[From the U.S. Government Printing Office, www.gpo.gov]




                                                                                        Task 66

                                                                                        Final Product
          'i'appahannock, 'Viraw,,Ania


        COMPREHENSIVE PLAN


                                          December 1991







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           1991     ed by: Redman/Johnston Associates, Ltd.












                                ACKNOWLEDGMENTS







                   The draft Tappahannock Comprehensive Plan was prepared by the
                   Tappahannock Planning Commission, assisted by Town staff and the
                   consulting firm of Redman/Johnston Associates, Ltd.

                   SUPPORT FOR THIS PROJECT WAS FURNISHED IN PART BY THE
                   VIRGINIA COUNCIL ON THE ENVIRONMENT'S COASTAL
                   RESOURCES MANAGEMENT PROGRAM THROUGH GRANT NUM-
                   BER NA90AA-H-CA-796 FROM THE NATIONAL OCEANIC AND
                   ATMOSPHERIC ADMINISTRATION UNDER THE COASTAL ZONE
                   MANAGEMENT ACT OF 1972 AS AMENDED.











                                 US Department of Commerce
                             NOAA Coastal Services Center Library
                                  2234 South Hobson Avenue
                             L    Charlestox4 SC 219405-2413




                                    December 1991






                                             Comprehensive Plan
                                          Tappahannock, Virginia

                                               Table of Contents
                              Chapter 1:    The IFramework for Planning                        Page
                                 Definition and Purpose                                        1-1
                                 Legal Basis for Comprehensive Planning                        1-2
                                 Past Planning Efforts                                         1-2
                                 Components of a Planning Program                              1-2
                                 Process of Plan Development and Adoption                      1-3
                                 Goals and Objectives Setting                                  1-3
                                 Organization of the Plan                                      1-4
                              Chapter 2:    Background for Planning

                                 Regional Setting & Development Trends                         2-1
                                 Population Trends                                             2-3
                                 Growth Management Planning Considerations                     2-5
                              Chapter 3:    Land Use

                                 Background Analysis                                           3-1
                                 Goals and Objectives                                          3-4
                                 Implementation Recommendations                                3-7
                              Chapter 4:    Transportation

                                 Background and Analysis                                       4-1
                                 Goals and Objectives                                          4-13
                                 Implementation Recommendations                                4-15
                              Chapter 5:    Resource Protection
                                            (includes Bay Preservation Act)
                                 Background and Analysis                                       5-1
                                 Goals and Objectives                                          5-5
                                 Implementation Recommendations                                5-18







                                     Table of Contents (Continued)


                            Chapter 6: Housing

                                Background and Analysis                                          6-1
                                Goals and Objectives                                             6-7
                                Implementation Recommendations                                   6-8
                            Chapter 7:     Economic Development

                                Background and Analysis                                          7-1
                                Goals and Objectives                                             7-6
                                Implementation Recommendations                                   7-7
                            Chapter 8:     Community Facilities and Services

                                Background and Analysis                                          8-1
                                Goals and Objectives                                             8-8
                                Implementation Recommendations                                   8-9
                            Chapter 9:     Recreation

                                Background and Analysis.                                         9-1
                                Goals and Objectives                                             9-4
                                Implementation Recommendations                                   9-5
                            Chapter 10: Downtown Revitalization and Urban Design
                                           (includes Historic Preservation)
                                Background and Analysis                                          10-1
                                Goals and Objectives                                             10-5
                                Implementation Recommendations                                   10-6
                            Chapter 11: Implementating the Plan

                                Administration and Enforcement                                   11-1

                                Development Standards and Design Guidelines                      11-3




                                                           List of Tables                                       Page
                                    Table 3 - 1     Existing Land Use Within Tappahannock                       3-2
                                    Table 3 - 2     Developable LAnd by Selected Planning District              3-4
                                    Table 4 - 1     Average Daily Traffic on Primary Routes                     4-6
                                    Table 4.- 2     Average Daily Truck Traffic on Primary Routes               4-6
                                    Table 4 - 3     Projected Growth in ADT on Highways                         4-6

                                    Table 4 - 4     Historic Traffic Data                                       4-7
                                    Table 4 - 5     Projected Capacity on Key Highways                          4-9

                                    Table 6 - 1     Housing Types - 1980                                        6 - i
                                    Table 6 - 2     Assessed Value of Each Property Containing                  6-3
                                                    Residental Units
                                    Table 6 - 3     Residential Buildout by Selected Planning Dis-              6-6
                                                    tricts
                                    Table 8-1       Sewage Treatment Demand at Buildout of                      8-7
                                                    Planned Intensities

                                    Table 11 - 1    Permitted Densities                                         11-4



                                                          List of Figures
                                                                                                                Page
                                    Fig. 6 - 1      Dwelling Units by Type                                      6-2
                                    Fig. 11 - 1     Bufferyards                                                 11-8


                                                           List of Maps
                                                                                                                Page
                                    Map3-1          Land Use                                                    3-15
                                    Map4-1          Functional Classification of Streets                        4-4
                                    Map4-2          Transportation System Deficiencies                          4-22
                                    Map 4 - 3       Transportation Plan                                         4-23
                                    Map5-1          Delineation of Environmental Constraints                    5-4





                                                                    ni






                                                                                              Comprefiensive Plan
                                 Chapter.l.

                                 THE FRAMEWORK FOR PLANNING
                                 A
                                         s Tappahannock grows and changes over the next twenty years, this
                                         Comprehensive Plan will serve as a guide for making public and
                                         private decisions regarding the Town's growth and development.
                                 The Plan is a culmination of a cooperative effort, pulling together the
                                 knowledge and skills of diverse citizens and staff. This Plan presents a future
                                 vision of Tappahannock into the year 2010 along with recommendations for
                                 bringing that vision to fruition. The ideas of the Plan are a distillation of the
                                 community's many. desires, tempered by what seems feasible and
                                 reasonable. This Plan is not intended to be a static document. It should be
                                 reviewed and updated periodically to reflect new development trends, shifts
                                 in the economy, or changes in the community's goals and, objectives.

                                 Tappahannock is a special place with a unique character, culture and history
                                 that distinguishes this community from hundreds of towns throughout the
                                 country. This Comprehensive Plan particularly addresses the preservation
                                 and enhancement of these special qualities and that distinctive personality
                                 felt by the citizens who live and work here. This sense of uniqueness and
                                 pride of place are the guiding forces and strongest motivation for those who
                                 have contributed to the realization of this document.


                                 DEFINITIONS AND PURPOSE

                                 The Comprehensive Plan is an official public document adopted by the
                                 Town Planning Commission and the Town Council. The Plan is a general,
                                 long-range, policy and implementation guide for decisions concerning the
                                 overall growth and development of the Town.

                                 The Plan is comprehensive because the elements cover the entire range of
                                 development issues which can be influenced significantly by the Town
                                 Cou ficil and other governing authorities and agencies. The Plan is general
                                 because the recommendations. are broad, rather than narrowly defining
                                 decisions for land use at specific sites. The Plan is long-range because
                                 consideration is given to the problems and opportunities which may arise
                                 over the next twenty years. The Plan is dynamic because there can be
                                 amendments to adapt to new situations and meet new challenges.


              Chapter 1                                                                                    Page 1






                                                                               Tappahannock, Virginia


                          Although adopted as an official public document, the Comprehensive Plan
                          is not a development ordinance. This plan serves as a catalyst and guide to
                          the establishment of, or revisions to, other ordinances or planning tools.
                          These include the zoning and subdivision ordinances, and the capital
                          budget. The Land Use Plan Map, included in this plan, serves to illustrate
                          the mix and location of land uses where the Plan's policies and
                          recommendations will be applied. This mapped information is general in
                          nature and not appropriate for determining the suitability of specific sites
                          for any specific use.


                          L EGAL BASIS FOR COMPREHENSIVE PLANNING

                          The preparation of a comprehensive plan is the legal responsibility of the
                          Town Planning Commission under Virginia Planning Enabling Legislation,
                          Title 15.1, Article 4, of the Code of Virginia, 1950, as amended. Any
                          ordinance pertaining to the use of land or the growth and development of
                          the Town should conform to the goals, objectives, and policies as they are
                          presented in this Plan.

                          PAST COMPREHENSIVE PLANNING EFFORTS
                          The prior Comprehensive Plan was adopted in 1985. A subsequent planning
                          effort was undertaken by the Town with the assistance of the Urban and
                          Regional Planning Department of the Virginia Commonwealth University
                          in 1989. This Plan is intended to build on those past efforts by updating
                          pertinent data and background information and to expand on and focus the
                          implementation of the Plan. The intended result is implementation
                          strategies that will be acted upon within established time frames. Planning
                          and zoning is administered by the Town Manager and plan implementation
                          is primarily the responsibility of the Town Manager's office.

                         .COMPONENTS OF A GROWTH MANAGEMENT PRO-
                          GRAM

                          This Comprehensive Plan provides the basic framework and direction for
                          all components of what may be considered the Towns overall
                          Comprehensive Planning Program.





        Chapterl                                                                             i Page 2






                                                                                          Comprehensive Plan


                                It is not a stand-alone document but is supported and, in turn, supports
                               related Planning Program documents such as the ones listed below.

                                   o  Zoning, Ordinance

                                   0  Subdivision Ordinance


                                   0  Capital Improvements Budget

                                   0  Com  prehensive Water Quality Management Plan for the Middle
                                      Peninsula: An Information Search and Review, MPPDC, January
                                      1989


                                      Soil Survey, September 1980

                               These  documents and others, when used concurrently, are the basis for
                               directing and managing growth in Tappahannock.

                               PROCESS FOR PLANPEVELOPMENT AND ADOPTION
                               Preparation of this Comprehensive Plan began in late 1,990 with the hiring
                               of the planning. consulting firm of Redman/Johnston Associates, Ltd. In
                               February of 1991 the Planning Commission began working with the
                               consultants and Town staff to formulate a new Plan. The Planning
                               Commission worked to identify and discuss important planning issues and
                               background information relevant to the Comprehensive Plan.                This
                               included a workshop to review and revise a set of draft goals and objectives
                               for the Plan which originally drafted by the Planning Commission. Through
                               an "Implementation Options Paper"' which arrayed planning and
                               implementation techniques available to the Town, as well as other planning
                               background data, the Planning. Commission formulated the basis for this
                               Plan.


                               GOALS AND OBJECTIVES SETTING

                               The Tappahannock Comprehensive Plan is intended to capture a broad
                               community vision, of a future Tappahannock. Written statements that
                               describe future expectations are necessary to describe that vision. These
                               statements are intended to be easily understood and generally accepted
                               among the residents and business interests in the Town.

                               Goals and objectives are found in this chapter and in the subsequent
                               chapters for each functional area of the Plan, e.g., land use, transportation,
             Chapter 1                                                                                -Page 3






                                                                                 Tappahannock ViTinia


                          community facilities, etc. The goals and objectives formulat@d by the Town
                          have been incorporated as a basis for the goals and objectives statements in
                          this Plan. Some goals and objectives developed in the 1985 Comprehensive
                          Plan process were retained. Others were carried-over from the Virginia
                          Commonwealth University plan.

                          Goals are long-range, generalized statements that represent the ultimate
                          desires of the Town. The situations and conditions called for in the goals
                          would normally be achieved only through a sustained series of actions over
                          a considerable period of time. The goal statements in this Plan are
                          sufficiently broad to remain valid as people"s values change over time. As
                          these values change, the interpretation of the goals will change also. When
                          this happens, the goals will remain in effect, but new objectives may be
                          developed.

                          Ob -jectives comprise a proposed series of broad policies that are more
                          immediate and specific in nature than are the goals. Objectives are intended
                          to be intermediate steps that are taken.toward achieving the goals. For each
                          goal, several objectives have been developed. The following are the general
                          development goals of the Town.

                          Goal:      The line assets of the Town, its people, and their life styles, its
                                     diversified business and industrial community and its small town
                                     historical charm and high quality of living shall be preserved and
                                     improved.

                          Goal:      All future development in the Town shall be carefully guided in
                                     order to achieve and maintain the highest quality living environ-
                                     ment possible.

                          Goal:      All future development in the Town shall be located and designed
                                     in such a way that it compliments existing development and
                                     provides maximum choice for residents and businesses.

                          Goal:      The Town shall strive for public participation in the planning and
                                     decision making process to ensure that the wishes of the com-
                                     munity are translated into appropriate courses of action.


                          ORGANIZATION OF THE PLAN

                          The Comprehensive Plan is organized into eleven chapters. These chapters
                          deal with all aspects of land use in the Town. Following this introductory
                          chapter, Chapter 2 highlights past trends and future projections of
        Chap ter 1                                                                               Page 4






                                                                                        Comprehensive Plan


                               population and housing. Chapters 3 through 10 are the Plan Elements. Each
                               of these chapters includes a discussion of background and analysis,
                               identification of issues, a statement of goals and objectives, and a summary
                               of implementation recommendations pertaining to each of the functional
                               areas of the plan. Chapter 3 presents the central theme of the report, the
                               Land Use Plan, which designates how, when, and where growth should
                               occur. The other sections include discussions of Economic Development,
                               Transportation, Community Facilities and Services, Housing, Parks and
                               Recreation, Natural Resources Protection, and Downtown Revitalization
                               and Urban Design. The final chapter of the Plan, sets forth implementation
                               techniques including details concerning necessary actions and
                               responsibilities for implementing the goals and objectives of the Plan.





























             Chapter 1                                                                               Page-






                                                                                          comprehensive Thin
                               Chapter 2

                               BACKGROUND FOR PLANNING


                               REGIONAL SETTING AND DEVELOPMENT TRENDS

                                      appahannock is an incorporated town located in the eastern portion
                                      of Essex County, Virginia. The town is 'situated on the shores of the
                                      Rappahannock River within the concave of the urban crescent formed
                               by the metropolitan areas of Washington, D.C., Richmond, and Hampton
                               Roads. In less than three square miles of land area, Tappahannock exhibits
                               many positive features including a waterfront, a historic downtown,
                               residential subdivisions, schools and other public facilities, an airport and
                               industrial center, a business corridor and extensive wetland areas. These
                               characteristics combine to make Tappahannock a regional commercial, in-
                               dustrial, and employment center while keeping a rural, small town feeling.

                               Settled in the 1600s, the town was first called New Plymouth and grew as a
                               port and trade area due to its proximity to the beautiful Rappahannock.
                               Tappahannock, which currently serves as the county seat, was first
                               incorporated in 1926. Additional territory was annexed in 1939,1966, and
                               again in 1976. According to the 1980 census, Tappahannock encompassed
                               an area of 2.75 square miles and had a population of 1,882.

                               Population projections for the Middle Peninsula region predict that by the
                               year 2030, the population will double the 1980 census count (Middle
                               Peninsula Planning District Commission (MPPDC), 1989). While the largest
                               growth in population is expected to occur in the counties on the lower end
                               of the peninsula, Essex County will nevertheless likely increase in
                               population by about 4 percent over the next decade. Middlesex County and
                               King and Quee'n* County are projected to grow in population by 10 percent
                               and 7 percent respectively (MPPDC, 1989). Directly across the
                               Rappahannock River from' Tappahannock, Richmond County's population
                               is projected to grow at a 4 percent rate over the next decade (Richmond 1985).
                               As a result metropolitan area -residents from surrounding jurisdictions,
                               primarily the Richmond area, will continue to be lured by the lower taxes,
                               lower housing costs, small town character, and relative freedom from the-
                               kind of congestion evident in counties nearer to the Newport News,.
                               Hampton Roads, Richmond, and Fredricksburg. This exodus to the Town
             Chapter2                                                                               i Pagel






                                                                                 Tappahannock Virginia


                          of Tappahannock and Essex County will no doubt mean increased traffic on
                          local highways, many of which are not still little more than country roads.

                          Indications of economic stability of the Town of Tappahannock can be seen
                          by looking at data for the county and region. The unemployment rate for
                          both Essex (-3 percent) and the Middle Peninsula (-3 percent) match the
                          state average, and is well below that of the Northern Neck average of 8.5
                          percent (MPPDC, 1989). While unemployment rates are generally low for
                          the region, income figures on a per capita, family, and median household
                          level have historically been about 17 percent below the state average. This
                          is partially due to the large number of retirees and elderly on fixed incomes,
                          and also partly due to the high salaries found in northern Virginia which
                          skew the average (MPPDC, 1989). Another consideration could be that a
                          large portion of the population may be under-employed, a common
                          phenomenon in areas where many people have historically derived their
                          income from farming and seafood harvesting.

                          Perhaps most impressive is Essex County's per capita taxable sales for 1988.
                          Essex ranked 29th among all localities, and 6th among all counties in the
                          state with $8,275 per capita sales from which state and local sales taxes were
                          collected (Center for Public Service, 1989). As the primary commercial and
                          retail center in the County, Tappahannock contributes greatly to the
                          favorable ranking.

                          Other factors showing economic growth in the region are an increased work
                          force and rising income averages. In addition there has been an increase in
                          the housing market in the Middle Peninsula. Comparing increases in
                          households and populations since 1980, the number of households has risen
                          41 percent, while population has increased by 21 percent (MPPDC, 1989).
                          Two factors play a role in this phenomenon. First, the region is within 30 to
                          60 minutes travel time to the major metropolitan centers of Hampton Roads,
                          Richmond, and parts of Northern Virginia. This allows new residents
                          reasonable commuting time to job centers. Second, the waterfront amenities
                          of the region have attracted many retirees from outside the area to locate
                          here to enjoy the rural and water-related lifestyle.

                          The. Town of Tappahannock and the County of Essex maintain a good
                          working relationship working together to address mutual concerns. There
                          are several reasons for this cooperation. First, the town serves as the
                          governmental seat for the county, affording ease of communication and
                          visibility among the leaders of each. Next, most of the county's health and
                          public facilities are located in the town. This central location of schools,
                          library, health department and social services, provides ease of access for
        Chapter2                                                                                  Page 2






                                                                                           comprehensive Pfan


                               both town and county residents. Also important is the fact that the civic and
                               business interests of the town and county are not exclusive of each other. In
                               addition, the Middle Peninsula Planning District Commission provides a
                               forum for cooperation. among local governments, including Tappahannock
                               and Essex. This regional cooperation will likely continue to be an important
                               asset in the future as the General Assembly's Commission on Local
                               Government Structure and Relationships explores incentives for public
                               service consolidation among local jurisdictions.

                               In summary, Tappahannock serves as a regional center for the County of
                               Essex as well as portions of the middle and northern neck peninsulas. The
                               business and commercial activity in the town benefits the area by providing
                               employment and a strong tax base. Being the seat of county government,
                               Tappahannock residents enjoy easy access to county services and
                               administrative offices.


                               POPULATION TRENDS AND PROJECTIONS

                               Recognition of the amount, distribution and timing of population growth
                               and development are fundamental to the Town's achievement of Growth
                               management objectives, These factors are, in turn, directly related to the cost
                               of providing the facilities needed to support the new population and also
                               determine non-residential growth facility needs.of the Town.

                               It is believed that the 1990 Census was not a reliable source of population
                               estimates since the 1990 Post Census Review figure showed the Town to have
                               loss 150 dwelling units since the 1980 Census. Consequently,
                               Redman/Johnston Associates (RJA) has made a current estimate of housing
                               and population. Using a 1980 Census housing unit counts of 875, RJA added
                               the total number of dwelling units occupied during the 1980s to obtain 1990
                               total. That number was reduced by a 10 percent vacancy rate and multiplied
                               by the 1990 Census household size of 2.45 to obtain a total 1990 population
                               of 2,130. Based on these figures it appears that Tappahannock had an
                               average annual growth rate of    ,1.7 percent from 1980 to 1990.

                               A continued development trends scenario -is one in which Tappahannock's
                               occupied housing inventory 'grows at about the same level as it has during
                               the 1980s, approximately 9 new dwellings per year. The population and
                               housing projections shown on the following graph indicate that, by 2010,
                               there would be 1,150 dwellings and about 2,530 people in the Town. Such
                               a growth pattern would correspond to the continuing attractiveness of
                               Tappahannock as a place to live and work.
             Chapter2                                                                                   Page 3






                                                                                         Tappahannock Virgmia


                             The following kinds of factors will influence whether such a continued
                            growth scenario is high or low:

                                    The economic growth pressures of the "urban crescent" between the
                                    Newport News and Norfolk Metropolitan areas, Richmond and
                                    northern Virginia.

                                    Employment opportunities in Tappahannock and Essex County.

                                    Construction of a Route 17/360 bypass or truck route alternate within
                                    the planning period.

                                 ï¿½  Expansion of sewer and water facilities in the Town and surrounding
                                    County service area over time.

                                 ï¿½  Growth of commercial services.


                                 ï¿½  The influence of major regional transportation improvements
                                    (Washington Bypass or 1-95 corridor modifications) on regional traffic
                                    and growth patterns.

                                 ï¿½  Implementation of growth management and development strategies.

                                         Population and Dwelling Units.
                                                   1990 to 2010 (Projected)
                                  3000-  Population
                                                                                                  2530
                                                                                      2430
                                         -             - - . o---233G---- ---- -
                                  2500                      223
                                               2130

                                  2000---           --
                                  1500---                        -105        -110             114
                                           96           101
                                  1000 -


                                   Soo


                                      0
                                             1990         1995        2000         2005         2010
                                                                      Years


                                                           Dwelling Units        Populati
                                                                                          @114

                               Redman/Johnston Associates, Ltd
        Chapter2                                                                                            Page 4






                                                                                           Comprehewive Phzn


                               GROWTH MANAGEMENT PLANNING CONSIDERATIONS

                               The potential growth of Tappahannock over the next 20 years underscores
                               the need for attention to growth management. At least 500 new residents in
                               approximately 200 new households will locate in the Town during the next
                               20-year period. The form, pattern and distribution of new development
                               needed to accommodate this growth in population, together with the
                               qualities of commercial and industrial development to meet these residents'
                               shopping and employment needs, will influence a number of factors which
                               taken together will strongly influence the future quality of life in the Town.
                               Cost of Public Services

                               Among the factors which influence quality of life are the costs to provide
                               requisite public services to Town residents, including constructing
                               community facilities necessary to house many of these services. The public
                               facilities and services included include schools, roads, police protection, fire
                               protection and provision of adequate water. supplies and wastewater
                               treatment and solid waste management facilities.
                               Sense of Community and S          mail Town Character
                               While the future costs of Town services are of obvious and tangible import,
                               a number of other more subtle Tov%m'qualities can also be influenced by the
                               amount, form, distribution and quality of growth that takes place in the
                               Town.
                               Quality of the Natural Environment

                               Tappahannock's natural environmental assets include an extensive
                               shoreline, broad estuarine river, forested areas, and scenic vistas of the
                               Rappahannock. These features create a setting of notable beauty. Ironically,
                               the development which accompanies Population growth can threaten the
                               natural fe atures which attract people to the area.

                               The consumption of land by development has resulted in the loss of some
                               of these important environmental features, and can diminish the
                               environmental quality of the Town and its aesthetic appeal. As development
                               proceeds, floodplains, wetlands, upland natural areas, steep slopes, and
                               shoreline areas are altered and wildlife habitats are lost. As woodlands are
                               cleared for development, watersheds are denuded, soil is washed into
                               streams and rivers, and upland wildlife habitats reduced. Improper
                               development in floodplains often results in both property and natural
                               environmental damage from increased flooding. The loss of wetlands may
            Chapter2                                                                                    Page-






                                                                                Tappahannock Virgftda


                          result in increased runoff, erosion, siltation, water pollution, and the loss of
                          shellfish, fish and other wildlife habitats.










































        Chapter2                                                                                 Page 6






                                                                                             Comprehensive Pfim

                                 Chapter 3

                                 LAND USE'

                                 Background and Analysis
                                 General Development Patterns
                                 R
                                        apid residential, commercial and industrial growth has occurred
                                        throughout Tappahannock in recent years. A major apartment com-
                                        plex has been completed on the waterfront near downtown and new
                                 residential subdivisions have been built in the southeastern section south of
                                 Hoskins Creek. Route 360/17 south of Hoskins Creek has become a major
                                 commercial corridor serving the adjacent counties in the region and as such
                                 has become a boon to Tappahannock. Care must be taken that the character
                                 of the Town does not continue to be dominated by the "strip" development
                                 which detracts from the Town's rural atmosphere. Along with the recent
                                 addition of the Canon plant, the industrial park in the western portion of
                                 town has been expanded across the town@s, boundary into Essex County.

                                 A substantial ariiou.nt of town land is used for public*facilities. Such facilities
                                 include county public schools, town and county government administration
                                 buildings, the municipal airport, the sewage treatment facility, limited river
                                 access areas, and additional land which is leased to the Virginia Department
                                 of Transportation.

                                 Undeveloped land throughout the town provides for future expansion of all
                                 land uses. Lands.bordering the town are also largely undeveloped and allow
                                 expansion both for industrial use to the west and residential use to the
                                 southeast and north. Isolated non-conforming pockets of industrial,
                                 residential and business use must be accessed for their limited future
                                 development in order to form compatible land uses. The Purdue granary -is
                                 one example of an industrial use that is not compatible with wetlands
                                 surrounding the area..

                                 The existing land use has been influenced by the large tracts of wetlands,
                                 associates with Hoskins Creek, which cut through the center of town. The
                                 same situation exists in the northern part of town along Tickners Creek.
                                 These lands have been undevelopable in the past and are now restricted from
              Chapter3                                                                                     Pagel






                                                                                   Tappahannock Virginia


                           development by current wetland protection laws. This has created extensive
                           open space for a town the size of Tappahannock. Steep slopes to the
                           southwest just outside the town's borders prohibit large scale development
                           and add to the stock of undeveloped open space lands. New environmental
                           soil conservation laws will also. tend to limit future development in this area.

                           The table below illustrates how land is utilized within the town compared
                           to other uses.


