUSE, OR RESTORATION OF HISTORIC
STRUCTURES.
STRATEGIES:
• Study, develop, and adopt methods and criteria to identify historic resources in need
of preservation.
• Support the reuse and rehabilitation of historic structures to maintain character of
community, both residential and business.
• Promote incentives for private landowners to comply voluntarily with Secretary of
Interior’s Standards for Rehabilitation. Incentives allowed by law for the rehabilitation,
adaptive reuse, or restoration of historic structures in the Historic Overlay Zoning
District should be considered.
GOAL: INCORPORATE HISTORIC RESOURCE DEVELOPMENT IN AN EFFORT TO STRENGTHEN
HERITAGE TOURISM.
STRATEGIES:
• Developments should incorporate and/or convert historic properties into recreational
elements, including but not limited to pedestrian trails, parks, and museums.
• Develop the Battlefield Park Network as a major heritage tourism component.
• Create dedicated pedestrian-sensitive trails, sites, and routes of interest that will not
adversely impact private property owners, as well as develop public scenic byways.
• Permit events, reenactments, tours, and exhibits to attract visitors.
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APPENDIX II – BACKGROUND ANALYSIS AND SUPPORTING STUDIES
THE COMPREHENSIVE PLAN - DRAFT
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LAND USE ANALYSIS
ACHIEVING FISCAL BALANCE THROUGH LAND USE PLANNING
THE 25% COMMERCIAL/INDUSTRIAL – 75% OTHER REAL ESTATE TAX ASSESSMENT RATIO
Local governments rely on the revenue collected from real estate taxes to fund their general
operation. Therefore, the revenue-generating potential for properties receives strong
consideration during land use and development decisions. In many circumstances, a site’s
ability to generate revenue, and an applicant’s capability to adequately mitigate negative
fiscal impacts, are driving factors behind the development approval process.
Prompted in part by fiscal concerns, local governments plan for and ultimately zone large
tracts of land for commercial and industrial use, to ensure there is adequate land available
for current and future demand. This practice of using land use policies, such as a
Comprehensive Plan, and the zoning ordinance to achieve fiscal objectives rather than
purely land-use objectives is commonly referred to as ‘fiscal zoning’. Under the fiscal
zoning approach, local governments discourage proposed developments that have the
potential to create a net financial burden on the county and will instead encourage
development that promises a net financial gain. Fiscal consideration is a significant element
of land use planning.
The County has successfully utilized the Comprehensive Plan to designate areas of the
County for future commercial and industrial (C/I) land use opportunities since the early
1970s. Over the years this practice has helped reserve appropriate areas of land for vital
tax generating uses. Through the policies of the Comprehensive Plan, areas designated for
C/I land uses can be implemented through the rezoning process, which then allows the
property owner to develop the site. Once the C/I use has been constructed, the County is
then able to bring in additional tax revenues from the site. Through the support and
encouragement of C/I uses, the County over the past decade has successfully maintained a
relatively low real estate tax rate while continuing to provide a high quality of public
services to its citizens.
The Frederick County Comprehensive Plan strives to incorporate a more comprehensive
analysis of the C/I land uses and their contribution towards the county’s fiscal health into its
overall community planning effort. The importance of the C/I land use has elevated in
recent years as the Country strives to overcome the challenging economic times. In an
effort to plan for the county’s prosperous future, the Comprehensive Plan has planned for
sufficient acreage for C/I land use opportunities necessary to generate tax revenue to offset
the county’s costs for providing public services to residential land uses, which although
necessary to accommodate population growth, on average does not pay for itself.
It is the County’s goal to create a policy plan that balances land uses and their associated
tax contributions to ensure that they offset the cost of provided public services. This goal
should be achieved by utilizing the land use plan to assist the County in achieving a real
estate tax assessment ratio of 25 percent C/I to 75 percent other land uses such as
residential. Ultimately, the land use plan should be designed to plan for adequate revenue
opportunities to ensure that the County can provide its citizens with desired public services
while maintaining the ability to keep a low tax rate.
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ANALYSIS
Evaluation of Costs of Community Services (COCS) by land use
A Cost of Community Services (COCS) study is one of the simplest forms of fiscal analysis
available to local government. The Cost of Community Services (COCS) methodology was
pioneered by the American Farmland Trust in the mid-1980s. It is based loosely on fiscal
impact methodology, which attempts to gauge the net fiscal impact of different types of new
development on a community. COCS studies require systematically assigning revenue and
expenditures to particular land uses. It then computes the ratio of total expenditures
required by land use to total revenues generated by land use.
When examining the COCS results, if the ratio is less than one then the land use generates
more revenue than it requires in expenditures and provides a local fiscal surplus. If the ratio
is greater than one, then the land use requires more in the value of services than the
revenue it generates creating a fiscal
deficit.
COCS studies usually find that
commercial/ industrial and
agriculture/open spaces ratios are much
less than one and residential ratios are
higher than one. The American
Farmland Trust conducted a COCS study
for Frederick County in 2003.
The American Farmland Trust (2010)
computed median ratios of 1.16, 0.35,
and 0.29 respectively for 152
community studies.
An examination of six studies conducted
in the last 20 years within Virginia
indicates an average of 1.18, 0.40, and
.35, respectively.