                                                        Table 3-1
                                      Existing Land Use Within Tappahannock
                                      Land Use                                   Percent
                                      Undeveloped                                  48

                                      Public                                       10

                                      Residential                                  20

                                      Business                                     15

                                      Industrial                                     7


                           Several opportunities present themselves for Tappahannock's future. There
                           are pockets of undeveloped land along the Route 360-17 business corridor,
                           that if left undeveloped, could would relieve the monotony of typical strip
                           commercial development that often harms the rural town atmosphere of
                           Tappahannock. Future expansion could take place south, out to Bray's Fork
                           and along the Route 627/Airport Road corridor. Undeveloped lands to the
                           southeast and north, out Route 17, provide an area for future residential
                           expansion.

                           Finally, the extensive wetlands in and around Tappahannock are protected
                           by state and federal wetlands laws which will assure open space
                           opportunities well into the future.

                           Through the land use analysis the following assets have been identified:

                              ï¿½   The combination of wetlands, steep slopes, county public school
                                  lands and airport has provided the town with a large proportion of
                                  land for open space which maintains the character of a rural town.

                              ï¿½   Route 360/17, a major north-south highway, has provided a large
                                  business corridor for economic vitality.

        Chapter3                                                                                    Page 2






                                                                                       Comprehensive Plan


                                     Large tracts of undeveloped lands on the Route 627/Airport Road
                                     corridor provide flat and easily accessible lands for industrial use.

                                     Undeveloped lands exist for potential residential expansion to the
                                     south of Hoskins Creek.

                              Various land uses throughout the town have created non-conforming uses
                              with the'adjacent lands. These include:

                                  * The industrial use at the.mouth of Hoskins Creek.


                                  -  The business use at the Tickners Creek/Route 17 area.

                                  0  The industrial use between the mobile home park and the residential
                                     area across from the airport.'
                              Developable Lands Analysis
                              Table 3-2 shows the result of a developable lands analysis where existing
                              land use and the Resource Protection Area (RPA) lands (See Chapter 5) were
                              subtracted from the total incorporated area. The developable areas are
                              broken down by planning districts described in the implementation section
                              of this Chapter. From the results of this analysis it can be determined that
                              there is adequate land area within the Town to accept the projected growth
                              over the next twenty years without creating a land monopoly. These
                              acreages are used in subsequent chapters to estimate residential build-out
                              in the Town and to estimate sewer demand during the planning horizon.















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                                                                           Tappahannock Virginia


                                                   Table 3-2
                              Developable Land by Selected Planning District (1)
                                        Tappahannock, Virginia


                        Planning Distric                                 Acres

                        Residential Suburban
                                 114 Mobile home units
                                  34 Platted subdivision lots
                                     Unsubdivided parcels                  91
                        Mixed Residential Cluster                          70

                        General Commercial                                 87

                        Industrial                                        172


                        NOTES:


                        (1)    Only includes planning district with significant amount of
                               developable lands rather than scattered infill areas.

                        Source. Redmanljohnston Associates, Ltd., 1991


                        GOALS AND OBJECTIVES

                        The Tappahannock Land Use Plan expresses the Towns goals, objectives
                        and policies concerning the type, location, intensity and quality of public
                        and private land use.

                        Goal:     Expand business use while retaining a rural small town atmos-
                                  phere.

                                  Objectives:

                                  Expand the U.S. 17 Commercial District (east side) in the Town to
                                  provide greater depth.

                                  Provide for conservation land use on undeveloped lands adjacent
                                  to, and across from the Southern States buildings which include
                                  lowlands from the Hoskins Creek wetlands areas.


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                                                                                           Comprehensive Pfan


                                          Prohibit further expansion, of business use at the mouth of Tick-
                                          ners Creek and industrial use under the Thomas J. Downing
                                          Bridge.

                                          Utilize undeveloped lands to their fullest potential. Utilize un-
                                          developed lands to their fullest potential. This includes using the
                                          Town"s airport should it become available in the future for other
                                          uses.


                               Goal:      Increase industrial land   use to retain economic potential for
                                          Tappahannock.

                                          Objectives:
                                          Expand future    industrial use past the airport, along the'Route
                                          627/Airport Road corridor.

                                          Include the existing airport as an industrial land use if it becomes
                                          available through the development of a new airport.

                                          Industrial Zoning.  should be designated along a truck by-pass
                                          around the Town.


                               Goal:      Expand residential Ian, d uses to provide housing for future resi-
                                          dents.

                                          Objectives:

                                          Expand further residential use north out Route 17, and to the west
                                          and east of the Route. 360 /17 business corridor.

                               Goal:      Produce a desirable residential environment for all residents of
                                          Tappahannock

                                          Objectives:

                                          Protect.residential neighborhoods from encroachment by com-
                                          mercial and industrial activities.

                                          Require landscaping for future non-residential development
                                          within the Town for greater aesthetic appeal.

                                          Require buffers between incompatible land uses.
             Chapter3_                                                                                  Page 5






                                                                                   Tappahannock, Virginia


                                      Require commer    cial and office property abutting residential areas
                                      to provide measures designed to reduce detractive impacts and
                                      nuisances to the residential areas. Improvements should be
                                      sought in existing situations whenever permits are applied for to
                                      permit expansion or alterations.

                                      Protect residential neighborhoods from through traffic by provid-
                                      ing for a carefully considered and coordinated plan for highways,
                                      streets and intersections.

                                      Implement improved, performance-based development stand-
                                      ards and revised site plan review procedures to improve the
                                      quality of future development and redevelopment in the Town.

                                      Acquire the land under the Thomas J. Downing Bridge and
                                      develop an urban park to improve the downtown environment.

                           Goal:      Land use patterns within the Town shall preserve the present
                                      character and contribute to the conservation of land, effective
                                      delivery ofservices and an attractive, harmonious mixture of land
                                      uses.


                                      Objective:

                                      Single-family and multi-family residential, commercial industrial
                                      and residential uses shall mix harmoniously within the Town with
                                      less intense uses being buffered from the other uses by appropriate
                                      setbacks and landscaping.

                           Goal:      The Town shall discourage development which would place an
                                      unnecessary burden on local residents or create undesirable con-
                                      sequences and living environments.

                                      Objectives:

                                      Objective analysis of physical conditions shall be made to deter-
                                      mine that prospective development can be located safely.

                                      The developer shall provide necessary public services designed
                                      exclusively for the benefit of the new development.



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                                                                                           Comprehensive Pfan


                               IMPL.EMENTATION REPOMMENDATIONS
                               'The Planning Districts
                               The Land Use Plan Map (Map 3-1) delineates areas deemed by the Town to
                               be appropriate locations for private land uses, such as residential,
                               commercial, and industrial uses and public uses such as parks. The
                               Tappahannock Land Use Plan designates ten (10) general areas or Planning
                               Districts (see Map 3-1). The Planning Districts were derived from a
                               combination.of determinants including: existing land use patterns; projected
                               growth and development trends; the     -natural capacity and suitability of the
                               land to support development; the availability or proposed future availability
                               and adequacy of development infrastructure (roads, sewer and water), and
                               the goals, objectives and policies expressed by the Town. Each district
                               description outlines the general type, intensity and character of development
                               that should occur within the district.
                               Residential    Districts

                               The primary existing and planned residential areas of the Town have been
                               categorized into the three separate districts, Residential, Town Scale
                               Residential, and Mixed Residential Cluster. Although the goals, objectives
                               and policies for residential development are equally true in each district, as
                               residents in residential neighborhoods have similar requirements, the
                               existing character of each district differs, both as a function of design and
                               density.
                               Town Scale Residential Districts

                               Town Scale Residential includes those existing residential neighborhoods
                               which exhibit. urban characteristics, such as a close proximity to the
                               downtown core, and a manner of addressing the street which instills a urban
                               feel. These existing areas generally exhibit recognizable historic qualities
                               and are subject to pressure for changes in land use. In addition, this category
                               includes existing and proposed developments with urban densities.
                               Densities in existing Town Scale Residential areas range from four to six to
                               dwelling units per acre.

                               The purpose of the Town Residential classification is to recognize the unique
                               problems associated with existing urban residential neighborhoods,
                               particularly older neighborhoods and to provide appropriate areas for infill
                               development at similar densities.


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                                                                                  Tappahannock Virginia


                          In the case of the former, the primary aim of the Town is to protect the
                          existing character of those residential neighborhoods from encroachment by
                          adjacent non-residential uses and from incompatible intensification of
                          residential uses within that may have a deleterious effect on its character and
                          quality.
                          Residential (Suburban) District

                          Existing suburban neighborhoods in Tappahannock are typical of such
                          communities built in the latter half of this century. For the most part these
                          areas consist of detached single family units. Suburban Residential areas
                          have densities ranging from two to five dwelling units acre.

                          The purpose of the Suburban Residential District classification is twofold.
                          In existing residential area the primary purpose is to identify residential
                          neighborhoods that need protection from encroachment by incompatible,
                          non-residential uses. At the edge of these districts, the objective is to
                          minimize the impacts of more intense, non-residential uses that adjoin
                          residential neighborhoods. This includes ensuring that provisions are made
                          for. landscaping of future non-residential development and for buffers
                          between incompatible land uses. In the context of the Transportation Plan,
                          these neighborhoods should be protected from through traffic.

                          For those vacant lands that occur in these Districts the purpose of the
                          classification is to -identify areas wherein the Town will foster additional
                          development of a Suburban Residential character.
                          Mixed Residential Cluster District

                          The Mixed Residential Cluster District is to provide for areas within the
                          Town where higher density and more intense development can be
                          accommodated. These areas are presently served or can be readily served
                          by sewer and water facilities. Development in this District will differ from
                          traditional forms of development in providing a comprehensive approach
                          to site planning. This form of development will permit the planning of a
                          project and the calculation of densities over the entire development, rather
                          than on an individual, lot-by-lot basis. It also involves a process which
                          revolves mainly around site-plan review, in which Town officials have
                          considerable involvement in determining the nature of the development.
                          This form of development is characterized by a unified site design (Master
                          Plan) that addresses the number of housing units, the manner of clustering
                          buildings and providing common open space, the distribution of density,
                          and the mix of housing typesand land uses. Development of new sites
                          adjacent or near to established neighborhoods would be required to buffer
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                                                                                            Comprehensive P(an


                                the edges to minimize impacts on nearby established neighborhoods. This
                                approach acknowledges existing development patterns and recognizes
                                historic development conditions. In short, higher residential densities or
                                mixed use will be permitted only* in such areas where infrastructure in the
                                form of water, sewer and transportation systems would not be adversely
                                impacted or could be accommodated within a defined geographic cell.
                                BUSINESS DISTRICTS

                                General Commercial District

                                The General Commercial District includes the entire Route 17 highway
                                corridor from Warner St. to Brays Fork. Where developed, these areas
                                exhibit the general visual characteristic of highway corridors along which
                                piecemeal "strip" development has occurred. Uses include retail sales and
                                business service establishments such as community shopping centers, fast
                                food restaurants, and service stations. This corridor is the primary entrance
                                point to the Town from the south.

                                A large portion of the General Commercial District is already developed.
                                These existing commercial uses have an established form and require a
                                different treatment than will future development. Areas of existing
                                commercial use may need to be further broken down in the zoning ordinance
                                to provide more distinct treatment of these existing developed commercial
                                areas. The business district created should provide different treatments for
                                the range of use from neighborhood business to highway oriented
                                commercial uses and establ     'ish access control and landscape or buffer
                                performance standards appropriate to their redevelopment or infill
                                development over time. Where possible, service roads or access
                                management policies should be established in existing commercial areas
                                adjacent to the major transportation routes to minimize the effects of local
                                traffic on the capacity of the roads to carry thru-traffic capacity which is the
                                primary function of these routes.

                                Undeveloped areas within the General Commercial District such as the area
                                around Route 698 on the other hand provide an opportunity for significantly
                                improving the quality of commercial development within the Town. Site
                                plan review and approval procedures for these areas should be required.
                                This. offers several advantages in coordinating new activities with existing
                                ingress and egress points along the local street system. Traffic controls can
                                be provided  'in accordance with anticipated volumes. On-site parking
                                facilities and internal traffic patterns are also controlled via the site plan
                                review process. The more detailed zone mapping in this district should
             Chapter3                                                                                    Page 9






                                                                                   Tappahannock Virginia


                           emphasize the configuration zones to achieve a greater depth-to-frontage
                           ratio in dimensions.


                           The purpose of the General Commercial District is to recognize areas of the
                           Town that, due to their historic development pattern or current zoning, form
                           a more or less continuous commercial corridor along major highway routes.
                           Vacant land in the District is intended to provide sufficient space in
                           appropriate locations for additional future commercial service activities
                           which would generally serve a wide area and need to be located along
                           existing major thoroughfares. For the most part, uses in this District are not
                           characterized by extensive warehousing, frequent heavy truck activity, open
                           storage of material, or nuisance factors of dust, odor, and noise associated
                           with manufacturing.
                           Central Business District

                           The Central Business District, which has historically been the center of
                           commerce and business in Tappahannock, contains a mix of public
                           institutions, as well as business, service, and commercial establishments
                           which comprise a significant portion of the Town"s economy.

                           The Central Business District is an urban area with the dominant feature
                           being architecture; i.e., buildings enclosing spaces, and the spaces are places
                           of intense human interaction. Privacy in urban environments requires
                           enclosures, patios, or rooms. In order to providethe intensity and diversity
                           of choices that make urban centers people-magnets, high densities are
                           essential. It remains the classic urban design-type of environment in which
                           buildings define and enclose spaces. The Central Business District in
                           Tappahannock is an example of urban environment whose scale is in
                           keeping with the rural qualities of the County in general. A mix of
                           commercial shopping facilities, service industries, offices, public and
                           institutional buildings, other intense non-residential uses, and town scale
                           residential are typical uses.

                           The purpose of the Central Business District designation is to recognize the
                           unique role of the Central Business District in Tappahannocks land use and
                           to continue to provide for a compatible mixture of commercial, cultural,
                           institutional, governmental, and residential uses in a compact, pedestrian
                           oriented, traditional town center that serves as the focal point for
                           surrounding residential areas. The primary land use and community
                           facility objectives for the CBD are to maintain and enhance the CBD as a
                           center of governmental, professional, and mercantile activities in the County
                           in the face of changing consumer preferences.

         Chapter3                                                                                 Pagel






                                                                                            Comprehensive Plan


                                Industrial District

                                Included in this District are those areas of the Town which have been
                                developed for industrial uses and vacant land planned for business and
                                industrial expansion in the future. A characteristic of this District is large
                                sprawling buildings with associated parking areas. Due to the large parcel
                                sizes upon which they are located, their visual impact is somewhat lessened.
                                The existence of undisturbed natural areas surrounding these uses also helps
                                soften adverse visual effects. Generally these areas are., located near the
                                existing Town airport.

                                The purpose of the Industrial District is to establish appropriate areas that
                                will be held out for light and medium industrial uses, and necessary
                                supporting accessory uses and facilities. Site should be large enough to be
                                designed as industrial parks that complement surrounding land uses by
                                means of appropriate location of buildings and service areas, attractive
                                architecture, effective buffering, and substantial site landscaping.
                                Business and Employment District

                                In recognition of the need- to continue to provide additional, diverse job
                                opportunities for residents of Tappahannock and Essex County, it is
                                proposed that areas be reserved for development into business and
                                employment clusters or parks. This district is located in the County on the
                                northwest of the existing industrial area and would be served by the
                                proposed bypass. This district coincides with an area being considered by
                                the County and is roughly four hundred acres, of which some three hundred
                                appear suitable for development.

                                This area, like the Industrial District, should require sites to be large enough
                                to be designed as industrial parks that complement surrounding land uses
                                by means of appropriate location of buildings and service areas, attractive
                                architecture,, effective buffering, and substantial site landscaping.
                                RESOURCE PROTECTION DISTRICT
                                The Resource Protection District includes those existing natural areas in the
                                Town which are likely to remain in their natural state, or if used will serve
                                as parkland. These areas include slopes in excess of 25 percent, the 100-year
                                floodplain, Resource. Protection Areas (RPA) associated with the
                                Chesapeake Bay Preservation Act, perennial and intermittent streams and
                                stream buffers, nontidal wetlands, and town'parklands.


             Chapter3                                                                                   Page 11






                                                                                    Tappahannock Virginia


                            The purpose of the Resource Protection District is to recognize general areas,
                            where sensitive natural features and other development constraints limit
                            uses or where special land use development requirements are imposed for
                            the express purpose of protecting and enhancing water quality in the
                            Chesapeake Bay and its tributaries and maintaining or protecting sensitive
                            wildlife habitats. Included in this classification are areas best suited to open
                            space or low intensity recreation uses. Permitted development in these areas
                            should be strictly regulated, to ensure minimum adverse environmental
                            impacts, or limited, with special attention given to maintaining natural
                            conditions.

                            HIGHWAY CORRIDOR DISTRICT

                            The Highway Corridor District is intended to address architectural and
                            aesthetic controls as well as special access and buffering requirements along
                            the Town's major highway.

                            The Highway Corridor District is an area within which certain specific public
                            policies relating to protection of Highway functions and landscape
                            aesthetics, would be administered by the Town through overlay zone
                            regulations in the Zoning Ordinance. Views afforded to drivers and
                            passengers, whether residents, workers or visitors, traversing the major
                            transportation routes of the Town provide a lasting visual and, therefore
                            mental, impression of the Town's character. Although the visual experience
                            probably forms only a small part of a person's overall experience in the
                            Town, it, nevertheless, is of special public concern and requires public
                            attention if the Town's image is to be a positive one now and in the future.

                            Not all development in Tappahannock requires the same level of public
                            scrutiny. The most critical visual areas lie along the major transportation
                            routes since they are shared by all citizens and tourists. Hence, corridors of
                            500 feet from the right-of-way of the major transportation route
                            rights-of-way are identified for specific regulatory provisions.

                            The visual character today along    these corridors is diverse, ranging from
                            areas primarily rural, natural, and scenic to areas with disorganized and
                            cluttered roadside development. The intent of the policies for the Highway
                            Corridor is not to preclude the diversity that already exists; but, rather to
                            encourage and better articulate the variety of visual experiences along the
                            highway corridors of existing-and proposed routes classified as major roads
                            in the Town.


                            The purpose of the Highway Corridor District is to protect and improve the
                            quality of visual appearances along these linear corridors and to p         id
                                                                                                     rovi e
         Chapter3                                                                                  Yage 12






                                                                                            comprehensive P(an


                               guidelines to ensure that buffering, landscaping, lighting, signage, and
                               proposed structures are internally consistent and of a quality which
                               contributes to the Town character.


                               Future development of lands within the Corridor should be subject to the
                               policies specific to the particular Land Use District in which they lie (and
                               ultimately the particular zoning district in which they occur), as well as the
                               following policies that are specific to the overlay corridor. These policies are
                               not intended to restrict or prevent the construction of buildings within each
                               Corridor, nor to require the removal of existing structures. The Corridor
                               policies are not setback requirements, although certain minimum setbacks
                               will be required to protect highway rights-of-way and maintain sight
                               clearances for traffic safety.

                               The corridors along U.S. 17 for a distance of 500 feet from the right-of-way
                               are designated as the Highway Corridor Overlay District. Other routes such
                               as the proposed bypass may be established in the future as determined
                               appropriate.

                               Policies specific to the Highway Corridor include-

                                   0  Buffering requirements to screen unattractive buildings from view
                                      and which provide for a mix, of canopy, understory tree and shrub
                                      level plantings will be more substantial in the Corridors.

                                   0  Special standards for signage height, design', size, materials, and
                                      lighting to maintain and enhance visual qualities will be required.

                                   0  Special consideration of new development within this district includ-
                                      ing assessment of visual impact of developmeh t, assessing pre-
                                      development visual conditions and how the proposed development
                                      will affect them will be made.


                                      Consideration will be given to subject new development within the
                                      Highway Corridor-to review by a Corridor Review Committee (CRQ
                                      or an architectural review committee which would make recommen-
                                      dations to the Planning Commission.

                                      Service roads or at a minimum joint access drives should be required
                                      where they would enhance safety and achieve efficient access control
                                      within the Highway Corridor District.


             Chapter3                                                                                  Page 13






                                                                            TaPPahannock Virginia


                                Landscaping should be used to soften lighting and signage impacts
                                and to be located in groupings to identify entrances to sites.







































       Cha ter3                                                                           Page 14
           P






                      Map 3-1




                                  LAND USE PLAN






















                                                          X


                                                                                                        if




                                                                                                                                             PAR
                                                                                                                                  dOo

                                                                                                                             \r-ANDIDATE
                                                                                                                              HIStORIC DISTRI






                       July 1991




                               Pted@/Johnston Aawdatm, Ltd.







                                                                                           COM heruive Phin

                                Chapter 4

                                TRANSPORTATION
                                A
                                        Ithough the Virginia Department of Transportation (VDOT) has
                                        prim Iary responsibility for the highway system, Tappahannock is a
                                        strong partner in transportation planning. This occurs because of its
                                role in identifying highway improvement needs.and its policies and regula-
                                tions which guide land use and development in the Town. Tappahannock"s
                                growth along with a general increase in travel throughout the region win
                                mean more traffic on local highways. Thus transportation has become a
                                growth management issue for the Town and clearly indicates that
                                Tappahannock@s transportation system for the year 2010 will require special
                                consideration.

                                This element of the Comprehensive Plan sets the framework for address M*g
                                this issue. The goals and objectives statement contained in this chapter
                                provides the general guidance for developing more specific policies and
                                implementation approaches. Background for transportation planning is
                                provided through an assessment of the existing transportation network, of
                                highway capacity, of safety conditions and of planned improvements and
                                an identification of pertinent issues, problems, and opportunities. Finally,
                                this element uses the current traffic situation in Tappahannock as the basis
                                for developing short and long term strategies to satisfy year 2010 needs.

                                BACKGROUND AND ANALYSIS

                                Safe and efficient transportation systems for the movement of people and
                                goods remain fundamental to the continued economic growth and
                                development of small urban. areas such as Tappahannock. Although the
                                town is relatively urban in nature, the actual population (1,890 in 1980) is
                                neither over 5,000 persons to place it in the urban places category, nor is- it
                                over 3,500 to qualify Tappahannock for a separate state-funded small urban
                                area transportation plan. With considerations for certain social and
                                environmental issues, transportation planning for the town of
                                Tappahannock is an integral part of this comprehensive planning process.

                                For purposes of analysis,the study area extends only to the corporate limits
                                of Tappahannock, except in those areas affected by the proposed
                                bypass/ truck route. Within the town and the immediate area, all air, water,
             Chapter 4                                                                                  Page 1






                                                                                  Tappahannock Virginia


                           and surface transportation facilities publicly maintained and/or operated
                           have been considered.


                           Tappahannock is fortunate to have not only an operating airport, but a
                           navigable waterway, as well as a major river crossing. Primary highway
                           transportation routes intersect in the central business district, and this has
                           been both the bane and the boon to town commerce.

                           The Town of Tappahannock is served by the Bowling Green Residency
                           within the Fredericksburg Construction District of the Virginia Department
                           of Transportation (VDOT). VDOT maintains an area maintenance shop
                           within the corporate boundaries of the town. This land is leased to VDOT
                           by the Town of Tappahannock. As the town does not maintain its own roads,
                           this small VDOT shop performs the actual work in addition to regular
                           assignments.
                           Functional Classification of Highways
                           The skeletal framework of the County's highway system are the arterial and
                           collector highways shown on Map 4-1. The map also reveals that the
                           majority of the highway system is composed of local roads and secondary
                           highways primarily functioning to provide access to individual properties.
                           The state's classification is based on the Federal Functional Classification of
                           Highways which further classifies highways as rural or urban based on the
                           proportions of vehicle miles of travel and road mileage. Characteristics of
                           the broad classification of highways are as follows.

                           Principal Arterial: Carries a high volume of traffic for intra-state,
                           inter-county and inter-city travel. Traffic on this type of road normally has
                           the right-of-way except in areas of high hazard, where controls are used.

                           Minor Arterial: Carries a high      volume of traffic for intra-county and
                           inter-community travel. These roads normally serve the higher
                           classification roads providing access to and from the arterial.

                           Major Collector: Serves intra-county and inter-community travel, but at a
                           lower volume, and usually connects to an arterial to provide access to the
                           surrounding land. Access is not directly from this road but from a sub-road
                           connected to the collector.   'They may serve   .community shopping areas,
                           schools, parks and cluster developments.

                           Minor Collector: Serves intra-community travel at a volume below the major
                           collector. Provides access to the land using lower order roads and sometimes
                           direct access from itself.
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                                                                                             Comprefwnsive Pfan


                                 Route 360/17, Church Lane, provides the only means of arterial access for
                                 east/ west and north/ south through traffic. Route 360/17 also serves as local
                                 traffic access in the central business district and the business corridor area.
                                 By performing this dual function without a through traffic relief facility,
                                 Route 360/17 is often overloaded at peak hour operation. Route 360/17 is
                                 currently functionally classified as a principal arterial. The only other
                                 federal aid functionally classified road is Route 627, Airport Drive, in the
                                 industrial park area. It is classified as a major collector.
                                 Traffic Volumes and Trends

                                 Total average daily traffic (ADT) on U.S. 17 through the Town exceeded
                                 22,000 vehicles per day in June of 1988 as surveyed by the Fredericksburg
                                 District office. These volumes reflect the importance of this route as a major
                                 arterial highway serving the Town.


























              Chapter4                                                                                   Pag e 3






                                         Map 4-1



                                                         FUNCTIONAL CLASSIFICATION
                                                         OF STREETS












                                                          17




































                                           July 1991




                                                      Redman/Johnston Assodates, Ltd.






                                                                                                Comprehensive Plan


                                  Table 4-1 shows Average Daily Traffic Trends of Primary Flighways in the
                                  Tappahannock area from 1981 to 1989. Traffic volumes on these highway
                                  sections increased by 4 to 6 percent per year duringthis timeperiod, agrowth
                                  rate that far exceeds the annual growth -rate of the Town and County
                                  population during - that same time period. It is evident that the recent
                                  development trends in the Town, County and region are resulting in
                                  increased travel on the County's primary highway system. If these traffic
                                  trends continue the major roadways serving the Town and beyond will be
                                  operating at or above capacity as they are currently configured. Table 4-2
                                  shows that truck traffic from 1981 to 1989 increased at approximately the
                                  same rate as the overall traffic.volume.