Summary of Virginia COCS Studies
*Source: American Farmland Trust, 2016 Cost of Community Services Studies
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Capital Impact Model
To project the capital impacts that would be associated with residential developments,
Frederick County utilizes a Capital Impact Model. This model is designed to evaluate the
anticipated need for capital facilities based on growth and to determine the cost of those
capital facilities to the County. The model also determines the cost to the County for
mitigating the infrastructure impacts associated with rezoning’s and identifies if a
reasonable cash proffer can be collected for a development due to the presence of “excess
capacity” or not.
Evaluation of County Tax Revenue and Expenditures
Utilizing figures for the County’s FY 2020-2021 Budget – Total County Revenues, one gains
a better understanding from where funds are derived, and where those funds are then
spent. Real Estate taxes represent approximately 35 percent of the County’s general fund
revenue, this is consistent with the past few years. This real estate tax revenue is derived
from various land uses: residential, commercial, industrial, and agricultural.
In 2020 commercial and industrial (C/I) land uses brought in almost $14 million in real
estate taxes, or 20.3 percent of the total real estate tax revenue. It should be noted that
C/I use only occupy 4 percent of the County’s total land area and contribute $1,330 per
acre in real estate taxes.
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In addition to real estate taxes, C/I land uses are also significant contributors to personal
property, local sales, meals and lodging, business license, and other local taxes. C/I land
uses are vital contributors to the local tax revenue and ultimately contribute almost half of
the County’s total tax revenue.
At the other end of the spectrum, in 2020 residential land uses brought in $49 million in real
estate taxes, or 72 percent of the total real estate tax revenue. Residential land uses make
up 26 percent of the County’s total land area and contributes an average of $707 per acre in
real estate taxes.
This review of the County’s tax revenues and expenditures clearly illustrates that while
residential land use contribute a majority of the real estate taxes collected by the County,
the costs for covering services provided to those residents far exceeds their contributions.
As depicted in the chart above, the expenditures for education (which is a service connected
with residential land uses), is almost three times the contributions made from residential
property.
Through solid land use and financial planning, the County has maintained a stable, relatively
low real estate tax rate for the past decade while continuing to provide top notch services to
its residents. Utilizing the benefits of C/I, an increase in C/I land uses would offer the
County an even greater ability to provide services or cover the increasing costs of services.
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Recognition of C/I Contributions to the Tax Base
Commercial and industrial land uses offer significant benefits to the community, in terms of
tax contributions (real estate, meals, machinery, room, etc.) with minimal expectations and
impacts on county services. C/I land uses also offer key employment opportunities for the
residents of the county to help improve their individual quality of life and achieve their
personal goals.
Based on the 2020 tax revenues, 20 percent of the total real estate property assessments
came from C/I uses and accounted for almost half of the total County revenue, while
accounting for less than 4 percent of the total land area in the County. While land values
will certainly fluctuate with the ebb and flow of the economy, C/I values will continue to be
significant contributors to the county’s tax base and more importantly, C/I tax contributions
will offset the residential land use cost for services.
Target: Plan for C/I to Represent 25 Percent of Real Estate Assessments
To maintain the County’s ability to provide high quality services while at the same time
maintaining low real estate tax rates, the Comprehensive Plan is utilizing land use planning
and C/I opportunities to offset impacts from existing and planned residential uses. In 2020,
twenty percent of the total real estate assessments came from C/I land uses; therefore,
additional developed acres of C/I land uses would have been needed.
Recognizing the County’s growth, the Comprehensive Plan and individual area plans should
be designed to ensure sufficient areas are panned for future C/I opportunities.
The Comprehensive Plan
The Comprehensive Plan has been developed to incorporate a balance of land uses in order
to achieve needed tax revenues. The Plan achieves the land use policy target of ensuring
that 25 percent of the projected assessments will be in C/I land uses. The Plan also
incorporates opportunities for mixed use developments and single-family residential uses.
The policy of directing residential growth into the UDA also promotes a more efficient use of
land and community services, ultimately offering additional cost savings to the county.
Opportunities for mixed use developments offer additional revenues to address the
demands for services generated by the residential uses. These projects include an
appropriate mix of commercial, office, and residential development. They provide an
efficient development pattern that can foster economic development, provide diversity in
land use, and reduce the number and the length of automobile trips. These mixed uses
projects are encouraged in appropriate locations in the Comprehensive Plan.
CONCLUSION
The land use designations and policies contained within the Comprehensive Plan
accommodate the goal of providing 25 percent C/I land uses to 75 percent Other land uses.
Maintaining a healthy C/I ratio will help the County maintain its current tax rates while
continuing to enhance the services provided the residents.
To reinforce a sound policy basis that balances land use planning and fiscal policies, the
ratio of 25/75 between C/I and other land uses in terms of available land areas and taxable
value of the land uses shall be the established benchmark. This policy shall dictate that at
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least 25 percent of the taxable land value (land plus improvement value) in the County
should contain C/I land uses, and conversely that no more than 75 percent of the taxable
land area should be for uses other than C/I land. By achieving this policy goal, the County
will ensure that taxable land values equate to the projected expenditures.
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