                                  Only 17 percent of Tappahannock traffic is considered through traffic
                                  according to the VDOT 360/17 Corridor Study. As 83 percent of traffic
                                  actually stops in town for a duration of 30 minutes or longer, then the town
                                  serves as a destination for most motorists. This further reinforces the notion
                                  that the town is "'hub" for the region.

                                  The Table 4-3 below shows trends in average daily traffic for primary roads
                                  in the Town. The average annual percent increase in traffic well exceeds the
                                  rate of growth for dwelling units. Many routes have experienced traffic
                                  increases of 10 to 1-7 percent a year. If these trends are projected into the next
                                  twenty years, the traffic will exceed those levels for which VDOT is currently
                                  planning.


                                  CAPACITYANALYSIS

                                  "'Level of service" (LOS) is often used  as a measure of system performance
                                  in transportation planning analysis and to define public policy concerning
                                  highway performance. (See Appendix A for a definition of level of service
                                  descriptors.) They are also used in traffic impact analysis to determine local
                                  traffic impacts of proposed developments. Definitions of level of service
                                  differ for intersections and roadway segments, for city streets, and for
                                  controlled access highways. In urban and suburban areas, where
                                  intersections are closely spaced, traffic signals usually govern arterial and
                                  street capacity. U.S. 17 through Tappahannock is an example of this
                                  situation. Thus, in urban and suburban locations roadway adequacy is
                                  assessed at intersections in the traffic impact analysis process. Another
                                  related measure of highway capacity is the volume to service volume (VSV)
                                  or volume to capacity ratio as used in Table 4-5.



               Chapter 4-                                                                                    Page 5






                                                                                                                                          Tappahannock Virginia



                                                                                        Table 4-1
                                                     Average Daily Traffic on Primary Routes
                                     Route                       From                              To '                      1981             1989 % Change
                                     17              Rt. 624, Caret                     Tappahannock                         5,990            8,255                38%
                                     17/360          Tappahannock                       Brays Fork                          11,530          17,190                 49%
                                     360             Rt. 624,W/ Warsaw Tappahannock                                          7,010            9,310                33%
                                     .17             Brays Fork                         Center Cross                1        4,8351           7,180,               49%


                                                                                        Table 4-2
                                                     Average Daily Truck Traffic on Primary Routes
                                     Route                       From                              To                        1981             1989      % Change
                                     17              Rt. 624, Caret _ Tappahannock                                              587              775               32%
                                     17/360          Tappahannock                       Brays Fork                           1,083            1,480                37%
                                     360             Rt. 624,W/ Warsaw Tappahannock                                             567              8401              48%
                                     .17             13rays Fork                        Center Cross                            484,             5901              22%

                                     Source Table 4-1 amd 4-2: "Average Daily Traffic Volumes on Interstate, Arterial and Primary
                                                     routes, VDOT, 1981 and 1989 editions.






                                                                                        Table 4-3
                                                                            Projected Growth in ADT on Oghways
                                                                                              Without By-Pass
                                 Route         From                 To                          1981 (3)1         1988 (2)       % Change          2010(l)        % Change

                                 Rt. 17        Rt. 360E             NCL Tapp.                   6,815             15,230                123%      21,790                43%

                                 Rt. 17        Rt. 360E             Rt.617                    12,610              22,460                 78%      30,520                36%


                                 Rt. 360       Rt. 17/360           Rich. Co. La.               7,585             13,640                 80%      18,140                33%


                                 (1) Virginia Statewide Highway Plan, Fredricksburg District

                                 (2) R1. 17 and 360 Corridor Study, VDOT1988

                                 (3) Summary ofAccident Data, VDOT 1982

                                 RJA, Ltd.                                                                                                                            Oct-91





                Chapter 4                                                                                                                                             Page 6






                                                                                               Comprehensive Plan,


                                 Intersection level of service is on a six-level scale with "A" being the highest,
                                 and "F" being total gridlock or complete failure. The overall level of service
                                 for the intersections in the Town is currently LOS B. Level of service B means
                                 the average delay per vehicle stopped at an'intersection ranges between 5.1
                                 and 15 seconds. Normally, intersections with a level of service less than "D"
                                 in the peak hour are considered deficient. All of the intersections in
                                 Tappahannock are considered adequate by VDOT standards; however, the
                                 time/delay runs were averaged over peak and non-peak hour operation (2
                                 p.m. to 6 p.m.) and may not reflect the peak hour of use operations. With
                                 this in mind, the time and delay studies reveal a northbound through trip
                                 from corporate limits to corporate limits to be 5 minutes and 15 seconds in
                                 duration. A southbound.trip of the same distance takes 5 minutes and 10
                                 seconds on average during:.this f6ur-hour period. Major causes for delay
                                 were determined to'be left turning vehicles and traffic signals. Additional
                                 signalization has beeA installed since this study.

                                 The intersection of 360 /17, Freston Street and T-1007, Earl Street, would
                                 appear to warrant a traffic signal in that the residents of the Dangerfield area
                                 must travel a circuitous route in 'Order access U.S. 17 in the morning peak
                                 hour; however, none of the volumes standards are rriet, and the intersection
                                 does not have an abnormal accident rate. Table 4-4 shows the growth in
                                 traffic volumes at the intersection of Church Lane and Queen Street. Though
                                 there has been some fluctuation in the counts, the overall increase from 1980
                                 to 1987 has been significant. The traffic flow at this intersection will soon
                                 cause it to operate at LOS F during peak hours.

                                                                   Table 4-4
                                                        HISTORIC TRAIFIC DATA
                                                       Church Lane and. Queen Street

                                 Year                  U.S. 17N                  Rt. 360E         U.S. 17/360
                                 1980                   11,183                    6,905                14,935
                                 1981                   11,587                    7,147                15,640
                                 1982                   12,013                    7,571                16,456
                                 1983                   8,375                     6,612                12,751
                                 1984                   9,512                     8,477                14,117
                                 1985                   11,348                                         11,862
                                 1986                   10,537                    7,734                16,368
                                 1987                   13,290                    8,512                18,305
                                 Change 1980-1987       18.84%                    23.27%               22-56%
                                 Source. VDOT Primary Route Count Program - Stations 6000 and 6092
                                 RJA, Ltd.
              Chapter4                                                                                      Page 7






                                                                                       .Tappahannock Virginia


                              Traffic projections made by the Virginia Department of Transportation
                              (VDOT) indicate that the average daily traffic on U.S. 17 through Town will
                              increase from its current level of 22,000 vehicles per day to 30,500 vehicles
                              per day by 2010, assuming no alternative route is built. This would indicate
                              the need for additional capacity on the Town's arterial system. In addition,
                              it is clear that the Town needs to make judicious use of the existing highway
                              systems to ensure that the remaining capacity is not prematurely depleted
                              as a result of poor access control, particularly along the major arterial
                              corridors.

                              Based on    the Roadway Inventory contained in the Virginia Statewide
                              Highway    Plan, the Town's highway system generally contains excess
                              capacity to accommodate future growth. However, current and projected
                              volume to service volume (VSV) ratios indicate that U.S. 17 requires close
                              monitoring, particularly if a bypass is -not constructed on schedule. Table
                              4-5 lists key highway sections with the existing VSV and projected 2010 VSV.
                              Rt 17 is projected to exceed its design capacity within the planning horizon
                              if a bypass is not built. Route 627 (Airport Rd.) is currently operating at its
                              design capacity and is projected by VDOT to be at a VSV ratio of 1.2 within
                              the next 20 years even if the bypass is built.
                              Safety
                              Annually, the Traffic Engineering Division of VDOT monitors and
                              summarizes motor vehicle accidents that occur along various road sections.
                              The accident, injury and death rates are calculated by dividing the total
                              number of accidents, people injured, or people killed by the annual vehicle
                              miles of travel at a location. Rates are expressed per 1 00-n-tillion vehicle miles
                              of travel. The accident rates for "high accident" primary and secondary
                              highways in the Town are shown on Tables 4-6. The accident rate is used for
                              establishing priorities only and not for comparing the safety performance of
                              different intersection and road design types.

                              High-accident road sections, for the purpose of this analysis, will include
                              those road sections that exceed the State average accident and injury rates.
                              The highest accident rate-road sections within the Primary System, ranked
                              by accident rate, are shown on Table 4-6. The highest accident and injury
                              rates on a Primary Road in the County occur on the U.S. 17 corridor in
                              Tappahannock. The highest accident rate roads within the Secondary
                              Systern are also shown on Table 4-6. These streets deserve a closer analysis
                              to determine if there is a definable pattern or cause for the accidents that may
                              be addressed through design modification or increased capacity.


                                                                                                           age
          Chapter4                                                                                        PkWe






                                                                                   Comprehensive P(an










                                                         Table 4- 5
                                       Projected Capacity on Key Highways
                                                   Without By-pass
                     Route From        To             DSV  (3) 1988 (2) PVSV (4)   2010 (1) FVSV (5)
                     Rt. 17  Rt. 360E  NCL Tapp-    24,000    15,230    0.63     21,790      0.91
                     Rt. 17  Rt. 360E  Rt. 617      24,000    222460    0.94     30,520      1.27
                     Rt. 360 Rt. 17/360Rich. Co. Ln. 32,463   13,640    0.42,    18,140      0.56
                                                     With By-pass
                     Route   From      To            DSV (3)   1988 (2) PVSV (4)   2010 (11) FVSV (5)
                     Rt. 17  Rt. 360E  NCL Tapp.    .24,000   15,230    0.63       9,360     0.39
                     Rt. 17  Rt. 360E  Rt. 617      24,000    22,460    0.94     16,020      0.67
                     Rt. 360 Rt. 17/360 Rich. Co. Ln. 132,463 13,640    0.42     18,140   1  0.56

                     (1) Vityinia State wide Highway Plan, Fredricksburg District, VDOT

                     (2). Rt. 17 and 360 Corridor Stu@y, VDOT 1988

                       Design Service Volume from Virginia Statewide Plan

                     (4) Present Volume to Service Volume Ratio

                       Future Volume to Service Volume Ratio


                     RJA. Ltd.                                                             Oct - 91











                             Using 1983 to 1987 Virginia'accident data, the Town of Tappahannock has a
                             higher than average motor vehicle accident rate. The town rate is 441
                             accidents per hundred million vehicle miles of travel contrasting to the
                             Virginia Statewide rate of 3.3,0 accidents per hundred million vehicle miles
                             of travel.

                             Seventy   percent of the motor  vehicle accidents within the town of
                             Tappahannock are minor "fender bender" incidents. The actual seven* tv of
              Chapt&'t                                                                        Pdge 9






                                                                                  Tappahannock Virginia


                           the accidents is not worse than the statewide average; however, even a minor
                           accident can seriously impede traffic flow during peak hour demand
                           periods.

                           Speed limits on Routes 360/17 within the town limits are as follows:

                           Location                                                     Posted Speed
                           South corporate limit to Hoskins Creek Bridge                  45 mph
                           Hoskins Creek Bridge to Earl Street                            35 mph
                           Earl Street to Marsh Street                                    25 mph
                           Marsh Street to north corporate limit                          45 mph

                           The recent traffic engineering study by the VDOT Fredericksburg District
                           traffic engineer reveals the posted speed limits are exceeded by 85 percent
                           of the motorists by an average of 5-7 miles per hour. An opportunity for
                           revenue enhancement exists through increased law enforcement efforts.
                           Other town speed limits are 25 mph except where otherwise posted. This
                           creates a safety hazard, particularly in the downtown area.
                           Highway Improvements
                           Through its Six Year Improye    ment Progjam, VDOT sets priorities for the
                           funding and construction of improvements to the Primary and Urban
                           Highway Systems in Tappahannock. The FY 92 Thru 97 Program has
                           identified no funding for projects within the corporate limits of
                           Tappahannock.

                           The Town and the State have jointly developed a Capital Improvement
                           Program for the Secondary Highway System. Proposed funding for this six
                           year program includes the widening and construction of curb and gutter on
                           Marsh Street (Route 657) west of Markham Terrace (Route 1019).
                           Other Transportation Facilities and Services

                           Bus Service

                           Bus service is no longer available in Tappahannock; however, tour buses
                           frequently pass through enroute to other destinations. This situation limits
                           transportation opportunities for low-to-moderate income groups, as wen as
                           other transportation dependent groups such as the elderly and handicapped.


         Chapter4                                                                                 Page 10.






                                                                                            Compre&nsive Plan


                                 Rail Transportation
                                 No rail service is available for the Town of Tappahannock. As might be
                                 expected the 1990 Virginia Statewide Rail Plan lists no proposed extension
                                 of rail service to Tappahannock. The nearest rail services are those offered
                                 in Richmond, Ashland, or Quantico. Direct access is not available in
                                 Tappahannock.
                                 Air Transportation
                                 The Tappahannock Municipal Airport has 580 square feet of terminal space,
                                 30 patron parking spaces, and is home base to 13 single engine aircraft, 1
                                 multi-engine aircraft, and 1. helicopter. Tappahannock's airport engages
                                 10,000 operations per ye    .ar (1988 data), but has been designated for
                                 elimination due to hazards which disqualify the facility from federal
                                 funding. The airport tower is owned by the Virginia Elastic Company, and
                                 -the runway also serves as an access road to the plant located nearby.

                                 Nearly all of Essex County i-s*currently within a 30-n-dnut& drive to an airport
                                 of some type. The Tappahannock Municipal airport is one of 29 local service
                                 airports throughout Virginia. A local service airport is one with "known
                                 forecasted development limitations or expansion constraints." These
                                 limitations or constraints include environmental, air, space, topography,
                                 proximity,of similar services, land use incompatibility, ownership status,
                                 financial infeasibility, conflicts with surrounding development, and low
                                 activity projections. The Tappahannock Municipal Airport has a relatively
                                 short runway and narrow width (2600 feet by 75 feet) and has electronic
                                 navigational aids. It is planned fo-r replacement during the next decade by
                                 a larger regional facility, possibly located in Caroline County.

                                 Projected operations for the Tappahannock Municipal Airport, if it stays
                                 active, are 12,927 in 1993 and 14,388 in 1998. The sharp increase in demand
                                 of nearly 44 percent (2.6 percent per year) demonstrates a need for aviation
                                 facilities in this area. The Virginia General Assembly passed legislation
                                 creating the Tappahannock-Essex County Airport Authority. This
                                 Authority is charged with overseeing the development and operation of a
                                 new airport. A site location study is currently ongoing.

                                 There are no heliports in Essex County. The nearest helicopter is a private
                                 one in Gloucester County which services a medical facility. A medical
                                 heliport could be an asset to the hospital just outside of the town.



              Chapter4                                                                                 Page 11






                                                                                  Tappahannock Virginia


                            Water Transportation

                            Presently, water navigation on the Rappahannock is predominantly private
                            pleasure craft. Public ramps. are maintained at Dock and Prince Streets.
                            Commercial transport to Newport News from Tappahannock is limited to
                            some light barge activity, although potential exists for the expanded use of
                            this waterway for transport.
                            Pedestrian Access

                            Pedestrian access in town is marred by the location and condition of the
                            sidewalks. Sidewalks are located directly adjacent to the Route 360/17
                            roadway, and given the high traffic volumes on the facility, create an unsafe
                            condition for pedestrians. While many of the sidewalks are in poor
                            condition, most intersections do provide curb cut ramps for persons with
                            physical disabilities. Many of the side streets do not have sidewalks or, if
                            they do, they, too, are directly adjacent to the roadway. Although modern
                            pedestrian crossway signalization has been installed at the intersection of
                            360/17 and Route T-1005, Prince Street, much could be done to improve
                            access for foot traffic. Few well-marked crosswalks exist in Tappahannock.
                            Thoroughfare Roads

                            The Draft 2010 Statewide Highway Plan from VDOT indicates a corridor for
                            possible preliminary engineering work on a bypass route to relieve traffic
                            on Route 360/17 during the next six-year phase. Several alternatives for a
                            bypass have been considered in a recent planning study. Alternative A, as
                            recommended by the VDOT staff, would utilize the existing bridge
                            channeling through traffic around the central business district and industrial
                            park, therefore, providing much needed access between the four comers of
                            the town.


                            The possible elimination of heavy truck traffic in the Central Business
                            District (CBD) has given the bypass proposal unusual citizen support. The
                            presence of and growth in heavy truck traffic is substantiated by both the
                            District produced Traffic Engineering Study, and the 360 /17 Corridor Study
                            technical documents. This type of citizen support must continue throughout
                            the preliminary engineering and co- nstruction phases, as well as the initial
                            planning phase. It is not uncommon for bypasses and other projects of this
                            nature drag on for several decades, particularly when there is heavy citizen
                            opposition.

                            Wetlands issues, such as mitigation, may cause problems for the bypass
                            project. With the adoption of the new Chesapeake Bay Preservation Act, the
         Chapter4                                                                                 Page 12






                                                                                              Comprehensive Plan


                                 cost of constructing any roadway east of Interstate 95 has suddenly
                                 skyrocketed.


                                 GOALS AND OBJECTIVES
                                 Overall Goak 7helown's transportation network.shall be made adequate
                                 to serve residents. and through traffic.

                                 Highways

                                 Goal:      Relieve congestion, reduce noise, and increase safety on the Tap-
                                            pahannock street'system.

                                            Objectives@

                                            Reduce the duration of through traffic on Route 360/17 in Tap-
                                            pahannock by routing it around the commercial strip area instead
                                            of through the heart of the town.

                                            Reduce through heavy truck traffic in the central business district
                                            by the creation of alternative routing.

                                 Internal Circulation


                                 Goal:      Improve internal circulation for the local residents of Tappahan-
                                            nock.


                                            Objective:

                                            Decrease traffic on the 360/17 corridor.

                                            Improve access to major local destinations in different areas of the
                                            Town.


                                            Improve emergency service and hospital access for the Town,
                                            especially the industrial park area.

                                            The Town shall identify and make recommendations on necessary
                                            improvements and expansions to the road network.

                                            All new streets in proposed developments shall comply with and,
                                            as appropriate,, include sections of roads, streets, and intersection
              Chapter4                                                                                   Page 13






                                                                                Tappafiannock Virginia


                                     improvements shown in the Tappahannock Transportation Plan.
                                     element.


                                     Streets and sidewalks necessitated by new subdivisions shall be
                                     provided by the developer and shall meet the minimum standards
                                     of the State Department of Highways and Transportation.

                                     Ensure that the new truck bypass is designed and regulated by
                                     VDOT as a limited access facility and that all new development
                                     that fronts on the new bypass is required to construct appropriate
                                     frontage roads and/or provide an internal circulation system that
                                     minimizes new curb cuts.

                                     Improve access to and from the Dangerfield area.

                           Pedestrian


                           Goal:     Improve pedestrian   circulation and safety throughout the town.

                                     Objectives:

                                     Improve existing pedestrian sidewalks and footpaths.

                                     Increase pedestrian crossing opportunities across Church Lane
                                     (Route 360/17) at such locations as Queen St.

                                     Encourage pedestrian access ways where none currently exist.

                           Other Modes


                           Goal:     T'he Town will work with the County to locate and construct an
                                     airport facility which is convenient to Town services and serves
                                     industry located within the Town.

                           Goal:     The Town shall explore mass transportation facilities for its
                                     citizens.


                                     Objective:

                                     To address the lack of public transportation in the County, the
                                     Town will work with the County to explore rural transit options
                                     for transportation disadvantaged groups such as elderly, hand-
                                     icapped etc.
         Chapter4                                                                               Page 14






                                                                                           Comprehensive Plan


                                IMPLEMENTATION AECOMMENDATIONS
                                Implementation is broken into two subsections: the Policy Statement and the
                                Transportation Plan. The Policy Statement provides a framework to
                                strategically adapt the County's transportation system to address specific
                                development problems unique to a given locale. The Transportation Plan
                                identifies both needs and planned improvements in order to create a
                                transportation network that is consistent with the objectives and
                                implementation of the Land Use Plan.
                                POLICY STATEMENT.
                                The transportation plan cannot succeed without proper support and
                                leadership. from Town government. The following implementation
                                strategies establish the policy framework from which the Town will create
                                and maintain a functioning transportation system within the context of
                                planned growth in the Town.

                                       Preplatting Rights of Way- The Town should begin platting rights-
                                       of-ways for new roads and streets when the land use patterns allow.
                                       The annual Capital Improvements Budget should include funds for
                                       the preliminary design of proposed road improvements not included
                                       in the State's Six Year Improvement Program so that adequate rights-
                                       of-ways can be reserved. This will also pern-dt the coordinated com-
                                       pletion of the improvement if undertaken by different entities such
                                       as private developers. Expansion of the Town street system should
                                       pre-planned based on the Land Use Plan and new developments
                                       required to conform to this plan.

                                       Increased Coordination of the Land Use/Transportation Planning
                                       Process - More emphasis should be placed on coordination between
                                       the Town, VDOT, and MPPDC staffs on matters related to planning
                                       and programming improvements and transportation systems
                                       management. There are several steps that can be taken to improve
                                       the current transportation planning process: the State and Town
                                       should work very closely together to evaluate the transportation
                                       system implications of the Town's new comprehensive plan; elected
                                       officials should be major participants in this process; and coordinated
                                       State and Town transportation management policy should recognize
                                       the need to expand upon the current level of commuter ridesharing
                                       in order to reduce single-occupant vehicles. This is particularly im-
                                       portant at the intersection of arterial and major collector highways
                                       serving adjacent commutersheds and U.S. 17.
              Chap te r 4                                                                               PW15






                                                                                       Tappahannock Vtrguua


                                 0   Quality of Service/Adequate Public Facilities Standards - The
                                     Towns Level of Service (LOS) policies establish a recognizable basis
                                     for evaluating alternative plans and/or policies. LOS policies pro-
                                     vide the basis and criteria on which to evaluate alternatives and to
                                     determine capital requirements. With establishment of LOS policies,
                                     the Town makes a clear statement to developers and reflects the
                                     public's expectations about the quality of highway service it expects
                                     to achieve or maintain as growth occurs. With level of service estab-
                                     lished, the Town then has a policy based, quantified capacity measure
                                     from which to assess the traffic impacts of new developments.
                                     Whether or not a particular development will generate traffic that will
                                     exceed the capacity of the road can be determined from analysis, and
                                     the question of road impacts is then no4onger subjective.

                                 *   Traffic Impact Analysis - As part of the Zoning process and im-
                                     plementation of the LOS Policy, the Town should require a traffic
                                     impact analysis of all major new projects. This analysis will be used
                                     to determine if post-development traffic levels and patterns will be
                                     consistent with the Town"s Transportation Plan and highway policies
                                     and will minimize potential safety and congestion problems. At a
                                     minimum, the traffic analyses should include a description of past
                                     and present roadway conditions, existing roadway capacity, traffic
                                     accidents, existing and projected traffic volumes (ADT and peak a.m.
                                     and p.m. traffic), existing and projected levels of service, and existing
                                     and proposed sight lines based on facts and reasonable generation
                                     factors for the site and the immediately affected road networks and
                                     intersections. Where the Town has short-term planned improve-
                                     ments scheduled, it may permit such improvements in the traffic
                                     impact analysis. The Town should adopt precise standards for the
                                     preparation of these analyses.

                                 0   Access Management - An access management program should be
                                     created, initiated, and supported by appropriate ordinances to ensure
                                     that access is not unnecessarily provided along key road links or near
                                     major intersections, particularly along the designated Highway Cor-
                                     ridor District.
                                     The following'techniques should be considered in managing access
                                     to principal corridor roadways.

                                     - Limit the number o    f conflict points by installing physical barriers,
                                        modifying driveways, and installing signals at driveways, etc.


          Chapter4                                                                                     Page 1






                                                                                              Comprehensive Pfan


                                            Separate basic conflict areas by regulating the minimum spacing
                                            of driveways, by spacing driveways optimally in the permit
                                            authorization stage, by consolidating access for adjacent proper-
                                            ties, by buying abutting properties, by denying access to small
                                            frontage parcels, and by requiring access via collector streets, i.e.
                                            service roads, etc.

                                            NIinimize the need to decelerate in traffic through the geometric
                                            designing access points.

                                            Remove turning volumes or queues from sections of the through
                                            lanes by pavement marking alterations, geometric design
                                            modifications, right-of-way acquisition (including acquisition for
                                            .such techniques as constructing a service road or bypass road), or
                                            requiring adequate internal site circulation.

                                            Adopt guidelines for access type and minimum spacing of inter-
                                            sections.

                                        Zoning and Subdivision provisions should require that development
                                        project desi g*n minimize left turn movements or conflicts both on the
                                        site and in the street.'


                                        Driveways -should be designed to achieve dear sight lines based on
                                        design speeds as -adopted by VDOT. Site access and circulation
                                        should conform to the following standards:

                                            Where -reasonable access is available, the vehicular access to the
                                            site should be arranged to avoid traffic use of local residential
                                            streets situated in or bordered by residential districts.

                                            The road giving access to the site should have sufficient traffic
                                            carrying capacity and be suitably improved to accommodate the
                                            amount and type of traffic generated by the proposed develop-
                                            ment.


                                            Where -necessary to safeguard against hazards to traffic and
                                            pedestrians and/or to avoid traffic congestion, the Town should
                                            require that provisions are made for turning lanes, traffic direc-
                                            tional islands, frontage/ service roads, driveways, and traffic con-
                                            trols within the road.



              Chapter4                                                                                   PCqagge 1






                                                                                    Tappahannock Virginia


                                       Access driveways should be designed with sufficient capacity to
                                       avoid queuing of entering vehicles on any road or street.

                                *  Highway Corridor Overlay Zoning - Overlay zoning brings to an
                                   area additional requirements and standards above those of the un-
                                   .derlying zone. Special transportation related improvements in the
                                   .Highway Corridor District shown on the Land Use Concept Plan
                                   should include access controls and transportation impact analysis for
                                   high-volume uses.

                                0  Integration of Land Uses .- Integrating housing into overall design
                                   of large scale employment centers will help reduce the need to travel.
                                   Building homes within or immediately adjacent to the work place not
                                   only reduces vehicle miles of travel, but-also presents opportunities
                                   for workers to walk or bike to work. Flexibility in zoning may be
                                   provided to permit such large scale mixed-use development through
                                   floating zones. To minimize noontime travel, the types of uses that
                                   should be permitted in a mixed-use project should include retail and
                                   customer service activities; eateries, convenience retail, financial ser-
                                   vices, gas stations, photocopy centers and consumer merchandise.

                                *  Proffers - In terms of highways, the Town will indicate the need for
                                   dedication of rights-of-ways for new roads, for road extensions, and
                                   widening of existing highways through the Transportation Plan and
                                   Capital Improvements Program. At a minimum, proffers should
                                   address these transportation needs.

                                *  Fiscal Impact Analysis -The developmentof a per-unit fiscal impact
                                   of residential and con-anercial development would provide a rational
                                   basis on which to except proffers from developers. It is intended that
                                   the fiscal impacts be calculated for roads. Though impact fees are not
                                   expressly authorized for Tappahannock, the detailed impact analysis
                                   will establish the basis for such fees once the Town is enabled by the
                                   State legislature. State enabling legislation does allow for the volun-
                                   tary funding of off-site road improvements and reimbursements of
                                   advances by the governing body (Section 15.1-466 E of the Code of
                                   Virginia). The standards for determining the reimbursement in State
                                   law are basically the same as those that govern the development of
                                   impact fees. The fiscal impact analysis should be used as a basis for
                                   proffering under this statute. An Impact Fee system, requiring
                                   developers to pay for area-wide transportation improvements based
                                   on the estimated amount of traffic their project will generate, should
                                   also be evaluated.
         Chapter4.                                                                                  Page 18






                                                                                               Comprehensive Plan


                                         Right of Way Reservation and New Road Construction             The Town
                                         will preserve rights-of-way for road improvements consistent with
                                         the Transportation Plan Map and the State capital improvement
                                         programming.

                                         Transit Development - The Town needs to encourage the develop-
                                         ment of an adequate bus service for the transportation disad-
                                         vantaged.

                                         Transportation Management Strategies - The Town should en-
                                         courage innovative-mechanisms for addressing transportation issues,
                                         including private -cooperation, and financial support by developers
                                         and the business community. Some of the Town's larger employers,
                                         such as the Canon; Plant, who want to reduce the number of
                                         employees who drive to work during peak hourshave the option of
                                         implementing relatively low-cost transportation management
                                         strategies that would reduce the number of peak-period vehicle trips.
                                         The industrially designated areas along Airport Rd.    and the proposed
                                         bypass offer an opportunity for employers to initiate their own
                                         transportation programs that would help extend the capacity of U.S.
                                         17 and the intersecting streets.

                                         Transportation management strategies selected by employers
                                         generally provide employees with incentives either to use alternative
                                         commute modes. or to commute during non-peak hours. These in-
                                         clude:

                                            instituting flexible or staggered work hours;

                                         77 facilitating carpool and vanpool formation;

                                            setting aside preferred parking locations for carpools and van-
                                            pools;

                                            providing company-chartered *commuter bus service..

                                            charging. employees for parking;

                                            building on-site bicycle paths and safe storage areas; and

                                            providing transit  passes or other forms of transit subsidy.


               Chapter 4,                                                                                 Page 19






                                                                                   Tappahannock Virgmia


                            Not all businesses will immediately understand how they can benefit from
                            trip reduction. Educating the private sector is an important part of
                            developing and selling the concept of transportation systems management.
                            Planned Improvements
                            Map 4-2 summarizes the identified highway deficiencies in the Town in
                            terms of capacity as well as safety. The Transportation Plan Map (Map 4-3)
                            shows the improvements, both planned and needed, to address the
                            identified deficiencies and other transportation objectives. The following
                            are highlights of the plan map.

                            Planned Improvements-The Plan includes transportation improvements
                            already programmed by the State such as Marsh Street work.

                            Identified Needs-The Plan identifies transportation improvements that are
                            needed but not already included in the State's Six Year Improvement
                            Program. They include the following:

                                   U.S. 17 Bypass - To accommodate the anticipated increase in traffic
                                   volume on U.S. 17, a bypass facility is indicated. It is envisioned that
                                   this would be a controlled access highway primarily for through
                                   traffic. The proposed route is derived from the work done by the
                                   Fredericksburg Office. It uses elements of each of the Alternatives
                                   evaluated. The proposed route is an attempt to balance the Town's
                                   economic development and land use objectives with the pure
                                   transportation objectives of moving people and goods for the least
                                   cost.


                                   Airport Road - This road.has been identified as being at capacity
                                   and will therefore require an upgrade in capacity as an immediate
                                   need even if the bypass is built.

                               e   Hoskins Creek Bridge - U.S. 17 - Rehabilitation and reconstruction
                                   of this facility is warranted.

                               o   Church Lane and Queen Street - Being the critical intersection in
                                   Town, it will need continuous monitoring and transportation system
                                   management throughout the planning period.

                               0   Downing Bridge - Has been identified as needing rehabilitation
                                   reconstruction during  the 20 year planning horizon.


         Chapter 4                                                                                 Page 2






                                                                                        comprehensive!Pfan


                               In addition, the Transportation Plan includes intersection and road section
                               improvements that will improve local traffic circulation and extend the
                               Town's block system into outlying areas, e.g., as shown on White Oak Drive.






































              Chapter4                                                                             Page 21





                                          -- - ------ --- -



                                 Map 4-2                ------



                                                TRANSPORTATION SYSTEM
                                                DEFICIENCIES










































                                  July 1991
                                  M Pted@/Jdmffton Associates, Ltd.






                                                              Ma   p 4-3




                                                                                        TRANSPORTATION PLAN











                                                                                                                                                                                                                       Toa





                                                                                       17


                                                                                                          ,I-it III,









                                                                 July 1991
                                                                 M Redman/Johnoton Amociates, Ltd..






                                                                                             Comprehensive Plan

                                 Chapter 5'

                                 ENVIRONMENTAL PROTECTION

                                 BACKGROUND AND ANALYSIS

                                 Soils

                                 Tappahannock is situated mainly on soils of the Tetotum-Tomotley-State
                                 Association. This soil association occurs typically at lower elevations of
                                 Essex County, on the river terrace paralleling the Rappahannock River. Soil
                                 conditions are a major determinant of future development, as soil
                                 characteristics affect excavating, road building, the design and construction
                                 of buildings and foundations, and the location of sanitary facilities. A
                                 fluctuating high water table, characteristic of the Tetotum-Tomotley-State
                                 Association, is the major limiting factor of these soils for development. The
                                 availability of central sanitary facilities in the Town allows for development
                                 in all but the wettest (Tomotley) soils of this association; subsurface drainage
                                 and proper surface water drainage may eliminate problems associated with
                                 the Tomotley soils.

                                 The remaining area of the Town is on soils of the
                                 Rappahannock-Molena-Pamunkey Association. This soil association occurs
                                 at elevations below 15 feet, primarily along Hoskin's Creek and Tickners
                                 Creek. The soil association is predominantly Rappahannock soils, which are
                                 not suitable for any type of development because of flooding, high water
                                 table, and high organic matter and sulphur content. These Rappahannock
                                 soils are the tidal marsh areas which serve as a buffer zone along the
                                 waterfront, filtering runoff entering the waterways, minimizing shoreline
                                 erosion and serving as wetland wildlife habitat.

                                 More detailed maps, at a scale of 1:20,000, showing individual soil
                                 boundaries within the association, are available at the Soil Conservation
                                 Service office.

                                 Shoreline

                                 Shorelands are a limited resource which is, for the most part, nonrenewable.
                                 Shoreline. erosion -control has been the responsibility of private property
                                 owners and assistance to them in coordinating efforts is a recently developed
              Chapter5                                                                                    Page I






                                                                                     Tappahannock Virginia


                             service. It is desirable to preserve beaches for their beauty and recreational
                             function and for protection of -the fastland.

                             The entire Rappahannock shoreline in Tappahannock has been artificially
                             stabilized, contributing to further erosion downstream. This is a temporary,
                             and often ineffective means of beach protection. In order to reestablish or
                             maintain existing beaches, the only course of action currently available
                             would be a program of beach nourishment and structures specifically
                             designed to trap moving sand at particular sites. Detailed study of the area
                             involving a cost benefit evaluation would be necessary prior to initiation of
                             any coordinated effort or unified solution.

                             Water

                             Water activities which serve as major attractions to tourists as well as present
                             and potential residents of the area, are dependent upon high standards of
                             water quality. Runoff from ground areas, sewage treatment discharge,
                             leaching of septic tank effluent and construction activity along the shoreline
                             all affect water quality. Tappahannock residents take pride in the beautiful
                             Rappahannock and support its preservation. By policy of the Virginia
                             Department of Health, Bureau of Shellfish Sanitation, an area of one-half
                             mile radius from the mouth of Hoskin's Creek, in the Rappahannock, is
                             restricted from commercial fishing of oysters and clams due to the presence
                             of the sewage treatment plant near Hoskin's Creek. This does not affect the
                             enjoyment of water sports and activities, as the Rappahannock has been
                             noted as one of the most beautiful rivers in the East.

                             Adequate groundwater supply for present and future residential,
                             commercial, and industrial uses exists in the upper artesian and principal
                             artesian aquifer systems. The upper artesian aquifer system occurs 150 to
                             200 feet below surface, consistently, and is a good source of domestic water
                             supply. Currently, water of good quality is being tapped from this system
                             for individual use around Tappahannock. Tappahannocks central water
                             system is drawn from the principal aquifer occurring at depths greater than
                             200 feet. Though it is costly to bring to the surface, this aquifer has potential
                             for unlimited use of good water quality.
                             Development Constraints Analysis
                             To develop an. understanding of which lands in the Town will have severe
                             or potential development constraints the resources of the MPPDC were
                             drawn upon to develop an Environment Constraints Map (Map 5-1). This
                             map shows the resources associated with the Resource Protection Areas
          Chapter5           (RPAs), hydric soils an*d steep slopes.                              ME Page 2






                                                                                           Comprehensive Plan


                                 A hydric soil is one that in its undrained condition is saturated, flooded, or
                                 ponded long enough during the growing season to develop anaerobic
                                 conditions that favor the growth and regeneration of hydrophytic vegetation
                                 (plant life growing in water or in a substrate that is at least periodically
                                 deficient in oxygen as a result of excess water content). Because this
                                 identification includes soils'that are either drained or undrained, not all
                                 hydric soils are wetlands and thus possess a severe constraint to
                                 development. Determination of the presence of wetlands in the Town will
                                 ultimately require field verification.

                                 The steep slopes identified- in the Town occur along the banks of Hoskins
                                 Creek and are not a significant factor in the development of the Town. The
                                 Resource Protection Areas (RPAs), defined later, do represent areas of severe
                                 constraint to development.


























               Chapter5                                                                                 Page 3
















                                                                                                                                                                                                                  Map 5-1


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                                                                                            ;Comprehensive Pfan


                                 GOALS AND OBJECTIVES

                                 Goal:      Provide protecti on for the environment.

                                            Objectives:

                                            Maintain and protect the extensive wetlands and steep slopes in
                                            and around Tappahannock for open space.

                                 Goal:      Ensure that shoreline structures are maintained and that erosion
                                            isminimized.

                                            Objectives:

                                            Update shoreline situation report and correct any failing shoreline
                                            stabilization structures.


                                            Protect the non-hardened shoreline through available laws and
                                            regulations.

                                            If shoreline stabilization is necessary; the use of rip rap should be
                                            used.


                                 Goal:       Manage the negative impact on water quality from all point
                                            sources of pollution.

                                            Objectives:

                                            Enforce existing point source pollution laws and regulations.

                                            Expansion of the town's sewage treatment plant should be an-
                                            ticipated relative to future demand.

                                            Identify opportunities for developers to construct stormwater
                                            management facilities to eliminate the' impact of some existing as
                                            well as proposed discharge of untreated effluent into the Rap-
                                            pahannock River.






              Ckapter5                                                                                    Page 5






                                                                                                                  r

                                                                                 Tappahannock Virginia


                           Goal:      Reduce or eliminate"the negative impact of nonpoint source pol-
                                      lution on water quality.

                                      Objectives:

                                      Minimize impervious groundcover for all development projects.

                                      Require implementation of urban "Best Management Practices"
                                      throughout the town, as found in the Erosion and Sediment
                                      Control Handbook of the State Division of Soil and Water Conser-
                                      vation.


                                      Enforce existing laws and regulations to reduce nonpoint sources
                                      of water pollution.

                           Goal:      To protect the water quality, floodprevention, and habitat values
                                      of the town's tributary streams.

                                      Objectives:

                                      Identify projects which could negatively impact tributary streams
                                      and enforce available laws and regulations to minimize this im-
                                      pact.

                                      Avoid channelization of any tributary stream within the town"s
                                      jurisdiction.

                                      Continue to protect Tappahannock's floodplain from develop-
                                      ment and removal of vegetative cover.

                           Goal:      Limit land development and land disturbing activities on highly
                                      erodible, highly permeable, and hydric soils by enforcing avail-
                                      able laws and regulations.

                                      Objectives:

                                      In order to avoid the negative impact of individual septic systems
                                      on water quality, require any new development within the town
                                      to be connected with the sewage treatment plant.

                                      Provide strict enforcement of the Erosion and Sediment Control
                                      Law for all land disturbing activities.
         Chapter5                                                                                Page






                                                                                               comprehensive-Plan


                                 Goal:      Ensure there is nonet loss of Tappahannock's remaining wetlands
                                            due to their ecological importance.

                                            Objectives:

                                            Identify all projects potentially impacting      wetlands and their
                                            functions and eliminate the possibility of or minimize by mitiga-
                                            tion -their destruction and damage through available law and
                                            regulations.

                                 Goal:      The Town's natural resources shall be recognized as assets and
                                            therefore receive adequate protection.

                                            Objectives:

                                            Water sources, marshes and swamps shall be recognized as assets
                                            and protected fro m' pollution and where necessary restored to
                                            acceptable levels of'quality by carefully regulating future
                                            shoreline activities.


                                            Marshes and swamps which contribute to storage, erosion control
                                            or life support of wildlife shall not be drained, filled, or con-
                                            structed upon.

                                            Destruction of trees during construction and development           shall
                                            be kept to a minimum and the planting of new trees and vegeta-
                                            tion shall be fostered.


                                 IMPLEMENTATION
                                 The Chesapeake Bay P'teservation Act
                                 The primary tool for implementing the resource protection objectives of the
                                 Town is the Chesapeake Bay Preservation initiative. The Chesapeake Bay
                                 Preservation program launched by the state in 1988 establishes a baseline for
                                 protection of Town- resources who disturbance or overutilization can and
                                 often have adversely impacted water, quality in those Bay system tributaries
                                 that border and penetrate the Town.

                                 In response to, recent interstate regional agreements between Virginia,
                                 Maryland, Washington D.C        and Pennsylvania to clean-up the Chesapeake
                                 Bay, the State of Virginia has adopted the Chesapeake Bay Preservation Act
              Chapter5-                                                                                     Page 7






                                                                                   Tappahannock Virginia


                            which mandates all Tidewater-Virginia localities to establish program, plans,
                            and ordinances to protect and improve Bay water quality. These "local
                            programs" must be in conformance with the Chesapeake Bay Preservation
                            Area Designation and Management Regulations adopted by the Virginia
                            Legislature in September, 1989.
                            Purpose of the Act
                            The purpose of the regulations is to protect and improve the water quality
                            of the Chesapeake Bay, its tributaries, and other state waters by minimizing
                            the effects of human activity upon these waters and implementing the
                            Chesapeake Bay Preservation Act, which provides for the definition and
                            protection of certain lands called Chesapeake Bay Preservation Areas, which
                            if improperly used or developed may result in substantial damage to water
                            quality of the Chesapeake Bayr and its tributaries.

                            The regulations establish the criteria that Tappahannock has used to
                            determine the extent of the Chesapeake Bay Preservation Areas within its
                            jurisdiction. The regulations establish criteria for use by the Town in
                            granting, denying, or modifying requests to rezone, subdivide, or to use and
                            develop land in Chesapeake Bay Preservation Areas. Regulations identity
                            the requirements for changes which local government like Tappahannock
                            must incorporate into their comprehensive plans, zoning ordinances, and
                            subdivision regulations to protect the quality of state waters pursuant to the
                            Chesapeake Bay Preservation Act.
                            The purpose of the'Tappahannock Chesapeake Bay Preservation            Program
                            Comprehensive Plan Element is to collect and analyze data, explore issues
                            and alternatives, and develop policies and implementation strategies,
                            providing a basis to take local action to protect and improve the water quality
                            of the Chesapeake Bay, its tributaries, and other state waters.
                            Data Collection and Analysis
                            The Chesapeake Bay Preservation Program for Tappahannock relies on the
                            collection and analysis of water and land use data and characteristics. The
                            information sources utilized for the adoption of the program are those which
                            are the best in accuracy and currently available. Recognizing that in some
                            areas data may be incomplete or on a reduced level of accuracy, the
                            County/Town, in conjunction with the Chesapeake Bay Local Assistance
                            Department (CBLAD) and the Middle Peninsula Planning District
                            Commission (MPPDC), will strive to produce future inventories and studies
                            to best reflect the current and changing characteristics of the lands and
                            waters.
         Chapter 5                                                                                  Page 8






                                                                                          Comprehensive Pfan


                                The goal of the inventory of natural and manmade features is to identify the
                                areas within the Town which require and should be considered for
                                preservation under the Chesapeake Bay Preservation Act (CBPA)
                                regulations. These areas include:- tidal wetlands, nontidal wetlands
                                connected by surface flow and contiguous to tidal wetlands or tributary
                                streams, tidal shores, floodplain, highly erodible soils, highly permeable
                                soils, other nontidal wetlands, and other lands whose characteristics may
                                have a significant impact on water quality protection.

                                Tappahannock contracted with the MPPDC to produce an inventory of the
                                land categories. identified above. The MPPDC utilized the. following
                                information sources in conjunction with an automated geographic
                                information. system to analyze, compile, and map the inventoried features:

                                       United States Geological Survey - Digital Line Graph: includes tidal
                                       wetlands, tributary streams, tidal shores, roadways, and county
                                       boundaries.


                                       U.S. Fish and Wildlife Service - National Wetlands Inventory: in-
                                       cludes tidal and nontidal wetland and classification of each.

                                       Virginia'Geographic Information System - Digital Information of the
                                       U. S. Department of Agriculture Soil Conservation Service Soil Survey
                                       of Essex County, Virginia: includes soil characteristics necessary to
                                       determine permeability and erodibility of soils.

                                       Federal Emergency Management Agency -- Flood Insurance Rate
                                       Map: includes 100-year event floodplain for Essex.

                                The MPPDC has published the Comprehensive Water Quality Management
                                Plan for the Middle Peninsula whicl@provides water quality and issue-s data,
                                analysis, and policy review. Specifically, the two elements of the
                                Management Plan provide information relevant -to Middle Peninsula
                                localities' on-site wastewater treatment, potable water supply, boating
                                facilities, living resources, waterfront access, existing land use and water
                                quality (including pollution.s.purces), and a general economic analysis of the
                                region.

                                Other documents referenced directly or through familiarity include the
                                CBLAD's Local A5sistance Manual: the Virzinia Institute of Marine Science's
                                (VIMS) Shoreline Situation Rep= for Essex County;and other federal, state,
                                and local studies.


              Chapter5                                                                                  Page 9






                                                                                                                       r
                                                                                    Tappahannock Virginia


                            Resource Protection Areas

                            Resource Protection Areas (RPAs) perform natural pollution control
                            functions. Biological activities and physical characteristics in these areas are
                            especially effective in controlling runoff, trapping sediment, and recycling
                            nutrients and pollutants. Components of RPAs are certain wetlands, tidal
                            shorelines, and buffer areas. .

                            Wetlands benefit water quality by acting as a filter in trapping and holding
                            nutrients, microbes, and other pollutants which come from upland runoff.
                            Wetlands also act as a sponge by slowing down fast moving erosion water,
                            absorbing the energy of it for flood control and storm damage protection,
                            and acting as a buffer against coastal erosion from wave action.

                            The tidal shoreline interface where water meets the land is the scene of
                            dramatic changes caused by the natural forces of wind and water. Tidal
                            shore stability is generally governed by three main determinants; the
                            amount of beach material, the intensity of natural and human forces, and the
                            stability of sea.level. The occurrence of tidal shore erosions is considered a
                            natural process and becomes a serious problem only when human structures
                            and activities unnaturally intrude into this process.

                            Buffer areas are zones of unde   veloped vegetated land that are managed to
                            reduce the impact on water quality of land disturbing operations in adjacent
                            areas. Vegetated buffer areas provide a wide variety of environmental
                            benefits' 'including sediment control, nutrient assimilation, stream back
                            stabilization, in-stream temperature maintenance, flood control and
                            protection, groundwater recharge area protection, and runoff volume
                            reduction.


                            The components of the RPA are prescribed by Virginia statute, with the local
                            option to include other lands within the RPA designation as necessary to
                            provide a high level of protection to the quality of state waters.

                            Tappahannock has designated a RPA which consists of all tidal wetlands;
                            nontidal wetlands, including impounded lakes and ponds connected by
                            surface flow and contiguous to tidal wetlands or tributary streams; tidal
                            shores; and an additional buffer area of 100 feet in width, except where
                            reductions are allowed, so located within its jurisdictional boundaries. The
                            extent of the Town RPA is shown on Map 5-1. The RPA serves the purpose
                            of protecting environmentally sensitive land and water areas from the
                            adverse effects of human activities to thus improve and protect the quality
                            of water both locally and regionally.
         Chapter5                                                                                   Page 10






                                                                                          Comprehensive Plan


                               The intent of RPA designation is to limit land disturbance and development
                               to only those activities classified as "water dependent" or otherwise
                               exempted in the Town Chesapeake Bay Preservation Area Overlay District.
                               The integrity of the RPA and associated mechanisms with the CBPA
                               Program will serve the goal of preserving those features most associated
                               with the high standard in quality of life in Tappahannock,'namely clean
                               water and attractive landscapes for the beneficial use by both society and the
                               natural ecosystem.

                               The implementation of the RPA goals will be through an overlay district
                               contained in the Tappahannock Zoning Ordinance. The zoning ordinance
                               will include a general designation RPA map in addition to the performance
                               criteria to be included on specific site plans. The subdivision, erosion and
                               sedimentation control, and floodplain ordinances will also include
                               provisions. to preserving water quality as related to CBPA. To truly provide
                               for successful implementation, it is necessary to improve the capacity of both
                               the county staff and general- public through supporting educational
                               opportunities related to    Chesapeake Bay Program enforcement and
                               management.
                               Resource Management Areas
                               The Chesapeake Bay Preservation Act and Criteria Regulations establish the
                               Resource Management Area (RMA) as the landward component of
                               Chesapeake Bay Preservation Areas. Lands to be considered for designation
                               as RMA, include the following: nontidal wetlands, floodplain, highly
                               erodible soils, highly permeable soils, and other lands at. local discretion.

                               RMAs are important in       terms of   water quality primarily because if
                               improperly used or developed, they could release significant amounts of
                               non-point source pollutants into the surface and ground water systems. The
                               regulations. do not limit the types of land useand development that may
                               occur within the RMA. Instead, a variety of performance criteria will be
                               applied to any proposed use or development within RMAs to ensure that
                               those land disturbances that do occur will minimize the adverse impact on
                               water quality. The performance criteria apply to stormwater control, on-site
                               sewage disposal, and land disturbance/ stabilization.

                               The designation of RMA      's in Tappahannock has been based on the
                               consideration of the sensitive land types listed above and described blow.

                               Floodplain are areas which are subject to predictably recurring overflows
                               from nearby bodies of water, including streams, rivers, bays, and oceans. A
                               floodplain acts as a natural reservoir for such an overflow by storin xcess
             Ckapter5                                                                              Rage 11






                                                                                   Tappahannock Virginia


                            wat@r and thus reducing the volume and speed of the flood water's effects
                            downstream. The removal of natural vegetation through land development
                            within a floodplain diminishes the natural flood control capacity of the area.
                            The result can be an increase in non-point source pollution of the water body
                            through severe soil erosion.

                            Highly erodible soils, if improperly disturbed or exposed, can contribute to
                            water quality degradation through sedimentation and siltation of water
                            bodies. In addition, nutrients and toxicant may be attached to soil particles
                            which can be transported and released to the aquatic environment through
                            erosion.


                            Highly permeable soils transmit water at such a rate that there is a potential
                            for surface pollutants such as nutrient, sand, other chemicals, and sewage
                            wastes to infiltrate, undergraded, into the nearby surface water and
                            groundwater systems. This possibility of the highly permeable soil
                            becoming a "highway" for pollutants indicates the need for management of
                            development in these areas.

                            Local designation of other lands to be included in the RMA classification is
                            based on several factors, including the distribution of the other land types
                            listed above, the hydrology ofthe locality, and the general characteristics of
                            the landform in the locality.@ The regulations of the CBPA also require the
                            RMA to be contiguous to the RPA.

                            Tappahannock has chosen to designate the entire Town as a Resource
                            Management Area (RMA). The extent and distribution of the land features
                            considered as RMA components are such that few areas of the Town are
                            lacking one or more of these features. It is also recognized that all lands
                            within the Town are contained-within the Chesapeake Bay watershed and
                            activities upon these lands can act to impact the water quality of the Bay. In
                            order to maintain the goal of high water quality within the Town, County
                            and region, the policy of the Town is to include all lands as RMAs when
                            those lands are not designated as RPAs.

                            The implementation of the RMA goals will be accomplished by specific
                            provision in the Town zoning, subdivision,'erosion and sedimentation
                            control, and floodplain ordinances. Implementation will rely on an effort to
                            improve the capacity of staff and general public through supporting
                            educational opportunities related to managing and enforcing the
                            Chesapeake Bay Program.


          Chapter 5,                                                                               Page 12






                                                                                                Comprehensive Pfan


                                  Development Suitability
                                  The lands and waters within Tappahannock are varied in characteristics and
                                  natur al function. Features such as topography, hydrology, soil type,
                                  vegetation, and geographic location all serve to influence land development.
                                  With the advances in construction methods and materials and sewage
                                  disposal technology together with the increase in population and property
                                  values, land which once may have been considered undevelopable is being
                                  engaged for development pursuits.

                                  The Chesapeake Bay Preservation Act has highlighted the concern of land
                                  disturbing activities which cause water quality degradation through
                                  non-point source pollution. In addition, the use of methods of limiting or
                                  preventing non-point source pollution, such as Best Management Practices
                                  (BMP's), indicate that there are reasonable means to manage the potential
                                  impacts ofmost development. To further explore the compatibility of
                                  development to the land site, an additional step of analyzing the suitability
                                  and capacity of the site is needed.

                                  Perhaps the most obvious factor to consider when analyzing a site for
                                  development suitability is the characteristics of the soils present. Soils play
                                  the,important role of determining weight loading capacities, on-site sewage
                                  treatment assimilation, erosion potential, and vegetation growth.

                                  An additional factor       of importance is the location of "poorly" or
                                  'Imarginally" developable soils in relationship to streams, water bodies, and
                                  wetlands. Development on such soils, in close proximity to             designated
                                  RPAs, can produce negative- impacts on water quality.

                                  A development suitability analysis can provide the necessary detailed
                                  information on both the most and least desirable portion of a parcel for
                                  development. With, this information in handi the Town and the land
                                  developer can. arrive at the development design solutions which presents
                                  the. highest compatibility of the use and the environment.

                                  Consideration has been given to the extent of analysis needed to determine
                                  the suitability of a site for development. A detailed, site-specific soils survey
                                  would provide the information necessary to match the suitability with the
                                  uses@ proposed for the site. The topography and hydrology of the site should
                                  be of a detail such that overland sheet flows of storiliwater can be predicted.
                                  A.knowledge of the vegetation and wildlife habitat is important for a site as
                                  well as for the surrounding areas. The comprehensive analysis of all these

               Chapter5                                                                                     !Page 13






                                                                                  Tappahannock Virginia


                            features can lead to development sensitive to the natural resources of
                            Tappahannock.

                            To preserve the development rights of land owners, options to mitigate
                            impacts and utilize BMPs should be allowed. It is envisioned that the level
                            of detail of the suitability analysis will provide the owner with'the
                            information to balance the management options presented by the site.

                            Tappahannock has     determined a comprehensive development suitability
                            analysis to be necessary to the optimum function, design, and environmental
                            preservation of land development sites. The comprehensive development
                            suitability analysis should include a detailed inventory of soils with the
                            capacities for on-site sewage treatment, weight loading, erosion potential,
                            and vegetation growth documented. Discussion of wildlife habitat and
                            other significant environment should be included. NEtigating factors, such
                            as the use of BMP's should be included. This analysis should be conducted
                            for all proposed development exceeding 10,000 square feet in land
                            disturbance within Chesapeake Bay Preservation Areas.

                            The requirement to conduct a comprehensive development suitability
                            analysis will be implemented through the Town's plan of development
                            procedures, including zoning and subdivision ordinances.
                            Waterfront Access and Boating Facilities
                            The Rappahannock River and Hoskins Creek are resources belonging to the
                            citizens of Virginia. The use of these waters for recreation and commerce
                            are traditional and acceptable as the economic base for the area. With the
                            subdivision of large tracts of waterfront property into numerous smaller lots,
                            each under private ownership, comes the competing interests of those
                            owners seeking privacy and the upland residents and tourists seeking use
                            of the waters. The increasing use of our waterways leads to concern of
                            environmental damage due to improper or reckless activities causing
                            pollution or habitat destruction. This concern leads to the need for greater
                            management capability over waterfront access and uses.

                            There are two broad uses involved in the waterfront issue. First, the use of
                            the waterfront for boating access, whether it be at a marina, a boat dock,
                            ramp and pier, or car-top boat landing. Second is the utilization of the
                            shoreline and near-shore areas for recreational activities such as swimmin&
                            bank fishing, nature studyin& and picnicking. Either public or private
                            facilities can provide these activities. Both boating and shore recreation are
                            allowed exemption as "'water dependent facilities" under the requirements
         Chapter5                                                                                 Page 14






                                                                                             Comprehensive Plan


                                 of the CBPA, provided that non-water dependent components are located
                                 outside of the  RPA.


                                 Boating access to the tidal waters of Tappahannock is provided at boat ramps
                                 at Dock'and Prince Street and at,the private marina in Town. The
                                 management of waterfront access options and opportunities concerns the
                                 competing interests of costs of public facilities and private facilities and the
                                 ,Protection of the environment. Opportunities for developing a waterfront
                                 park are discussed in Chapter 9, Parks and Recreation.

                                 Tappahannock has determined that boating facilities should be located only
                                 where: there is sufficient water depth, without frequent dredging; there are
                                 not public or private shellfishing grounds which would be impacted; there
                                 is adequate tidal flushing; there are suitable soils for sanitary facilities or
                                 connection to a municipal sewer system; there is limited harm to fish and
                                 wildlife habitat, and there are compatible existing land and water uses
                                 nearby.

                                 Existing marinas and boat.repair facilities are encouraged to adopt
                                 operational procedures consistent with BN4Ps. When            existing marinas
                                 remodel or expand.their facilities, structural BMPs should also be
                                 constructed. For proposed boating facilities, BNTs should be required as a
                                 condition of development approval.

                                 The Town, with the County, should study the needs for waterfront public
                                 access in conjunction with state, federal, regional, and private agencies. The
                                 Planning District Commission should be encouraged to assist local efforts in
                                 planning water access, open space, and park facilities which will benefit
                                 education and habitat vital to water quality. In addition, when regional
                                 projects such as a regional airport, park, or solid waste landfill are being
                                 planned, there should be an open space/ recreation/ natural habitat
                                 component included in the development.
                                 Existing Pollution Sources

                                 Pollution discharges can be defined as either point or non-point in their
                                 origin. Point source inputs represent discharges from discrete and
                                 identifiable points, i.e., discharge pipes, and play a major role in determining
                                 the quality of surface waters. Such sources include both -municipal and
                                 industrial dischargers which may contain an array of toxic and nutrient
                                 material. Often these discharges tend to vary in chemical and physical
                                 composition as well as fluctuate in their concentrations. The resulting
                                 impact to surface water could easily set up a menu of scenarios depending
                                 on receiving water conditions.
               Chapter5                                                                                   Page 15






                                                                                   Tappahannock Virginia


                            The other major category of, physical, chemical, and biological factors
                            impacting surface water quality is known as non-point sources. This
                            category is by far the most significant in terms of its impact to surface water
                            quality in the NUddle Peninsula Planning District. Basically, non-point
                            sources encompass all those inputs to surface water which cannot be
                            identified as having originated from a discrete discharge point. Nationwide,
                            non-point source pollutants are responsible for 73% of the oxygen demand,
                            84% of the nutrients, 98% of the bacteria counts, and 99% of suspended solids
                            in surface waters.

                            The Virginia Water Control Board (VWCB) regulates existing point source
                            pollution dischargers. Essex has little role in the enforcement of existing
                            permit conditions however, compliance is tied to land use ordinance
                            approvals.

                            The Town Chesapeake Bay Preservation Program, Erosion and
                            Sedimentation Control Ordinance, and participation in the activities of the
                            local Soil and Water Conservation District are means of local management
                            of non-point source pollution. A periodic review of the effectiveness of these
                            local ordinances can determine where changes or amendments may be
                            needed to achieve the goals of reducing non-point source pollution. To that
                            end, the Town should review all land use ordinances at least every five years
                            to determine effective management of point and non-point source pollution
                            sources. The Town will also seek assistance from the Chesapeake Bay Local
                            Assistance Board (CBLAD), VWCB, Division of Soil and Water
                            Conservation, MEPPDC, and other state and federal agencies to produce an
                            inventory of land uses at such a degree of accuracy so as to provide
                            management and modelling parameters necessary for effective control of
                            pollution sources in the future.
                            Redevelopment of Intensely Developed Areas
                            The designation of Intensely Developed Areas (IDAs) is intended to address
                            the unique land use patterns and water quality impacts of heavily urbanized
                            areas. Such areas are characterized by industrial, commercial, residential,
                            and institutional uses which are spatially concentrated, heavily trafficked,
                            and largely devoid of natural vegetation. Development within these areas
                            is usually confined to either redevelopment of previously developed sites or
                            construction on small, vacant, or "infill" parcels. The concentration of
                            intensive uses and prevalence of impervious surfaces in these areas may
                            contribute a variety of non-point source pollutants, such as hydrocarbons
                            and heavy metals, to surface waters.


         Chapter 5                                                                                Page 16






                                                                                          comprehensive P(an


                               The goal of designating IDAs is to focus development in areas where it is
                               already concentrated and supported by existing infrastructure, while
                               improving water quality. In recognition of the fact that the IDA is largely
                               devoid of natural vegetation, activities within the IDA may be exempt from
                               having to establish or maintain the full buffer areas within RPAs.

                               The CBPA regulations provide that IDAs may be designated in "areas of
                               existing% development and infill sites where little of the natural environment
                               remains..."' and ."...provided at least one of the following conditions exists:

                                      Development has severely altered the natural state of the area such
                                      that it has more than 50% impervious surface;

                                      Public sewer and water is constructed and currently serves the area.
                                      This condition does not include areas planned for public sewer and
                                      water;

                                      Housing density'is e  qual to or greater than four dwelling units per
                                      acre."


                               The designation of IDAs is intended to allow reasonable development where
                               development, already exists or surrounds a site, while at the same time
                               providing at.least a 10% reduction in stormwater runoff transported
                               pollutants. This rieduction can be achieved through a variety of means,
                               including: creation of vegetated buffer areas to the greatest extent possible,
                               reduction of impervious areas, and use of water quality BUTs.

                               The identification of 'areas which qualify for IDA designation in
                               Tappahannock has revealed insignificant land area to justify the delineation
                               as part of the local Chesapeake Bay Preservation Program. Individual
                               hardship cases can be' handled through the present exception and variance
                               procedures outlined in the Town Zoning Ordinance.

                               Through not identifying areas for IDA designation at the present time, the
                               Town reserves the option to make such designation in the future should the
                               -need arise and conditions of an area justify such designation consistent with
                               the intent of the Chesapeake Bay Preservation Act. Should such
                               designations. be made in the future, the implementation of the IDA overlay
                               district will be accomplished through the application of the zoning,
                               subdivision, and erosion and sedimentation control ordinances and the
                               development review and approval procedures of the Town.


             Chapter5                                                                                 Page 17






                                                                                  'Tappahannock Virginia


                            Local Program Development
                            The performance criteria for land use and development established in the
                            Town Chesapeake Bay Preservation areas overlay zone district currently
                            being reviewed by the State prior to Town adoption are hereby included as
                            part of Tappahannock's Comprehensive Plan. In addition to designation of
                            Town Chesapeake Bay Preservation Areas, the Town will incorporate these
                            criteria into its subdivision regulations, and erosion and sediment control
                            ordinance.'The Town will also establish a development review and approval
                            process for building permit issuance for development within designated
                            Chesapeake Bay Preservation Areas. The Town will also establish
                            administrative and enforcement procedures as part of its overall Local
                            Pro gram for Chesapeake Bay Preservation.


                            IMPLEMENTATION RECOMMENDATIONS

                            The following is a list of specific measures the Town should undertake to
                            achieve its environmental quality goals and objectives set forth in this
                            Chapter.

                               ï¿½  The Town should adopt a Local Program for Chesapeake Bay Preser-
                                  vation which contains the program elements and performance criteria
                                  for land use and development as outline in this chapter.

                               ï¿½  The Town should limit future development in this Plan's Resource
                                  Protection District to low intensity residential uses, passive park and
                                  recreation uses, and water dependent uses.

                               ï¿½  The Town should continue to require evidence of all federal, state and
                                  local environmental and health permits as a condition of develop-
                                  ment approval.

                               ï¿½  The Town should prohibit development within floodways and
                                  floodplain which limits natural water storage capacity. Use of flood-
                                  way fringe areas for recreational, other non-structural uses and open
                                  space should be encouraged.

                               ï¿½  Performance standards and controls are recommended to permit
                                  development design flexibility and to adapt to variable site charac-
                                  teristics. New environmentally sensitive development regulations
                                  are needed which recognize and protect natural site functions. En-
                                  vironmentally sensitive features such as wetlands and critical plan
         Chapter5                                                                             - Paffe 1






                                                                                         Comprehensive Plan


                                      and wildlife habitats should be explicitly protected and buffered from
                                      development activities.

                                      Open space requirement should be put into effect. The extent to
                                      which a site can be covered by impervious surfaces should be limited.
                                      Requirement should specify minimum areas that must remain undis-
                                      turbed and available for stormwater infiltration and site vegetation.

                                      No net change in runoff should be allow      'ed at development sites.
                                      Drainage techniques normally channel stormwater runoff away from
                                      the structure and off the site. The volume and velocity of stormwater
                                      runoff leaving a developed site should be no- greater than pre-
                                      development levels, primarily for adjacent property protection and
                                      non-source point pollution control.

                                      Natural vegetation and trees should be preserved during develop-
                                      ment. Site clear-cutting for development purposes should be express-
                                      ly prohibited. Mature trees should be protected. If tree removal is
                                      unavoidable, replacement should be established. Where vegetation
                                      is removed, temporary grass seeding should be required for erosion
                                      control if the site remains untreated for more than two months.

                                      There should be zoning incentives to promote cluster development.
                                      Cluster development makes wise use of land resources and is en-
                                      vironmentally sensitive. The Town development ordinances should
                                      be updated to provide greater incentives for clustering.

                                   0  Slope regulations should be enacted. A steeply sloped site cannot
                                      support the same development density as a flat site without severe
                                      disturbance. Permitted density should be used only on portion of a
                                      site not characterized by steep slopes. Grading activities should be
                                      limited in proportion to slope vulnerability.

                                   0  The Town should coordinate with state and federal agencies and
                                      non-profit conservancy organizations to protect environmentally
                                      sensitive lands through acquisition and/or protective easement
                                      programs.

                               This chapter discusses the characteristics of environmentally sensitive Town
                               lands and waters. It describes some of the important reasons for protecting
                               the various n*atural features which comprise and contribute to the quality of
                               the Towns environmenC Recommended actions are stated which should
                               achieve Town goals and objectives. Particular focus is accorded to
             Chapter 5.                                                                              Page 19






                                                                                Tappahannock Virginia


                           Comprehensive Plan requirements of the recently enacted Chesapeake Bay
                           Preservation Act and Regulations.

                           The environmental attributes of Tappahannock strongly influence quality of
                           life. The condition of the environment must be evaluated in terms of the
                           potential impact upon the daily activities and the standard of living of the
                           community. Environmental resources should be protected on behalf of the
                           economic well-being of the general public with regard to both individual
                           property interests and collective taxpayer investments. The quality of
                           Tappahannock's environment is one of the factors which makes the Town
                           such a desirable place to live and work. The intent of Town environmental
                           protection measures is not to stop development, but rather to ensure the
                           compatibility of development with the continued productivity and value of
                           environmentally sensitive land and water areas.



























         Chapter5                                                                              Page 20






                                                                                       Comprehensive P(an
                               Chapter 6

                               HOUSING

                                  n this chapter housing characteristics and demographic trends will be
                                  examined to provide the background for evaluating alternative im-
                                  plementation strategies necessary to achieve Towns housing objectives.
                               BACKGROUND AND: ANALYSIS
                               This section identifies the characteristics and trends of the Tappahannock
                               housing market.

                               The housing in Tappahannock consists mostly of single family dwellings.
                               The 1985 Comprehensive Plan for Tappahannock broke down housing types
                               into single family, multi-family and mobile homes. (See Table 6-1) Based
                               on 1980 census data, approximately 69.8% of the total year round housing
                               stock cons'isted of single family-homes. Multi-family homes accounted for
                               24% of the total year housing stock in Tappahannock. Finally, mobile homes
                               comprised 6.2% of the total year round housing stock. The number of mobile
                               home parks in the Town has not changed since 1980. The present trailer park
                               which is located across form the airport, consists of 54 units and the park
                               covers an area of 23.4 acres.


                                                              Table 64

                                               -TABLE 1 - HOUSING TYPES - 1980


                                                                    No. of Units         Percent of JQtal

                               Single Family Dwelling                    61                    70%
                               Duplex                                    41
                               Apartment                                169
                               Total Multi-Family                       210                    24%
                               Dwellings
                               Mobile Homes                              54                      6%





             Chapter 6                                                                                 e 1






                                                                                   Tappahannock Viginia


                             1985 plan reported that 61.8% of the homes were owner occupied and 28%
                             were renter occupied. Compared with 1970 census figures, this showed a
                             slight increase in owner occupied dwellings (59% in 1970), and a decrease in
                             renter-occupied dwellings (33% in 1970). Vacant housing accounted for
                             7.8% of the housing stock in 1970 and 10.2% in 1980. The census data
                             indicates that the demand for rental housing decreased along with the rise
                             in vacant housing.

                             Analysis of the trend in housing unit types from 1980 to 1990 (see Figure 6-1)
                             reveals the following characteristics. First, it is obvious that the dominant
                             unit has remained the single-family detached home. Toward the end of the
                             decade, the multi-family and townhouse market has been active. The
                             Comprehensive Plan and associated Town policies will, ultimately,
                             influence where future housing is located in the Town as well as the mix of
                             types of housing.

                                                         Figure &1

                                  Dwelling Units by Type
                                                1980 to 1990


                                       1980                             1990




                             Mobile Homes 6%                  Mobile Homes 6%
                                  60           Multi-Family 24%     aO                     24%
                                                    229
                                                                                      229




                         Single Family 70%                 Single Family 70%,--
                               877                               677
                              Total Units        875            Total Units         966






                     Redman/Johnston Associates, Ltd.
                     July 1991





          Chapter 6                                                                                 !Page 2






                                                                                           comprehensive P(an


                                Assessed Valuation'

                                The assessed value of the Tappahannock housing inventory is shown in.
                                Table 6-2. The housing valuation was grouped to provide levels of analyses
                                for low, middle and upper income lots to evaluate the distribution of housing
                                types in the Town.

                                                            TABLE 6-2

                                  ASSESSED VALUE OF EACH PROPERTY CONTAINING

                                                     RESIDENTIAL UNITS


                                Range of Assessed Value                Number of Units      Percent of Total

                                Class 1 Single Family, Urban

                                Under $50,000                                                      50%
                                $50,000 - $100,000                            120                  33%
                                Over $100,000                                  60                  17%

                                Class 2 Single Family, Suburban

                                Under $50,000      -                             6                 60%
                                $50,000 to $100,000                             4-                 40%

                                Class 3 Multi-Family Suburban

                                Under $50,000                                   17                 50%
                                $50,000 - $100,000                               6                 18%
                                Over $100,000                                   11                 32%



                                The significance of the above percentage breakdown is the even distribution
                                of low, middle, and upper income housing in all three housing classes. This
                                implies a balanced community with homes for all levels of income within
                                the Town limits.

                                The high percentage of class 1 housing below the assessed value of $50,000
                                indicates there is, a sufficient number of single family, low income housing
                                units. In fact the number of housing units in all. the income ranges creates a
                                wellbalanced mix for the Town as a whole. However, with the development
                                of the new South Tech plant, an affiliate of Canon, and other industries
              Chapter6                                                                                 Page 3






                                                                                  Tappahannock Virginia


                           locating in the Town, a shortage of housing may result in the future. The
                           General Affairs Manager of South Tech stated in an interview conducted on
                           November of 1989, that there was an abundant supply of resale housing and
                           new construction in the Town for management personnel who have moved
                           to Tappahannock. Further, the firm hired approximately 200 people and
                           most of these employees commute from outside of the Town limits.

                           Because of the South Tech relocation, most of the housing units appraised
                           between $80,000 - $90,000 have been absorbed by new residents. It has been
                           observed, however, that there are infill lots in existing subdivisions which
                           are available for future development. This factor is important because more
                           single family housing will be needed to support the possible work force
                           moving into Tappahannock due to commercial and industrial development.
                           In an interview conducted on October of 1989, a realtor indicated that there
                           are at least two large parcels of vacant land behind Essex Square that are
                           available for development. Although the available land is an asset to the
                           town, the selling price of the units may exclude lower to middle income
                           families.

                           The Rappahannock Apartments are one of a small number of low income
                           multi-family housing developments in Tappahannock. The Section 8
                           Housing Certificate /Voucher Program provides rent subsidy assistance to
                           qualifying low-income households. A representative from the Middle
                           Peninsula section of this program indicated that 30 applications are available
                           for Tappahannock residents. Currently, 29 of the 30 are being used and not
                           one of the participants had trouble locating available rental units. According
                           to the Farmers Home Administration, who provides loans to lower- middle
                           income people, there is not shortage of available units for anyone who
                           applies for a loan and is eligible for subsidized housing. This indicates that
                           there is a sufficient number of low income housing in the town of
                           Tappahannock.
                           Housing Conditions

                           To evaluate housing in Tappahannock from a land use standpoint, a
                           knowledge of the structural condition of the housing inventory in the Town
                           is important. To meet its housing objectives, the Town of Tappahannock
                           initiated a Rehabilitation Planning Program. The Program was designed to
                           identify and address substandard housing units and assist the Town in
                           applying for financial support from either the state or federal government
                           to improve those units. The program is conducted by the Middle Peninsula
                           Planning Commission and the Northern Neck-Middle Peninsula Area
                           Agency on Aging which serves as an acting housing authority along with
         Chapter 6                                                                                 Page 4






                                                                                      @'Comprehensive Pfan


                                the State Department of Housing and Community Development. The
                                program is to pinpoint the need for housing improvements in low and
                                middle income households because "'they live in either single family,
                                detached frame houses built prior to 1970 or in multi-family frame houses
                                built prior to 1970".

                                The report for the planning grant stated that some of the low - middle income
                                residents live in houses that are well constructed but they lack modern
                                enhancements such as adequate heating and insulation, ventilation, lighting,
                                electrical wiring, fire resistance and sanitary facilities. The program
                                determined that 25% of the houses are rental units. In addition, 1.6% of the
                                units lacked complete bathroom facilities, 1.2% of the units were not on the
                                public sewer system and approximately 1 % lacked complete kitchen
                                facilities. These numbers are relatively low compared to Countywide
                                figures.

                                A survey was conducted in June of 1@89 which revealed that there were a
                                significant number of homes in need of rehabilitation. Though the census
                                data is somewhat old, little has been done to improve these substandard
                                units. Also it can be assumed that these households are on the lower end of
                                the economic scale and have few resources to improve their homes or move
                                to more suitable housing. At the present time, the area between Virginia
                                Street and Airport road has been targeted for improvements.

                                The overall housing situation in Tappahannock has a good mix of housing
                                values as observed through the data collected. Table 6-3 represents the
                                potential number of dwelling units that can be built within the corporate
                                limits at the residential densities proposed in this Plan. The potential for 900
                                housing units well exceeds the past demand of 9 units per year for the
                                foreseeable future. Although there exists land for residential development,
                                future economic growth will likely create a demand for additional housing
                                at all income levels.












              Chapter6'                                                                                   Page 5






                                                                                 Tappahannock Vtrgu=


                                                        Table 6-3
                               Residential Buildout by Selected Planning Districts (1)
                                               Tappahannock, Virgfi-da

                                                                          Average
                          Planning District                  Acres         D.U.s/a       D.U.s

                           Residential Suburban
                             114 Mobile Home units          n/a           n/a            114
                              34 Platted subdivision lots   n/a           n/a              34
                                 Unsubdivided parcels        91            3             273
                           Mixed Residential Cluster         79            7             490
                                                                        TOTAL            911
                           NOTES:
                           (1)    Only includes planning district with significant amount of
                                  developable lands rather than scattered infill areas.


                           Rental Housing Subsidy Programs.
                           Affordable rental housing in Tappahannock is subsidized through the
                           following:

                           Department of Housing and Urban Development (HUD)

                           1.     Section 221 (d)(3) provides mortgage insurance to help finance the
                                  construction or substantial rehabilitation of large multi-family (5 or
                                  more units) rental or cooperative housing projects for low and
                                  moderate income families.

                           2.     Section 8 Existing Certificates and Moderate Rehabilitation Housing
                                  provide assistance on behalf of households occupying physically
                                  adequate, moderate-cost rental housing of their own choosing in the
                                  private market. Federal payment per unit equals the difference
                                  between the government-established Fair Market Rents and thirty
                                  (36) percent of the tenant's income. This Program is administered
                                  through the Rental Assistance Office.

                           3.     Section 8 New Construction and Substantial Rehabilitation subsidizes
                                  rents of lower-income households occupying public and privately
                                  developed projects. Federal payment per unit equals the difference
         Chap ter 6                                                                              Page 6






                                                                                                Comprehensive Plan


                                          between the government-established Fair Market Rents and thirty
                                          (30) percent of the tenant's income. In Tappahannock, this Program
                                          is administered through the Rental Assistance Office.

                                  Farmers Home Administration (FmHA)

                                  Section 515 of the Housing Act of 1949 authorizes FmHA to make or insure
                                  loans to finance the purchase, construction, or rehabilitation of rental and
                                  cooperative housing in rural areas for. occupancy by the elderly, the
                                  handicapped, or low and moderate income families. The purchase of a site
                                  and the provision of essential housing-related facilities may be included in
                                  a loan where appropriate. The 1983 amendments to the Act require that, to
                                  the extent that rental assistance programs are available, all units must be
                                  occupied by very low income persons (income below 50% of the median).


                                  GOALS AND OBJECTIVES

                                  Goal:      Maintain the existing mix of the assessed housing values in the
                                             Town of Tappahannock.

                                             Objectives:

                                             Encourage housing development, single or multi-family, depend-
                                             ent on lot size.


                                             Encourage development of infill housing in existing subdivisions
                                             to maintain the. housin&balance.

                                             Continue programs which identify substandard housing.

                                  Goal:      Efficient, high qual ity and attractive residential development and
                                             sound housingfor all residents shall be encouraged.

                                             Objectives.

                                             The Town shall ensure that developers of subdivisions provide
                                             streets, drainage facilities, curbs, side 'walks, easements and recrea-
                                             tional. area or open space necessary to serve the residents of such
                                             subdivisions.




               Chapter 6'                                                                                     Page 7






                                                                                 Tappahannock Virginia


                           Goal:      The Town shall respond to the local need for housing families of
                                      all incomes..


                                      Objectives:

                                      The Town shall encourage that poor housing be brought up to
                                      minimum standards or replaced where renovation is not feasible
                                      through available Federal, State and local programs.

                                      The Town shall explore alternative means of meeting the housing
                                      needs of low, moderate and fixed income residents.

                                      The Town will consider techniques for affordable housing includ-
                                      ing incentives for private developers to produce affordable hous-
                                      ing and provisions for planned manufactured housing
                                      communities

                           IMPLEMENTATION RECOMMENDATIONS

                           There are a variety of implementation alternatives available to local
                           governments for the provision of affordable housing. The following
                           implementation techniques have been selected to implement the Town's
                           identified objectives.

                           Flexibility in Housing Types - Foster land use patterns that reduce unit
                           land costs and encourage flexibility in housing types. This can be achieved
                           through planned residential development and cluster development
                           provisions in the Town's zoning ordinance. This strategy will also be
                           implemented by one of the basic concepts of the Land Use Plan which is to
                           allow maximum flexibility in configuring lots into clusters rather than
                           relying on minimum lot sizes to determine the desired density. This
                           flexibility also allows for maximizing efficiency in providing infrastructure
                           to the homesites. The Land Use Plan allows for multi-family housing to be
                           permitted in the Mixed Residential Cluster District and other appropriate
                           locations without increasing overall permitted densities.

                           Use Federal and State Programs - Continue to use          Federal and State
                           programs to help meet Tappahannock's housing needs. The following
                           housing programs should be used by the Town to assist residents with low
                           to moderate incomes.

                                  Con=gate Housing _L-Qan Progjam, - Funds from this program are
                                  specifically for projects which provide housing for such low or
         Chapter 6                                                                                PW 8






                                                                                               Comprehensive Plan


                                         moderate income disabled or elderly persons. The project should
                                         have no more than 30 units and provide central kitchen. and dining
                                         facilities. Loans of up to $250,000 per project are available at an
                                         interest rate of 2% for a 15 year period. Non-profit organizations,
                                         private corporations, and governmental entities are eligible for the
                                         loans. This program is offered through the Department of Housing
                                         and Community Development.

                                         Virginia Housing Partnership      Priogjam - Tappahannock is eligible
                                         to apply for either a block grant or grant for specific project under this
                                         program. Eligible 'activities include single and multi-family
                                         rehabilitation, energy loans, and funding for emergency home
                                         repairs.

                                         Virginia Housing Production Progjam - Loans are provided to
                                         non-profit organizations or for-profit developers to construct single-
                                         family homes and multi-family housing.

                                         Small Cities Community Develol2ment Block Grant (CDBG) -
                                         Funds' are passed through the State Department of Housing and
                                         Community Development for a variety of housing related projects
                                         such. as housing rehabilitation programs.

                                         HUD Section 236 Proaam - subsidizes mortgages for rental hous-
                                         ing projects and provides rent supplements which are subsidy pay-
                                         ments to the owners of private 'rental housing on behalf of
                                         lower-income tenants.


                                         HUD Section 202 Housing for Elderly and HandicaI212ed -
                                         provides direct loans for the development of rental housing for the
                                         elderly and handicapped. Projects also receive Section 8 subsidies.

                                         HUD Section 8 Housing Vouchers - provides rent subsidy pay-
                                         ments to be based on a newly established payment standard rather
                                         than on actual unit rents. The standard is to be based on the Fair
                                         Market Rents set for the Section 8 Existing Housing Program.
                                         Families renting units above or below the new payment standard will
                                         pay more cvr less than 30 percent of adjusted income for rent.

                                 Bonus Densities for Affordable Housing - Grant bonus densities to
                                 planned development projects to encourage the provision of more affordable
                                 housing. It is recommended* that in order to encourage the production of

              Chapter 6                                                                                     Page 9






                                                                                       Tappahannock Virginia


                              housing for low-income residents, the density of development within certain
                              districts may be increased with the following guidelines:

                                  0  No more than a bonus of one additional dwelling unit per acre above
                                     the permitted density.

                                  0  The units provided must meet all conditions with regard to income
                                     qualifications and other standards that may be established by the
                                     Town to ensure that the units are bonified affordable housing.

                              The bonus for low-income housing should not be permitted where
                              subsidized units constitute more than 20 percent of a development, except
                              in the case of a development of less than 10 dwelling units.

                              Mobile Homes - Continue to permit mobile homes as a means of providing
                              affordable housing with the needed performance standards to insure their
                              use creates a safe, sanitary and comfortable living environment. Mobile
                              homes, or manufactured housing, tend to be less expensive than most other
                              types of single family homes and, consequently, serve as a practical
                              alternative to affordable housing. Within the Tappahannock Zoning
                              Ordinance, Subdivision Ordinance and other applicable ordinances, mobile
                              home subdivisions and mobile home parks will be required to meet all the
                              same standards as required for other single family dwelling detached
                              development. For example, road standards that apply to conventional
                              housing will also apply to mobile home parks. Mobile homes will continue
                              to be permitted in mobile home parks and subdivisions through conditional
                              zoning.

                              Accessory, Apartments - Permit accessory apartments under certain
                              conditions with adequate safeguards to protect the character of the existing
                              residential neighborhoods. This strategy will stimulate new, moderate cost
                              rental housing for both young and elderly households while preserving
                              large, older homes and allowing elderly homeowners to stay in their homes.
                              Among the conditions of approval for accessory apartments is that the
                              accessory apartment be "clearly subordinate to" the main unit. This will be
                              achieved by requiring that the apartment be less than a specified percentage
                              of the square footage of the original house. Another condition is that
                              conversions should not be permitted in new housing. Finally, the house
                              should have at least one owner occupied resident and should, from the
                              exterior, appear to be a single family residence.

                              Fixed Floor Area Ratio - A fixed floor area ratio for single family residential
                              structures in a planned residential development will allow smaller homes to
          Chap ter 6                                                                                     Page,10






                                                                                               Camprefiensive Plan


                                  be built on smaller lots. Ho using costs can be contained in the small lot single
                                  family developments by tying the size of the dwelling unit to the size of the
                                  lot by a maximum floor area ratio per lot. This will ensure that the scale of
                                  the house is consistent with the lot thus preserving the less dense residential
                                  character sought in single family detached housing.

                                  Commercial Apartments - Permit commercial apartments in the
                                  moderately intense commercial use zones such-as the central business
                                  district. This type of housing represents a lower cost option for builders
                                  since there is no land value associated with the dwelling units. In addition
                                  to providing more affordable housing, locating residential uses in
                                  commercial areas also provides for the more efficient use of existing
                                  infrastructure and government services and greater accessibility to jobs.
                                  Because the apartments are primarily occupied during the hours that
                                  commercial uses are normally left'vacant - the night and early morning
                                  hours - greater use is made of existing parking lots. The Town should tie
                                                                                                    f second floor
                                  increased lot coverage or floor area ratios to the provision o
                                  residential units as an additional incentive to increasing affordable housing
                                  stock.


                                  Housing Code - Adopt and enforce a housing code to remove substandard
                                  conditions of rental housing.

                                  Self Help - Encourage the formation and ope         ration of Self- Help groups.
                                  One such organization is the Habitat for the Humanities.'The Town might
                                  consider providing money for these organizations.

                                  Designing for Economy - Designing for economy can be achieved without
                                  sacrificing marketability. The Town should pro-actively educate builders
                                  on techniques proven to save money and, when possible, reduce standards
                                  that will save money without sacrificing structural strength or aesthetic
                                  quality. In  most cases current Town building codes permit cost saving
                                  designs; however, there are opportunities for the Town to relax standards.
                                  The Town needs to evaluate the building code to ensure that unnecessary
                                  impediments are not preventing the use of economical designs.

                                  Housing Trust Fund - The Virginia Housing Development Authority
                                  (VHDA) and Virginia Department of Housing and Community
                                  Development (VDHCD) will be administering such a State fund to be used
                                  as a revolving loan fund to induce the development of low and moderate
                                  income housing statewide. A housing trust fund can be both a generator
                                  and a conduit of funds for the development of affordable rental housing.

               Chapter 6                                                                                   Page 11








                                                                                    Ta
                                                                                       ppahaniwck Virgmia


                             To create a flexible Housing Trust Fund as a mechanism to help fund
                             affordable rental housing, the Town should consider the following:

                                 ï¿½  Designing a housing trust fund that will be a stable source of financ-
                                    ing. Sources could include proffers in the form of cash contributions
                                    from developers, donations from corporations, county government
                                    contributions, and real estate transfer taxes.

                                 ï¿½  Designating uses for housing trust funds such as interest rate buy-
                                    downs for projects meeting affordable rental housing criteria, second
                                    trust financing, land cost buy-downs, water and sewer tap fee reduc-
                                    tions, rent supplements, and seed money for non-profit develop-
                                    ments.


                                 ï¿½  Actively pursuing state enabling legislation, as necessary, to allow the
                                    use of housing trust funds and certain revenue sources for affordable
                                    rental housing.

                             In the end, it is the inability of the market to easily accommodate the needs
                             of all the residents of Tappahannock that underlies the entire housing issue.
                             The housing problem is also one that cannot easily be solved. The federal
                             government and others have been grappling with this issue for decades.
                             Despite these efforts, it is still a major problem, and certainly one that will
                             not be solved by this Plan. The best that can be done is to work at the housing
                             issue from a variety of directions and to seek incremental gains.


















          Chapter 6.                                                                                Page 12






                                                                                           Comprehensive Plan
                                Chapter 7
                                ECONOMIC DEVELOPMENT.

                                BACKGROUND AND ANALYSIS

                                Tappahannock's Local, Economy

                                       he Town of Tappahannock and Essex County have experienced a
                                       significant decline in the unemployment rate between December 1983
                                       (Comprehensive Plan 1985) and August 1989 (the Virginia Employ-
                                ment Commission). Unemployment fell from 8.9 percent in 1983 to 2.5
                                percent 1989. The data also reveals that the absorption of available labor is
                                reflective of the trend for the Commonwealth of Virginia during the same
                                period (from 5.5 percent to 3.0 percent).

                                The major industry in'Tappahannock in 1980 was Manufacturing. At that
                                time, 41 percent of all workers in Essex County were employed in some kind
                                of manufacturing industry. However, by 1986 this figure dropped 31.7
                                percent of all workers. Retail trade over the same time period gained by 5.7
                                percent to hold a share of 31.5 percent of all workers. Service industries,
                                more specifically health services, increased from 15.7 percent share of
                                workers in Essex County in .1980, to a 19.3 percent share in 1986. While
                                manufacturing was the dominant industry in 1980, by 1986 retail trade held
                                an equal status with manufacturing as a dominant industry.

                                The shift in employment coincides with the general trend which has
                                occurred in the United States over the past twenty years. The United States
                                is shifting from an industrial. based economy to a more service oriented
                                economy. It is evident by the shift in employment from     'manufacturing to
                                retail trade and services that Tappahannock is also experiencing this trend
                                but at a rate less than the United States as a whole.


                                Tappahannock saw a decrease in employment from 1980 through 1982.
                                During that same time period the area also experienced a loss of population.
                                These decreases, can be attributed to the recession that occurred in the early
                                eighties. By 1983,. however, Tappahannock began to see increases in
                                employment figures. This trend continued through 1986. Although the
                                population remained constant over that same time period, the ratio of
              Chapter 7                                                                                 PW 1







                                                                                Tappahannock Virginia


                          population to workers decreased. Generally, employment in Tappahannock
                          has been increasing at a rate higher than that of the population.
                          Basic Industries

                          The economic base analysis in the 1985 and VCU plans indicates
                          Tappahannock's economic base is expanding. In 1980, there were 11 basic
                          industries in Tappahannock. By 1986, there were 14. Retail trade gained
                          two basic industries while manufacturing gained one. It is important for a
                          community to have a diverse economic base. If a community is dependent
                          upon a few industries, then those industries will largely affect the economy
                          of that community. If an industry is doing poorly, then the economy of that
                          community will do poorly. On the other hand, if the economic base is
                          diverse, then the downturn of one industry will not greatly affect the
                          community's economy.

                          While Tappahannock@s economic base is becoming more diverse, most of the
                          basic industries experienced an increase in export employment from 1980 to
                          1986. This increase occurred even though the population of the area has
                          generally remained constant. "Textile mill products" is Tappahannock's
                          ,most important industry because it is the community's largest export
                          employer. Manufacturing industries in general account for 724 jobs,
                          therefore it is Tappahannock's most important industry type.

                          Export employment as a whole decreased 9.6 percent in Tappahannock from
                          1980 to 1986. This decrease can be attributed to   the recession the United
                          States experienced in the early eighties. The largest single loss of export
                          employment occurred in the manufacturing industry "transportation
                          equipment."

                          The economic base analysis shows that Tappahannock's economy is
                          becoming more stable. There was an increase in the number of basic
                          industries from 1980 to 1986, and most of those industries saw an increase
                          in export employment. This expanding economic base is stabilizing
                          Tappahannock's economy by allowing it to become less dependent on one
                          industry. The new Cannon plant which recently opened in Tappahannock
                          is presently employing over 100 persons. This business will help stabilize
                          the economy further because it will create more export employment.

                          The economic base analysis also shows that Tappahannock is a regional
                          center. Export employment was present in six retail trade industries. Since
                          production in these industries exceeds local demand, consumers are coming
                          into Tappahannock to purchase these goods. Unlike manufacturing
                          industries that produce a good which most likely be sold outside the area,
        Chapter 7                                                                               Page 2






                                                                                            Comprehensive Pian


                                 retail trade products are sold within the immediate area. Tappahannock is
                                 becoming more of a regional center than it was in 1980. There has been an
                                 increase in employees, export employment, and base industries in retail
                                 trade as a whole.

                                 Tappahannock has become more service sector oriented since 1980. This
                                 trend is one that the United States is experiencing as a whole. Although the
                                 manufacturing industry has the most expert employment in Tappahannock,
                                 the retail trade industry has gained substantially in that area since 1980.
                                 Retail trade also added two more basic industries and saw a 9 percent
                                 increase in employment figures through 1986. Since Tappahannock is
                                 becoming more of a regional center, the retail trade sector has probably
                                 increased even more since 1986.

                                 Business Corridor

                                 The Town of Tappahannock is an active trade center for the region which is
                                 reinforced by the crossroads of Highways 360/17. Also, the fact that
                                 sixty-three percent of retail and business services along the corridor is
                                 regional and thirty-seven* percent is local activity is another factor that
                                 reinforces the statement that Tappahannock is clearly an active trade center
                                 for the region.

                                 The rents along the corridor are important as they differ according to their
                                 location. The downtown area, the rentsare much lower ranging from $600
                                 to $650 per month for businesses. However, the rents along the corridor are
                                 much higher from $950 to $975 per month towa        rds the shopping centers.
                                 Even though rents are much higher along the corridor, businesses continue
                                 to locate along theFfighways of 360/17because of better visibility andaccess
                                 for shoppers.

                                 The three existing shopping centers of Tappahannock create a regional
                                 center for the.Town. The Rappahannock, White Oak Village, and Essex
                                 Square, shopping centers all provide convenient shopping for the
                                 neighborhood, community, and regional area. All three shopping centers
                                 have an appropriate mixed use which establishes a well developed regional
                                 center. This appropriate mixed use is a,combination of at least three revenue
                                 producing uses from retail, office, and restaurant facilities. The most typical
                                 tenants in regional shopping centers are fast food services, family stores, and
                                 card and gift stores. All of these tenant types are available in the shopping
                                 centers in Tappahannock.

                                 The central business corridor of Tappahannock plays an important role to
                                 its businesses, shoppers, and the community. The data represents a greater
              Chapter 7






                                                                                     Tappafiannock Virginia


                             portion of the regional retail and service businesses being conducted along
                             the corridor which provides a stable economy for the community. Presently,
                             the corridor has produced a valuable and active center for conducting
                             regional business activities. These shopping centers offer a wide variety of
                             services for local and regional shoppers, this is important to the community
                             because it brings in new money to the local economy. This past trend
                             represents growth in retail trade at the local and regional level that will
                             remain strong and stable in the future.
                             Downtown

                             The downtown district is a primary retail and service provider for the local
                             community with some retail services directed towards the regional
                             community. A review of the business inventory suggests that nearly sixty
                             percent of the consumer base is derived from the local community.
                             Approximately twenty-six percent are a mix between local and regional
                             users and thirteen percent are dedicated to the regional markets (VCU 1989
                             Plan).

                             The distribution between local and regional service providers could become
                             more equal if plans are developed which encourage more tourist interaction
                             in the downtown area. It is interesting to note that the composition of the
                             regional market is primarily retail in orientation, such as furniture stores and
                             antique shops which account for a large percentage of the downtown retail
                             business uses. The balance of the regional offerings include services such as
                             restaurants, medical services and building contractors.

                             The local market on the other hand is comprised of professional services such
                             as realtors, banks, lawyers, insurance offices, local government offices, and
                             hair salons/barber shops. A small percentage of uses are dedicated to
                             specialty retail uses such as childrens clothing, books, crafts and bridal
                             accessories.


                             The downtown business district, which by, design is oriented towards the
                             pedestrian consumer, provides goods and services for the local community.
                             The quantity of undeveloped land is limited and the number of building
                             vacancies are limited, through many structures are not fully occupied or
                             oriented towards the window shopping consumer. The expansion of the
                             parking capacity should be considered when implementing a downtown
                             redevelopment plan.




          Chapter 7                                                                                   Page






                                                                                            Comprehensive Plan


                                 Industry

                                 The economic base analysis. suggests that the industrial sector accounts for
                                 approximately one-third of Tappahannock's employment. The
                                 manufacturing industries located in Tappahannock are export industries.
                                 These industries are an important part of the town's economy, not only
                                 because of the large numbers of persons they employ, but also because of
                                 theYery nature of export industries. Export industries produce more goods
                                 than local consumers demand, therefore, goods are exported to larger
                                 geographical markets and the cost of producing goods are distributed.

                                 Incentiv -es which make Tappahannock an attractive location for
                                 development are the low business tax rates for the area, with real estate taxes
                                 at $ 0.60 per $100 of assessed value for the county and $0.15 per $100 of
                                 assessed value for the Town, and the relatively low cost of labor compared
                                 to more urbanized areas. .

                                 At present, most of the labor demand is for" unskilled or semi-skilled
                                 workers. This currently poses no problem. However, with the potential for
                                 attracting industries which demand workers with a higher skill level, the
                                 present labor force could prove to be a disincentive. Vocational /technical
                                 training is not offered through Essex County High School. Rappahannock
                                 Community College in Richmond County offers courses in areas such as civil
                                 engineering, drafting, computer science, and mechanical engineering.
                                 However, with the current job market in Tappahannock, students in these
                                 disciplines have limited incentive to. stay in the area to seek employment and
                                 typically look elsewhere.

                                 The current mix of textiles, lumber and building materials, and automotive
                                 manufacturing is good, but canbe improved upon. with diversification. In
                                 the event of an economic recession, Tappahannock would certainly suffer
                                 economic hardship. Industries  *which supply lu  'mber and building materials
                                 and. automobile parts would see a drastic decline in demand for goods.
                                 While clothing is not usually considered a luxury item, consumers would
                                 try to make do with what they already have for longer periods of time.
                                 Therefore, the town should encourage the location of new industries which
                                 will not be as.affected should a recession occur.







              Chapter 7                                                                                  Pqye 5






                                                                                   TaNafwnnock ViWinia


                            GOALS AND OBJECTIVES

                            Goal:      Maintain positive employmentgrowth in industries which export
                                       products to regional and national markets.

                                       Objectives:

                                       Encourage diversified, light industrial developments.

                                       Promote Tappahannock in conjunction with the County as an
                                       attractive and available location for small or light industries.

                            Goal:      Maintain the mix of retail and service business along the business
                                       corridor.


                                       Objective:

                                       Encourage the location of new businesses along the business
                                       corridor where vacancies are present during the next two to five
                                       years.

                            Goal:      Efficient and attractive commercial development within the
                                       Town shall be promoted to strengthen the Town's economic base
                                       and provide necessary jobs for local residents.

                                       Objectives:

                                       Existing businesses shall be encouraged to maintain and improve
                                       their appearance so as to preserve the attractiveness of the central
                                       business district, and shopping centers.

                                       New businesses shall be encouraged to cluster around existing
                                       business areas where common off-street parking and adequate
                                       lighting, drainage, and traffic flow are available.

                                       Industrial development within the Town shall be encouraged in
                                       order to strengthen the economic base and provide necessary jobs.

                                       The preservation and expansion of existing industries shall be
                                       encouraged.

                                       Industrial activities should be located at the designated industrial
                                       sites within the Town.
         Chapter 7                                                                                  Page 6








                                                                                          C
                                                                                            omprehensive' P14n


                                           Light industry located within the Town shall be limited to those
                                           which cause no  environmental problems including air and water
                                           pollution or which would be disharmonious with the natural
                                           setting of the Town.

                                IMPLEMENTATION RECOMMENDATIONS
                                Commercial Development
                                The Town of Tappahannock is clearly an active trade center for the region
                                that needs to be maintained for its future role in stabilizing a strong local
                                economy. The economic development plan for the commercial corridor area
                                will be done in three phases which include organization of public/private
                                partnerships, promotion of retail and service businesses,' and economic
                                structuring of the existing assets of the corridor retail and service area.

                                The first phase in the process is the development of a community
                                organization. This would be an organization of public/ private partnerships
                                that consist of community leaders who, on a voluntary basis, will be working
                                in conjunction with theChamber of Commerce. This organization is
                                important as it organizes the economic entities of the Town to develop a plan
                                for local and regional retail and service businesses. The organization of
                                businessmen, civic leaders, and town officials will facilitate the
                                implementation of the Plan's commercial development objectives and
                                provide.a forum for promoting public/private partnership.
                                The strategy for the highway corridor commercial is to provide adequate
                                amounts of appropriately zoned land and improve the physical appearance
                                and attractiveness of the corridor. The land use analysis described in
                                Chapter 3 revealed that even with the proposed expansion of the general
                                business district shown on the Land Use Map, the Town only has 87 acres
                                of undeveloped commercial lands along the corridor within the corporate
                                limits. For this. reason it is recommended through the Land Use Plan that
                                additional areasadjacent to the General Commercial District be proposed
                                outside the corporate limits. These areas are generally located around the
                                Rt. 17 Rt. 360 intersection. Improvements to the business properties along
                                the commercial corridor will be a*chieved through the provisions of a
                                highway corrid  'or zone. As properties are rehabilitated and redeveloped
                                they would be encouraged to come into compliance with appearance and
                                landscaping requirements.

                                The strategy for downtown is proposed in three phases: (1) to promote the
                                existing businesses so as to maintain    their location in. the district when
              Chapter 7                                                                                lage 7






                                                                                    Tappahannock Virginia


                            feasible; (2) to actively attract new business which will compliment the
                            existing businesses and meet its changing role as an office, specialty retail
                            and governmental center; and (3) to market the downtown as a service
                            provider for tourist attractions.

                            In order to maintain the present business and encourage the location of new
                            ones, the downtown businesses should establish a development
                            organization. This group would be established from within the existing
                            framework of the Chamber of Commerce. Membership in this association
                            would be voluntary and the membership should be open to non-Chamber
                            members.

                            The focus of this group would be to work with the town staff and merchants
                            to address the image, promotion and viability of the downtown area. Some
                            of the programs could include:

                            (1)    the establishment of a logo for participating businesses which can be
                                   printed on the shopping bags, letterhead, street banners, etc.

                            (2)    maintain an up-to-date listing of all available store space to facilitate
                                   expansion or relocation efforts;

                            (3)    work with the town staff to implement design guidelines to promote
                                   a unified image of downtown district as discussed in Chapter 10;

                            (4)    sponsor events such as an arts festivals or outdoor music productions
                                   in the summer, and a sidewalk sale (this may include closing a portion
                                   of the roadways in order to accommodate the pedestrian traffic);

                            The Central Business District (CBD) will remain the focal point of
                            community life in Tappahannock. The CBD currently serves as a
                            government, office and specialty retail center. Commercial activities in the
                            CBD are going through a metamorphose from general retail to smaller,
                            upscale, tourism-oriented specialty retail- shops mostly catering to
                            out-of-town tourists. The historic character of the CBD has made it an
                            attractive location for specially retail oriented towards the area's tidewater
                            heritage. The majority of general commercial retail activity which serves
                            Tappahannock and Essex County residents has, over the years, moved from
                            the CBD to outlying, adjacent shopping centers. The emphasis in the Central
                            Business District needs to be on complimenting the General Business on the
                            highway corridor with specialized retailing, office and selected service
                            activities rather than competing with like products and services.

         Chapter 7                                                                                   Page 8..






                                                                                           Comprefiensive Pfa  n


                                Industrial Development
                                The industry Plan will be developed in two phases: (1) attracting new
                                businesses and (2) enhancing work skills. The first phase will capitalize on
                                the existing industrial park. The existence of an already developed
                                industrial park with infrastructure needs, provided by the Town should
                                serve as,an incentive to attract new industries to the area. New industrial
                                development should be limited to the area in and immediately surrounding
                                the designated industry park area. Remaining parcel sizes in the industrial
                                park will limit new development. New development requiring a large
                                parcel size must be located outside the Town limits in Essex County.

                                While the current mix of industry is good, the mix can be improved upon
                                with diversification. Div ersificati on will provide some protection of jobs in
                                the event of an economic recession. Firms which do not complete with
                                existing employers for labor should be targeted. Since currently the largest
                                industrial employers are textile manufacturers, automotive manufacturers,
                                and lumber suppliers, new development in these industries should not be
                                encouraged with the exception of expanding existing operations or the
                                developrhent of "'feeder" industries. Feeder industries are industries which
                                supply technology, parts, or supplies to an industry which then produces
                                the goods.

                                Examples of target industries include food and related products, furniture
                                and fixtures, paper and allied products, printing and publishing, fabricated
                                metal products, machinery, electric and electronic, equipment, and
                                instruments and related products. One area with great potential is
                                manufacturing industries which combine manufacturing facilities with a
                                showroom to sell goods directly to local and regional consumers and
                                tourists, in addition to exporting goods to regional and national markets.
                                If the suggested truckroute linking the industrial park with Route 17 is built,
                                development in the industrial park area and corridor has the potential to
                                expand. It is essential that growth be controlled and planned so that the
                                existing services will not be overwhelmed. Efforts to relocate the existing
                                airport will make opportunities for an expanded and diversified industrial
                                base.


                                First and foremost, the Town. of Tappahannock and Essex County must
                                examine the curre   'nt situation and decide if they want to attract new
                                industrial development. Since the unemployment rate in the Town and
                                surrounding counties is low, Tappahannock can afford to be very selective
                                in targeting new industrial development and can limit new development to
              Chaptor 7                                                                                 Page 9






                                                                                  Tappahannock Virginia


                           clean industries which will not pollute the environment and which win
                           improve the quality of life.

                           In recognition of the need to provide additional, up-graded and diverse job
                           opportunities for residents of Tappahannock, it is proposed that several
                           areas be reserved for development into industrial dusters. Proposed land
                           areas are sufficient to meet future needs of the community. A variety of sites
                           are necessary to permit the location of industrial uses which provide
                           employment opportunities. Several industrial clusters are necessary to
                           provide for the location of industry according to their specialized needs
                           while protecting the environment of the community.

                           Proposed industrial lands @ were selected based upon a series of principals.
                           These are:


                               e  A variety of industrial sites should be available in several con-
                                  centrated locations near collector and arterial highways.

                               9  The character and aesthetics of adjoining residential areas should be
                                  preservedby requiring industrial activities to meet strict performance
                                  standards.


                               0  A variety of job opportunities should be encouraged within the
                                  Tappahannock Area with varying land uses requirements.

                               *  Industrial locations should provide large land areas suitable for
                                  horizontal expansion, of sufficient size to provide on-site storage,
                                  parking and landscape areas.

                               e  Industrial lands should be so located as to minimize any adverse
                                  influence on adjoining land uses and in consideration of the environ-
                                  mental attributes of the area.


                               *  All industrial activities should be served by a complete array of
                                  community facilities.

                           The Land Use Plan Map suggests the concentration of industrial activities in
                           several key locations north of the corporate limits as the best method of
                           preserving the character of development in both the Town and surrounding
                           urban areas. All activities should be served with community facilities and
                           situated with direct access to either arterial highways or major collector
                           routes.


         Chapter 7                                                                               Page 10






                                                                                                comprehensiVe Plan


                                  To encourage the development of industrial activities to high standards,
                                  industrial park development should be encouraged. Where development
                                  occurs in an area on a fragmented basis, uniform standards should be
                                  established which will assure that virtually all industrial uses are located in
                                  a park like setting. Because of the compact nature of existing industrial
                                  development in the urban-core and its predominantly residential character
                                  future industrial activities within thecorporate limits should be limited to
                                  small, light industries.
                                  Industrial Development Clusters
                                  The cluster co  ncept can be implemented for industrial activities through
                                  establishment of industrial parks. An industrial park is planned location for
                                  industrial activities developed in accordance with a Comprehensive Site
                                  Plan. Implementation of the Site Plan assures compatibility of industrial
                                  operations with surrounding areas. A park like atmosphere is created which
                                  provides an attractive buffer between industrial uses and other neighboring
                                  -land uses. If properly developed, the industrial parks provide a pleasing
                                  working environment for employees of Tappahanno&s firms.

                                  To assure establishment of a scenic and pleasant working atmosphere,
                                  several basic elements should be included in the Site Plan. The park should
                                  be of sufficient size to offer sites for a broad spectrum of industrial activities.
                                  Minimum land units should guarantee sites which can accommodate
                                  building restrictions such as proper setbacks, land to building ratios,
                                  architectural provisions, parking requirements, use restrictions, and
                                  extensive landscaping requirements.

                                  The park m   ust provide a full array of community services to occupants.
                                  Streets should be designed to facilitate truck and employee traffic with direct
                                  access to arterial highways. Electricity, water, sewer and gas must be
                                  available to complete facilities.

                                  Attractiveness of the industrial center        is assured primarily through
                                  covenants established by the developer in accordance with public standards.
                                  Subdivision ordinances, consistent with local zoning provisions, establish
                                  lot sizes and setbacks. A part of the local approval procedure is the review
                                  of operations. Proper maintenance of the park can be provided by a park
                                  association composed of occupants, by the developer if he retains partial
                                  ownership or by public controls.

                                  Because of its potential for attracting employee and truck traffic, access to
                                  the park is controlled by public policy. Internal street layouts are consistent
                                  with Town plans and policies as a method of reducing conflicts at Inajor
              Chapter 7                                                                                     Page 11






                                                                                   Tappahannock Virginia


                            intersections, particularly if the traffic stream includes a high percentage of
                            trucks. In general, industrial clusters should be located with direct access to
                            arterial or collector routes.


                            An industrial park can be a valuable asset to a community if well planned,
                            controlled, and maintained. With substantial landscaping and land use
                            controls, the park not only reduces potential detrimental effects from
                            industrial activities, but also provides an attractive setting which can
                            preserve and enhance the natural features of the area.
                            Resources Available

                            There are resources available for implementing economic development
                            efforts other than the organizational strategies already described. These
                            include a number of state programs that include financin& infrastructure,
                            and training.

                            1.     Community Development Block Grants

                                   CDBGs are available to eligible cities, counties, and towns for
                                   industrial or commercial revitalization, site development, access road
                                   construction, railroad span construction, and water and sewer
                                   projects.

                            2.     Economic Development Revolving Loan Fund

                                   The Economic Development Revolving Loan Fund provides loans to
                                   Industrial Development Authorities (IDAs) within communities
                                   eligible for Community Development Block Grant non-entitlement
                                   funds. The loans may be re-lent to private businesses within the IDA
                                   service areas.


                            3.     Tax Increment Financing

                                   The purpose of the Tax Increment Financing (TIF) program is to
                                   remove blighted conditions by improving the real estate tax base and
                                   by attracting private investment to the area. A local government may
                                   adopt TIF by passing an ordinance designating a blighted area as a
                                   development project area. This may be useful in redeveloping the
                                   area associated with the e)dsting airport.



         Chapter 7                                                                                 Page 12






                                                                                                  Comprehensive Plan


                                   4.     Virginia Revolving Loan Fund

                                          The  Virginia Revolving Loan Fund (VRLF) provides loans to assist
                                          eligible Virginia -localities in efforts to create or retain permanent jobs.
                                          The loans may be used for asset financing for manufacturing and
                                          related uses and may include the acquisition of land and buildings,
                                          development or redevelopment of real estate, rehabilitation and
                                          renovation of buildings, and purchase of equipment and other fixed
                                          assets. The loans may be used for on-site and off-site public facilities
                                          supporting manufacturing and related uses.

                                   5.     Industrial Access Road Program

                                          Virginia Department of Transportation (VDOT) administers a
                                          program to assist in constructing industrial access roads to serve new
                                          and expanding manufacturing or processing companies. The
                                          program may be used to improve existing roads, construct a new
                                          road, and to maintain the access road after completion as part of the
                                          secondary highway system or road system of the locality.

                                   6.     Shell Building Initiative

                                          This initiative provides funds for       selected cities and counties to
                                          construct industrial shell buildings to attract basic employers to the
                                          community. The funds are awarded on a competitive basis. The
                                          Virginia Supplemental Retirement System has agreed to loan
                                          sufficient funds for the initiative to the Virginia Department of
                                          Economic Development (VDED). WED will then loan the funds for
                                          a shell building to a selected locality and the Commonwealth of
                                          Virginia will make the interest payments on the loan. Upon the sale
                                          or lease of the building by the locality or at the end of five years,
                                          whichever is first, the locality will repay the principal and interest to
                                          the commonwealth.


                                   7.     Industrial Training Programs

                                          The Industrial   'Training Division of the Virginia        Department of
                                          Economic Development will prepare and coordinate an industrial
                                          training program tailored to meet the specific needs of new or
                                          expanding companies seeking to increase employment in Virginia.
                                          Industrial training will recruit prospective trainees, provide
                                          specialists to analyze job training requirements, develop and
                                          implement training programs, conduct "Train the Trainer" programs,
               Chapter 7                                                                                      Page 13






                                                                               Tappahannock Virginia


                                  arrange for adequate training facilities, and prepare instructional
                                  audiovisual materials for in-depth training orientation. These
                                  services are provided at no cost to the employer and may be helpful
                                  in meeting the Town's job retention objectives.




































          Chapter 7                                                                          Page .1






                                                                                                 Comprehensive Pfan

                                  Chapter'8
                                  PUBLIC FACILITIES'AND SERVICES
                                  E
                                         nsuring that the provision of community services and facilities is
                                         phased with the demand or need is a major component of growth
                                         management. Community facilities and public services are those
                                  minimum facilities and services the Town provides for the common good.
                                  Generally, public. facilities include land, buildings, equipment and whole
                                  systems of activity provided by the Town on the behalf of the public. The
                                  quality of public facilities contributes to the quality of life in the Town. Some
                                  facilities, such as clean drinking water and adequate sewerage disposal are
                                  necessities; others, such- as theaters and parks, are highly desirable for
                                  cultural and educational enrichment.


                                  BACKGROUND AND ANALYSIS

                                  Tappahannock provides a variety of public services and facilities for its
                                  residents which include water supply, sewage disposal, solid waste disposal,
                                  libraries, and public safety. The provision of these services facilitates
                                  growth and development, however, the absence of services or facilities does
                                  not effectively' deterunguided growth. Rapid residential and commercial
                                  development places a burden on the Town to meet service and facility needs.

                                  A survey of existing services and facilities, in conjunction with       population
                                  and economic data o      n which to base projections of need, provides an
                                  indication of what future improvements and additions might be necessary.
                                  In order to accurately anticipate needs, all projected figures should be
                                  updated constantly as new population and economic data become available.
                                  This section will. focus on identifying     'existing and projected capacity of
                                  community facilities to identify the issues and problems of providing these
                                  services in the context of the Town's projected growth rate and geographic
                                  distribution. To begin capacity analysis of the facilities based on growth, we
                                  will generally use the population projections shown in Table 2-1 to the Year
                                  2010. If other projections are used, they will be so noted. The following is
                                  a discussion of the existing capacities and levels of service for selected
                                  community facilities and services as well as projected demands. Planned
                                  facilities included in the Town's annual financial planning process are noted.


               Chapter 8                                                                                      Page 1






                                                                                  Tappahannock Virginia


                            Water Service

                            A number of laws control the use and quality of water in the Commonwealth
                            of Virginia. A state-operated water allocation system defines water rights.
                            This takes place within the state's judicial system and use of the Riparian
                            Doctrine, which allow for landowners to make reasonable use of the water
                            resources adjoining their land. Secondly, the Groundwater Act of 1973
                            allows the Water Control Board to designate management areas in which
                            water withdrawals are regulated. This allows the Board to state ownership
                            and have control of the water beneath a landowners parcel of land. Areas
                            outside of those management areas are controlled by common law. Thirdly,
                            the State Water Control Law mandates the protection as well as the
                            restoration of state waters. The standards are continuously reviewed and
                            revised as appropriate. Fourthly, the State Health Department is in charge
                            of ensuring that all public drinking water supplies are pure, provides
                            guidance to determine if a water supply or waterworks permit is to be issued,
                            and assists applicants in completing all necessary paperwork pertinent to
                            water supply. These are just some of the laws and agencies who help protect
                            and regulate water.

                            The Comprehensive Water       Qualit Managgment Plan for Jhg Middle
                            Peninsula An Information 5garch and Review WPDC, Jan. 1989 contained
                            the following discussion of groundwater in the Tappahannock Area:

                                  "the MTPD was divided into development zones based on
                                  groundwater availability characteristics a *nd withdrawals.
                                  Essentially, the west-central MPPD (zone E) appears to
                                  have the greatest potential for development. This is due to
                                  the large capacities of groundwater available (5-15 million
                                  gallons per day) from the upper artesian and principal
                                  aquifer systems."

                            Wiley & Wilson, consulting engineers, completed a review of the
                            Tappahannock water system in 1989. Their review included current water
                            demands, capacity of existing supply wells, water storage requirements, and
                            the capacity of existing water storage facilities. Their review was made-
                            based on two different conditions, normal and "worst case." Normal
                            conditions included average daily water requirements, recommended fire
                            flows, and both wells in service. The worst case analysis included maximum
                            daily water requirements, recommended fire flows, and the larger well out
                            of service.



          Chapter8                                                                                Page 2






                                                                                         Cbmprehensive Pfan


                               Water Use

                               Based on the Town's billing records in 1987, there were 748 users in the Town
                               requiring an average daily flow of 302,740 gallons (210 gpm). Based on the
                               records for the Town's two existing supply wells, Well #1 pumped a daily
                               average of 102,206 gallons (71 gpm) with a maximum day of 178,677 gallons
                               (124 gpm) in October 1987. Well #2 pumped a daily average of 201,007
                               gallons (140 gpm) with a maximum day of 258,700 gallons (180 gpm) in June
                               1987. Hence, the average daily use is approximately 210 gpm and the
                               maximum daily use is approximately 305 gpm.
                               Wate @ul
                               The Town presently has two water supply wells. Both well have had pump
                               tests run on them within the past 18 months. Well #1 had a sustained yield
                               of 160 gallons per minute (gpm) and Well #2 had a sustained yield of 320
                               gpm_
                               Existing Storage Facilities

                               The Town presently has two water storage      tanks, a 500,000 gallon tank at
                               Tidewater Memorial Hospital and a 75,000 elevated tank in Town for a total
                               of 575,000 gallons of storage. The overflow elevations are the same for both
                               tanks.
                               Storage Requirements

                               The water supply and storage- requirements must meet the recommended
                               fire flow demands, plus normal daily operating storage needs, plus an
                               emergency reserve. The recommended fire flow duration for Tappahannock
                               (based on the "Guide for Determination of Required Fire Flows" from the
                               Insurance Services office) is 2 hours at a flow of 1,500 gpm, a total flow of
                               180,000 gallons. The recommended operating storage is 15 percent of the
                               average daily water consumption. For the 1987 average flow of 210 gpm, 15
                               percent of the average daily use is 45,360 gallons. The emergency reserve is
                               designated as. 25 percent of the total of these numbers of 56,340 gallons.

                               Based on these criteria, the re!Quire!d storage under normal conditions is
                               281,700 gallons. The available effective storage which can be provided with
                               existing facilities includes 575,000 gallons of storage plus' 480 gpm of
                               pumping for two hours (57,600 gallons), less the 45,360 gallons of daily
                               operating storage. The available storage is 587,240 gallons which more than
                               adequately meets the requirements.


              (%apter8                                                                                Page 3






                                                                                  Tappahannock Virginta


                            As a check, the same analysis was performed under "worst case"' conditions.
                            For the required storage, the same fire flow duration (180,000 gallons) was
                            used, but a maximum daily use of 305 gpm was used. Fifteen percent of this
                            maximum daily use is 65,880 gallons. The emergency reserve of 61,470
                            gallons was calculated in the same way. The required storage under worst
                            case conditions is 307,350 gallons. the available effective storage under
                            worst case conditions would include 575,000 gallons of storage plus only the
                            smaller well (No. 1) pumping 161 gpm for two hours (19,320 gallons) less
                            the 65,880 gallons of maximum daily operating storage. The available
                            storage is 528,440 gallons which is, even under worst case circumstances,
                            more than adequate.
                            Conclusions

                            1.    The Town's water usage rate varies from a    daily average rate of 210
                                  gpm to a maximum daily rate of 305 gpm.

                            2.    The Town has 575,000 gallons of water storage capacity.

                            3.    The required storage is 307,350 gallons under the "worst case"
                                  conditions.

                            4.    The Town's water storage facilities are adequate for the foreseeable
                                  future.


                            5.    The Town has two water supply wells, one with a sustained yield of
                                  160 gpm and one with a sustained yield of 320 gpm.

                            6.    The Town"s water supply is not adequate with the larger well out of
                                  service.

                            Recommendations

                            The Town should proceed with the drilling of a new well to supplement the
                            existing wells and to provide standby capacity when one of the existing wells
                            is out of service. The well should be located in the southern section of town
                            for the following reasons:

                               o The area is developing rapidly and the water demands are increasing.

                               e Both of the existing wells are located in the old part of Town and are
                                  'far removed from the area.



         Chap ter 8                                                                               Page 4






                                                                                            Compre.&wive. P(an


                                    0 There is one main transmission line that connects the existing well
                                        with this area. If the Town has a major line break, fl-ds areas will be
                                        out of water.


                                    *   The well will, be dose to 500,000 gallon storage tank.

                                 Town labor forces make connections and maintain the system and Federal
                                 loans and grants have been utilized for expansion of the system as needed.
                                 Daily water consumption is    approximately 200,000 gallons. Present well
                                 and storage capacity should be sufficient for the expected demand for some
                                 time unless industrial uses are greatly increased. New industrial
                                 connections may require an additional well.
                                 Solid Waste

                                 Presently, the Town of Tappahannock employs two full-time and two
                                 part-time personnel to operate the curbside and greenbox. collection of solid
                                 wastes (MPPDC, 1989). Generally, there is residential collection twice a
                                 week and commercial collection four times a week. Based on estimates by
                                 the Planning District Commission, there are about 3,000 tons of waste
                                 generated per year in the town. Seventy percent of this is from commercial
                                 and industrial sources (MPPDC, 1989). Collection costs the Town $55,000
                                 per year and disposal is to the Essex County land fill (MPPDC, 1989).

                                 Essex County operates its own landfill which has an estimated capacity of
                                 20 to 40 years (MPPDC, 1989, VPPSA, 198      '9). The County is currently a
                                 member of the Virginia Peninsula's Public Service Authority which operates
                                 as a regional solid waste authority. This Public ServiceAuthority will
                                 provide a regional approach for implementation of forthcoming waste
                                 management plans to target recycling rates of 10 % by 1991, 15 % by 1993, and
                                 25% by 1995. The draft regulations specify that each city, county town,
                                 regional, planning district,,or public service authority must comply with
                                 these regulations.

                                 A town and county rn   ay join in the implementation of the requirements,
                                 however, it is unclear exactly what role a Town may have in this Public
                                 Service Authority. In addition to the proposed recycling regulations, the
                                 Virginia Department of Waste Management has adopted regulations
                                 concerning the design and operation of landfill facilities. Ultimately the
                                 landfill and- recycling requirements will demand a greater level of solid
                                 waste planning and coordination for each locality. The higher level of
                                 sophistication will drive up the cost of solid waste collection and disposal
                                 for the Town of Tappahannock.
              Chapter8                                                                                  Page 5






                                                                                 Tappahannock Virginia


                           Two trucks collect trash throughout Tappahannock on a regular schedule
                           and disposal is done at the county landfill.
                           Safety and Emergency Services
                           The Sheriffs Department, located in Tappahannock, is staffed by the Sheriff,
                           five road deputies and four jailers. The department operates five
                           automobiles and one van, all of which are radio equipped. The department
                           cooperates with other counties in the Middle Peninsula in minimum
                           classroom and on-the-job training and in emergency services operations. An
                           addition to the original building houses six offices.

                           The Town operates its own Police Department which includes four
                           patrolmen in addition to the Chief who enforce the law within the Town
                           limits. Jailing is handled through the County Sheriff's department. The
                           department operates two radio-equipped patrol cars.

                           A single volunteer organization, the Tappahannock-Essex County Volunteer
                           Fire Department, serves Essex County from a new facility located in
                           Tappahannock. The Department of fifty-four members is equipped with a
                           250 gallon mini-pumper, two 500 gallon pumpers, two tankers - 1,500
                           gallon and 2,500 gallon, a C.D. pump, as well as one hook and ladder truck.
                           Traveling as far as 21 miles to either end of the County, with no satellite
                           stations, the fire department averages twenty calls per month consistently
                           throughout the year.

                           The County-Town rescue squad is composed of thirty-seven members
                           operating three rescue vehicles, a crash truck, and a boat. Office records
                           show an average of fifty-five calls per month during the 1983 calendar year.
                           The units are dispatched county-wide from the Town Office during office
                           hours and from the county Sheriff's Department all other times. This unit,
                           as well as the fire department, is financed primarily from private donations.
                           Library
                           The Essex Public Library is operated by the County in a facility located in
                           the old elementary school complex on Route 17 north of Tappahannock. The
                           library is open Monday 9:30 - 9:00; Tuesday through Friday, 9:30 - 5:00;
                           Saturday, 10:00 - 1:00.

                           The library contains 12,000 volumes and is mainly funded by the County.
                           Some additional funding comes form the Town of Tappahannock, the State,
                           Federal grant-in-aid monies and private donations.

         Chapter8                                                                                Page 6






                                                                                                                  Comprehensive P(an









                                                                             Table 8-1
                                           SEWAGE TREATMENT DEMAND AT BUILD-OUT OF PLANNED INTENSITIES
                                                                    TAPPA ANNOCK, VI GINIA
                                                                                                       Per Unit                    Total
                                                                                  Average              Demand                  Demand
                                Planning District (1)                 Acres    D.U.s/Acre      D.U.s      (GPD)                  (GPD)
                                Residential Suburban
                                   114 Mobile Home Units                  n/a           n/a      114        275                  31,350
                                    34 Platted subdivision lots           n/a           n/a       34        300                  10,200
                                    Unsubdivided parcels                  91              3      273        300                  81,900
                                Mixed Residential Cluster                 70              7      490        275                 134,750
                                General Commercial                        87            n/a       n/a     1,000 per acre         87,000
                                Industrial                         1    1721            n/a I    n/a I    JQ90-p-eracre 1       516,000
                                TOTAL                                                                                           861,200
                                NOTES
                                (1) Only includes planning districts with significant amounts of developable
                                  land rather than scattered infill.



                                Source: Red-/JM-tn. A--;g- 1991








                                        Sewer'

                                        Located south of the industrial park, the sewage treatment plant has a
                                        capacity of 400,000 gallons per day (gpd) with the ability to accept peak flows
                                        of 1 million gallons per day (mgd). Additional land is owned at the site for
                                        future expansion. Based on, current average daily flows of approximately
                                        200,000 gpd, the plant has an excess capacity of 200,000 gpd.

                                        One of the most critical planning issues for both the Town and the County
                                        is the provision of utility services, -especially sewer, to the County
                                        Development Service District adjacent to the Town. Table 8-1 estimates the
                                        sewer capacity that would be needed to service the incorporated areas
                                        according to the land use plan in Chapter 3. It is easy to see from the table
                                        that the remaining capacity of 200,000 gpd can be consumed by the build out
                                        of remaining undeveloped lands in the Town. Even if the growth that is
                                                                                                                                          7
                  Chapter 8'                                                                                                       Page-






                                                                                  rrappahannock Virginia


                            projected to occur during the next 20 years happens the treatment capacity
                            will be depleted. Consequently, the service of County areas around the
                            Town will ultimately require Town treatment plant expansion or other
                            alternatives during the planning horizon.
                            Government Services

                            Offices of the county government are located in Tappahannock in and
                            around the county courthouse. The Town utilizes the services of the county
                            building inspector for enforcing the Uniform Statewide Building Code
                            within the Town.


                            Town offices on Duke Street house the Tappahannock administrative offices
                            and police department. From these offices are administered all local
                            ordinances, water and sewer system operations, a day-time fire and rescue
                            dispatching, trash collection and all regular Town operations. Additional
                            space within this building is available for expansion, as needed.


                            GOALS AND OBJECTIVES

                            Goal:      Adequate and efficient public services and facilities shall be
                                      ensuredfor all Town citizens.,

                                      Objectives:

                                      The Town shall continue to maintain and improve its central water
                                      and sewer systems.

                                      The Town shall continually monitor its waste collection system to
                                      ensure that adequate service is provided to Town residents.

                                      The Town shall be conscious of the value of its library, rescue and
                                      fire services and encourage the support and improvement of
                                      them.


                                      The Town shall provide adequate police protection for its citizens.

                                      Insure that adequate water and sewer facilities are available to
                                      accommodate planned growth while assuring that public facilities
                                      are expanded in a manner commensurate with local financial
                                      capabilities in accordance with the Comprehensive Plan, Capital
                                      Improvements Program, and other relevant plans and policies.

          Chapter 8                                                                                Page 8






                                                                                             Comprehensive Plan


                                            Develop a mutually acceptable policy to address extension of
                                            utilities to County areas.

                                            Encourage recycling and reuse of refuse.

                                 IMPLEMENTATION, RECOMMENDATIONS
                                 There are an array of alternatives available for achieving the objectives
                                 relating to the provision of public services and facilities to accommodate
                                 growth. This section provides a brief discussion of the general techniques
                                 recommended. More specific recommendations are included as needed for
                                 individual public services.
                                 Intergovernmental Cooperation
                                 The Development Service District established in the county's comprehensive
                                 plan is based on the premise that new development can be serviced most
                                 efficiently if it is limited to areas in proximity to the Town of Tappahannock.
                                 The key to the success of a development service district in'the County is in
                                 the availability of services and capital improvements; therefore, the County
                                 has indicated through its comprehensive plan that it will work with the
                                 Town to provide adequate sewerage capacity, water, roads and schools in
                                 order for the district to accommodate anticipated County growth. It is
                                 essential, for example,that these areas have access to adequate sewer if they
                                 are to develop at the intensities called for in the County Plan, therefore, it
                                 will be imperative for the Town and County to begin meeting to establish
                                 County and Town expectations. Some of the issues to be resolved are:

                                        equitable funding mechanisms

                                        sources of revenue


                                        timetables for the extension of services

                                        safeguards to insure that existing and future Town residents have
                                        adequate services and facilities and that they in no way bear addition-
                                        al costs for the extension of services.
                                 Capital Programming
                                 The capital programming plan should be developed in conjunction with
                                 comprehensive plan and any agreements for utility extension made with the
                                 County. For example, a well designed capital improvements plan will
               Chapter8                                                                                  Page 9






                                                                                   TaPpahannock Virginia


                            provide for the orderly extension of sewer and water at a rate needed to
                            accommodate anticipated growth. The capital improvements plan will
                            provide the vehicle for the Town to set priorities and to make the most
                            efficient use of available funds. Capital programming is the tool which
                            should be used to guide growth toward predetermined areas of the Town
                            and County and at predetermined rates. The Town should use the capital
                            improvements program to guide developers in proffering conditions for the
                            provision of public facilities.
                            Voluntary Proffers
                            Voluntary proffers provide a direct means of obtaining the needed capital
                            improvements to service new developments. Proffers should continue to be
                            used to help defray the costs of expanding public services and facilities. Off
                            site improvements of public facilities and dedication of land but not cash
                            contributions can be used to offset the impacts of a proposed development
                            associated with a rezoning. (Section 15.1-491.2 Code of Virginia.)
                            Fiscal Impact Analysis
                            The development of a per unit fiscal impact of residential and commercial
                            development would provide a rational basis on which to accept proffers
                            from developers. It is intended that the fiscal impacts be calculated for water
                            and sewage facilities, parks, roads and schools, as well as, for more public
                            welfare needs such as police, fire, and emergency medical facilities. It is
                            'intended that the impacts be calculated based on accepted methodologies
                            and following the standards described below.

                            Generally, the court decisions upholding impact fees or development
                            exactions require that they meet a three-part standard. First, new
                            development must demand new capital facilities. Secondly, a rational nexus
                            or close relationship must exist between this new development and the need
                            for these new facilities. Finally, there must be some assurance that sufficient
                            benefit accrues to the particular development that pays the fees. These tests
                            are similar to the standards set forth by the Virginia General Assembly
                            (Section 15.1-491.2 Code of Virginia) for voluntary proffering. Virginia
                            courts have upheld the use of the proffer system when the above referenced
                            standards are adhered to.

                            Though impact fees are not expressly authorized for Tappahannock, the
                            detailed impact analysis will establish the basis for such fees once the Town
                            is enabled by the State legislature. Tappahannock may now use, to some
                            degree, impact fees for water, sewerage and drainage control. (Section
                            15.1-491.2 Code of Virginia.) Recognized fiscal impact assessment
         Chap ter 8                                                                               Page 1






                                                                                              Comprehensive Pfan


                                 techniques agreed upon by the Town and County will offer a basis for
                                 County contribution for the expansion of facilities and/or' extension of
                                 services to county areas.
                                 Adequate Public Facilities Standards
                                 Adequate facilities standards will help control the development process by
                                 showing that sufficient infrastructure and services are present or will be
                                 provided. These standards can ensure that land development coincides with
                                 the location and timing of capital facilities. Standards for water, waste
                                 treatment, transportation, and educational facilities guide the development
                                 review process. "Acceptable" levels of service as established by the Town
                                 will serve as a basis for determining the impacts of development and for
                                 programming new.capital facilities.

                                 When a development is proposed, the adequacy of existing facilities should
                                 be considered for fire suppression, roads, schools, sewerage, storm drainage,
                                 and water. Minimum standards to determine adequacy need to be
                                 established for Tappahannock. For example, one of the criteria for
                                 determining the adequacy of sewer is that the interceptor is adequate to
                                 handle the peak flows calculated by the methodology set forth by the Town.
                                 The County should consider dividing. itself into policy areas which have
                                 different levels of service required.

                                 Though it is recognized that Tappahannock is not currently enabled to deny
                                 approval of subdivisions based on the lack of adequate public facilities, the
                                 State law (Section 15.1-466 E) does provide for the means of achieving

                                 adequate facilities objectives voluntarily. The Town should pursue this
                                 technique in light of efforts by a growing number of Northern Virginia
                                 counties to gain the authority to more positively tie development approvals
                                 to.the availability of public facilities.
                                 Special   Taxin  g Districts
                                 Special taxing districts could be -used by the      County to provide certain
                                 additional, public services for an area benefitting exclusively from such
                                 services. * Essex County has the authority under the Virginia Water and
                                 Sewer Act to create Public Service Authorities for the purpose of providing
                                 any or all of the utilities and services described in the Act. This option
                                 exercised by the County would mean that the Town would deal directly with
                                 an authority as opposed to County government.


              Chapte'r8                                                                                    Page.11.






                                                                                   Tappahannock Virginia


                            Annexation

                            Annexation is a viable way to serve areas adjacent to the Town with
                            traditional municipal services. Application can be made to the Virginia
                            Comn-dssion on Local Government for the requisite hearings and processing.
                            If the County and the Town are in agreement on the area and terms of
                            annexation there are several more streamline methods of annexation
                            available to the Town. Legislation currently under study by the Virginia
                            Municipal League and the Association of Counties would allow towns under
                            10,000 population to annex by ordinance. If this legislation passes,
                            annexation will become a very workable tool for the County and the Town
                            to service areas around Tappahannock.

                            The following annexation options are available- to Tappahannock:

                                Boundary Line Adjustment by Agreement - (Article 2, Chapter 24,
                                Title 15.1) Amy two contiguous localities are eligible to effect a boundary
                                adjustment by jointly petitioning the circuit court. There are no restric-
                                tions as to the size or character of the land area involved. This was used
                                by Kilmarnock and Lancaster County about 1984.

                                Agreements Defining Town Annexation Rights - (Article 1. 1, Chapter
                                25, Title 15.1) Any town located in a county which is not immune from
                                city initiated annexations may enter into an agreement with its county
                                defining the Town's future annexation rights. The agreement must
                                provide that upon formal adoption by the town and county, the town
                                will permanently renounce its right to become a city. The agreement
                                must permit the town to annex at regular intervals by the adoption of a
                                municipal ordinance. This was used by Warsaw and Richmond County
                                about1986.


                                Voluntary Settlement of Annexation - (Chapter 26.1:1, Title 15.1) Any
                                city, county or town is eligible to enter into an arrangement with any
                                other local jurisdiction to settle matters related to annexation,
                                governmental transition, or immunity. Once the terms of the agreement
                                have been negotiated by the local governing bodies, the proposed settle-
                                ment must be submitted by the Commission on Local Government for
                                review. In its review the Commission must consider whether the
                                proposed agreement is "in the best interest of the Commonwealth,"'
                                which also encompasses the best interest of the affected localities.



          Cfiapter8                                                                                Page 12






                                                                                              Comprehensive Pfan


                                     Municipally-initiated Annexation - (Article 1, Chapter 25, Title 15.1)
                                     Any city not located in a county immune from city-initiated annexations
                                     or any town may annex territory from an adjacent county under the
                                     provisions of this article. Prior to petitioning the circuit court for review
                                     of a proposed annexation action, the municipality must first notify the
                                     Commission on Local Government of its intention to seek the annexation
                                     of territory from an adjacent county.

                                     Citizen-initiated Annexations - (Article 1, Chapter 25, Title 15.1)
                                     County voters or property owners may petition the circuity court to have
                                     their property annexed to an adjacent city or town. Citizen petitions
                                     .requesting annexation of territory to an adjacent municipality must
                                     contain the signatures of 51 percent of the qualified voters or property
                                     owners in the annexation area.




                                 In summary, services are localized within the Town limits and are
                                 convenient to citizens. As population increases, however, additional
                                 employees and departments will be necessary and additional
                                 departmentalization may be practical. Coordination with county programs
                                 may also provide more effective and efficient delivery of services as they
                                 become more complex.



















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                                                                                     R- Comprehensive Pfan
                                Chapter 9

                                RECREATION

                                BACKGROUND AND ANALYSIS

                                       appahannock does not own or manage any recreational facil        ities for
                                       the use of the Town residents. Future land use plans identify public
                                       and semi-public areas for a neighborhood park system and waterfront
                                access sites for the public. The county owned sites are comprised of public
                                schools and a public swimming pool, as well as the library and government
                                buildings.

                                Schools are located primarily in the northern end of the Town. The high
                                school is located on Airport Road, the middle school at the end of Marsh
                                Street, and the elementary school adjacent to Route 17. Although these
                                facilities form the majority of Tappahannock's public use facilities, they are
                                not connected by a non-vehicular transportation facility, such as a bikepath
                                or designated walking trail.

                                Water access is presently provided by two public boat ramps. One ramp is
                                at the end of Prince Street, having poor access, inadequate parking, and no
                                pier facilities. The other ramp is located on Hoskins Creek. The Hoskins
                                Creek facility has both ample parking and a docking area; repairs to the dock
                                are needed.


                                No public beach access to the Rappahannock presently exists in the Town.
                                Other public access, if available, cannot be identified at this time. All public
                                use facilities exist on the north side of Town, with none south of Hoskins
                                Creek. Publicly owned land exists at the base of the Thomas Downing
                                Bridge between the overpass and Prince Street, but is presently
                                undeveloped.

                                Pilings from an historic wharf provide evidence of previous public access to
                                the Rappahannock riverfront This area however, has limited potential for
                                a waterfront park facility.

                                The Town presently owns land and improvements along Route 360/17. A
                                portion of this property is currently leased to the Virginia Department of
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                                                                                 Tappahannock Virginia


                           transportation for local office space. This land presently extends to Hoskins
                           Creek, and could provide future recreational access. No land use plans
                           presently exist which include public open spaces or parks south of Hoskins
                           Creek. The presence of Hoskins Creek through town offers unique potential
                           for a community or regional park site.

                           Privately owned recreation areas have been identified within the Town, and
                           nearby in the surrounding region. Numerous marinas, a golf course,
                           overnight camping, and a private membership park are within close
                           proximity to Tappahannock.
                           Waterfront Park

                           The Town recognizes the opportunities for public shoreline enjoyment may
                           be made available due to the proximity of the Rappahannock River. The
                           following program for waterfront park development is presently under
                           consideration at the foot of Prince Street.


                           Potential Waterfront Park Development actions would include:

                              ï¿½ Acquire 2 parc   els between bridge and condominiums for develop-
                                  ment as a passive urban park

                              ï¿½ Provide limited parking for park

                              ï¿½ Relocate oil facility away from waterside, and recover land as park
                                  extension with 2 parcels near bridge

                           Additional Activities Envisioned with this Pr=osed Park Concko

                                  Farmers market, produce market, seafood emporium

                                  Festival event for "kick-off" and annual follow-up

                                  Antiques "Alley" in downtown

                                  Dock activities: crabbing, fishing, walking, itinerant boat
                                  use

                           While opportunity for waterfront park development exists in this location,
                           the site size is limited and the location of nearby residents suggests use
                           should be limited to passive recreational offerings. This park concept is
                           further discussed in the implementation recommendations of this sections.
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                                                                                         Comprehensive Plan


                               Assets


                                  9 Many historic structures and landscape features of high aesthetic
                                      value throughout the Town.

                                  *   The Rappahannock River bordering Town holds significant promise
                                      for future access, vistas, active recreation, marine activity, etc.

                                      Presence of Hoskins Creek meandering through Town offers unique
                                      potential natural setting for passive recreation and aesthetic enjoy-
                                      ment.


                                      The upland area west of Town at the head of Hoskins Creek offers
                                      future potential for a park facility.

                                      The Town Dock on Hoskins Creek meets current access demand for
                                      boat use and could potentially be expanded and improved for mixed
                                      recreational use.

                                      Presence of commercial marina immediately north of Town suggests
                                      possible downtown/ wharf boat link for visitors by water or potential
                                      use of part of the Marina site as a small waterfront park facility.

                                      Town history is strongly linked to the waterfront and creeks. The
                                      history suggests possible festival or- special event focus to increase
                                      tourism into the downtown cornrnercial district.


                               Problems Identffied


                               1. Lack of parks and recreation facilities for Tappahannock.

                               2. Lack of publicly owned land s  'outh of Hoskins Creek, in the downtown
                                  and in the far western reaches of the Town.

                               3. Lack of pedestrian access between public spaces, particularly evidenced
                                  by the Route 360/17 safe-crossing problems and the airport crossing
                                  conflict between the middle and high school sites.

                               4. Lack of neighborhood parks denies the Town an important motivational
                                  tool for achieving developer-associated improvements for recreation in
                                  the Town comprehensive plan and zoning ordinances.-


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                                                                                 Tappiahannock Virginia


                           GOALS AND OBJECTIVES

                           Goal:      Develop and improve recreation services, facilities and programs
                                      for the citizenry of Tappahannock.

                                      Objectives:

                                      Provide recreation programs in association with a system of
                                      neighborhood parks, pocket parks, public lands, playgrounds and
                                      open spaces.

                                      Provide public access to the waterfront on the Rappahannock
                                      River or on Hoskins Creek or both.


                           Goal:      Provide safe public access for the residents of Tappahannock to
                                      public lands, government buildings, schools and open spaces and
                                      to a system of parks and facilities for recreation.

                                      Objectives:

                                      Designate an urban trail system in the Town of Tappahannock
                                      utilizing the existing street system.

                                      Provide expanded public access to public lands and open spaces
                                      for those areas of town not connected by the existing street system
                                      and for future development in the southern part of Town via an
                                      expanded trail loop system.

                           Goal:      Provide town residents with adequate recreation and open space
                                      facilities.

                                      Objectives:

                                      Develop an urban park at the end of Prince Street as part of a
                                      Central Business District revitalization effort.

                                      Encourage development of other neighborhood parks and
                                      playgrounds.

                                      Explore possibilities for the acquisition, development and main-
                                      tenance of waterfront acreage for public use.


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                                                                                        Comprehensive Pan


                                         Require developer provision of recreation and open space areas
                                         adequate to serve the needs prompted by subdivision and residen-
                                         tial development.
                               Considerations for Park Development
                               I .Parks system should be explored that relates to the downtown waterfront
                                  park.

                               2. Existing schools should be incorporated into park planning for programs
                                  and facilities development.

                               3. A joint Town/County Park Authority should be explored as one ap-
                                  proach to planning for future park facilities.

                               4. Every effort should be made to relate the downtown dock/park com-
                                  ponent to the historical record of wharves or docks for accuracy in
                                  restoration, if possible and practical..

                               5. Early park support and visibility could be enhanced by the introduction
                                  of an organized festival event, such as the Urbana Oyster Festival, and
                                  supported by service organizations. Food sales, proceeds, and commis-
                                  sions, would be associated with vendor activity. A parade, contest, or
                                  water competition would complete the 'Water Day" event.

                               6. Another boat trip venture, of a local nature and brief in duration, might
                                  be introduced and linked to a historical Town walk.

                               7. Seek funding mechanisms required for the downtown waterfront park
                                  development as a cooperative effort between the Town and Adkins Oil
                                  Co.


                               IMPLEMENTATION RECOMMENDATIONS

                               1 .Designate existing publicly owned lands shown on the land use planas
                                  park lands/open space lands.

                                  These siteswould include the elementary, middle and high schools, the
                                  Dock Street dock, the parcel under lease to VDOT, the government
                                  building sites and the Downtown statue, as well as the conservation lands
                                  associated with Hoskins Creek.

                               2. Designate and develop a waterfront park facility.
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                                                                                TaPPahannock Virginia


                           3. Establish a program to upgrade all park sites for appropriate public use
                              as recreation facilities.
                           Enabling a Parks and Recreation Authority
                           A Parks and Recreation Authority can be developed to carry out the task
                           associated with a system of open spaces for public use. Among the
                           structures to consider for implementation are a Parks Authority, a Parks
                           Commission, and a Parks and Recreation Department.      A Parks Authority,
                           whether it is a Town Authority or a Joint City/County Authority, is the
                           political structure that sets rules and regulations, establishes development
                           priorities and funding mechanisms, and provides for comprehensive
                           management and overall system maintenance. A Parks Commission is
                           comprised of community leaders and representatives from the Town
                           citizenry who are tasked with development of specific actions, programs,
                           and land use priorities that impact upon delivering recreation for the
                           community at large. A Parks and Recreation Department would be
                           responsible for the day-to-day operation and maintenance of facilities and
                           for programming events and activities.
                           Utilizing Publicly Owned Land and Facilities
                           Given the history of excellent cooperation between Tappahannock and Essex
                           County, it seems logical to presume that this cooperation will certainly
                           extend to County-owned land located in the Town. For Tappahannock, this
                           suggests with a minimum of public expense that the Town can anticipate
                           reasonable access to adequate publicly owned land to form the basic "spine"
                           of a system of parks and open spaces for public use.

                           The Town owns the Dock Street dock, the pron-dnent statue downtown as a
                           street focus, and the parcel currently leased to VDOT near Hoskins Creek.
                           While the Town holds other properties as well, these parcels appear most
                           suitable for inclusion in a system of parks and open spaces.

                           The County operates the three schools, as well as the library and the
                           downtown government buildings and grounds, all of which are suitable for
                           inclusion in the proposed system.

                           The airport facility has strong potential for a mixed-use designation, which
                           could in the future make some portion of that land area available for use in
                           a system of open spaces and parks.

                           The considerable wetlands areas that adjoin Hoskins Creek provide an
                           extremely rare and exciting conservation land area, highly suitable for
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                                                                                             Comprehensive Plan.


                                inclusion into the proposed open space system. This large area presents a
                                great opportunity for use as a passive observation area for wildlife and the
                                natural environment, as well as an excellent location for pedestrian use and
                                access via the urban trails system.
                                Leasing/Acqui ring Additional Public Lands
                                While the inventory of publicly owned land in Tappahannock is substantial,
                                a.comprehensive and balanced system of parks and open spaces implies the
                                need for additional lands. This is particularly acute in the case of the need
                                for a waterfront access park facility, downtown, and similarly important in
                                the Town at or south of Hoskins Creek where no public lands are currently
                                held except for the leased VDOT land.
                                Waterfront Park Facility Development
                                The property immediately south of the Downing Bridge at the end of Queen
                                Street offers potential for a waterfront park site. Specifically, there are two
                                small lots of green open space between the waterfront and eastern edge of
                                the existing residential use, bounded on the south by the Atkins Oil property.
                                Acquiring the described open space could serve to provide access for the
                                public to the waterfront, and potentially serve as a vital interest component
                                'for a revitalized downtown commercial district. However, the site size and
                                configuration will limit parking opportunities and water depths will
                                preclude development of boating facilities. Recreational offerings that
                                should be provided include passive uses such as picnic facilities, pedestrian
                                seating and opportunities for enjoying views of the waterfront. More
                                intensive uses on the site could be disruptive to the areas peaceful residential
                                character and are not recommended.

                                Caution should be exercised before acquiring land, particularly the oil
                                facility/tank storage area. Besides being a good location of a small urban
                                waterfront park the oil tanks posse a potential threat to the environment vis
                                a vis the Rappahannock River immediately adjacent to the site and the
                                danger of an explosion or fire vis a vis the residential units that surround the
                                site. A major spill or fire at the facility could have a catastrophic effect on
                                adjacent area. Viewed in this context, the owner of Adkins Oil should
                                perceive the company's liability at this location and seriously consider the
                                advantages of re-locating the facility. The responsibility for the cost of
                                relocation should be borne by the owner; however, the Town may work with
                                the owner to identify an appropriate alternative site in the Town. Should
                                the opportunity arise, the Town may also consider a land swap and
                                development concessions such as building an access road to a new site or
                                providing technical assistance to the owner in the re-location process. Prior
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                                                                                 Tappahannock Virginia


                           to taking title to the oil facility site, the Town should require that a full
                           environmental analysis be conducted to determine if the site is polluted in
                           any way and thus avoid any public liability for clean-up.

                           As an alternative or in addition, the Town may consider locating a passive
                           waterfront park on portions of the June Parker Marina property. The
                           existing marina could complement public recreation offerings and at the
                           same time afford an opportunity to enhance the visual quality of this entry
                           point to the town by creating a town gateway statement through park design.
                           Improvements to Land and Facilities for Park Use
                           While designation of publicly owned lands and the dedication of leased or
                           acquired properties together provide a network of parks and open spaces,
                           the facilities appropriate for a parks system will not necessarily be
                           distributed evenly or satisfactorily given the current status of each parcel.
                           Improvements to the sites and the addition of equipment and facilities is
                           essential to meet the needs of the community in recreation programming.

                           Depending on the specific site and the'programmed use, essential
                           improvements would include:

                           1 ,Safety considerations: drainage, improved sod or groundcover, safe
                              sidewalks, curb ramps, parking surfaces, traffic control devices for
                              pedestrians, bicycle racks, and lighting.

                           2. Use consi  derations: signage, traffic flow pattern, traffic barriers,
                              benches, tables, trash cans, waste spigots, lights, bathrooms, swing sets,
                              jogging and exercise trail stations, and storage buildings.

                           3. Aesthetic considerations: trees for shade and definition, shrubs for space
                              control definition, fences, planter boxes, flowers for beauty, hedges,
                              preparation of vistas or views, etc.

                           The input of the citizenry in Tappahannock via the Parks Commission would
                           provide valuable guidance for Town Leaders in assessing and inventorying
                           existing facilities and developing a capital improvements budget for long
                           term development and improvements.






        Chapter9                                                                                 Page







                                                                                               Comprehensive Pfan
                                  Chapter 10

                                  DOWNTOWN REVITALIZATION AND
                                  URBAN DESIGN.
                                  0
                                          ne of the key issues of the Tappahannock Comprehensive Plan is the
                                          enhancement of the visual appearance of the Town. This chapter
                                          includes a definition of the urban design districts and their attributes
                                  which can mean many different things to different members of the Planning
                                  Conu-nission and residents. It will also identify the -alternative methods
                                  available to the Town for protecting or enhancing community appearance
                                  and the legal basis for doing so. It is the intent of this chapter to focus on the
                                  Town's appearance by -more clearly defining the Town's urban design
                                  districts and by evaluating the elements which can influence the appearance,
                                  and by offering a framework by which the Town's character will be, and can
                                  be preserved or enhanced.

                                  BACKGROUND AND ANALYSIS
                                  Through observation and evaluation, the three distinct design districts
                                  identified by the VCU plan were, found to be appropriate for assigning
                                  different levels of treatment.


                                  1. The Southern Business Corridor


                                  2. The Northern Business District


                                  3: The Historic District

                                  The Southern Business Corridor is comprised of two miles of commercial
                                  land use along Route 360/17 in the southern section of Tappahannock south
                                  of Hoskins Creek. The Northern Business Corridor is situated along Route
                                .360/17 between Hoskins Creek and the intersection of 360/17 in the
                                  northern section of town. The historic (business) district extends from Duke
                                  Street north to Queen Street and Route 360/17 west to the Rappahannock
                                  River.



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                                                                                    Tappahannock Virginia


                           The Southern Business Corridor

                           The Southern Business Corridor is easily identified by the commercial uses
                           which incorporate numerous curb cuts into the road, front parking, and large
                           signage. The commercial land use is geared toward convenience'services
                           for people passing through Tappahannock, and retail stores that attract
                           customers both from the Town and surrounding counties. Since the
                           Southern Business Corridor is automobile oriented, there exists large open
                           spaces associated with the parking lots which contain little or no vegetation.
                           The convenience stores oriented closer to Route 360/17 attract a number of
                           customers for a short period time., Other stores are located further back and
                           are oriented for customers spending longer periods of time. The recently
                           constructed buildings in the Southern Business Corridor are one or two
                           stories, large in scale, and built of concrete, metal, brick, and glass.

                           In analyzing the Southern Business Corridor it becomes apparent that two
                           major problems exist. Numerous signs at different scales and styles tend to
                           confuse motorist looking for a particular business. The great number of curb
                           cuts onto Routes 360/17 create traffic conflicts due to the high volumes of
                           vehicular traffic. The lack of vegetation gives the area a cold and utilitarian
                           feeling.

                           It is important to resolve these conflicts since this design areas is where
                           tourists develop their first impression of Tappahannock while traveling
                           north along Route 360/17. In addition, this section of Town is economically
                           important because it draws people from surrounding areas for shopping.
                           The Northern Business Corridor

                           This design district is different from the Southern Business Corridor because
                           the road narrows, the buildings are smaller in scale and are closer to the road.
                           Entering into the area from the south across Hoskins Creek bridge provides
                           the first view of water and activities associated with it including Captain
                           Thomas's Cruise line and commercial crabbing boats. The bridge acts as a
                           gateway into the Norther Business Corridor from the south, while a second
                           gateway is formed by the stop light at the intersection of Route 360 and Route
                           17.

                           The signage is comprised of different sizes and styles; the lighting is oriented
                           to the automobile. The sidewalks are narrow, close to the street, and are in
                           a state of disrepair. All these problems combine to create an uncomfortable
                           environment for the pedestrian.


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                                                                                            Comprehensive Plan


                                The Historic District

                                Tappahannock has a rich development heritage from both a historical and
                                an architectural perspective. Tappahannock has a number of structures
                                which have been identified as being historically significant, the majority of
                                which are located in the Old Town section around the Courthouse green.
                                Many well preserved colonial structures are found throughout this district.
                                The Old Debtor's Prison on the Courthouse green was built before 1769 and
                                now serves as the Essex Treasurer's Office. Beale Memorial Church on the
                                Courthouse Square contains the original walls of the 1729 Courthouse.
                                Anderson House on the St. Margaret's campus is located on one of the oldest
                                occupied tracks in Tappahannock, the Robert Coleman property-

                                While this heritage is only one of several things that attracts people to
                                Tappahannock, it is too often taken for granted. As with other aspects of
                                community- character, the cultural richness of the Town is a commodity that
                                cannot be replaced once destroyed. Historic areas should not be viewed as
                                mere attractions for tourists, but as elements which enrich the experience of
                                living in a community and make it more attractive for others. It is clear that
                                the American work force now resists moving to communities that they
                                perceive to be of low quality. The preservation of an area's historical heritage
                                is an important. economic development strategy because of its significant
                                positive contribution to the quality of the community.

                                In general, the buildings and structures located within the historic district
                                reflect a colonial design. The main street within the historic district is the
                                portion of Prince Street east of Route 360/17. Two significant structures
                                may be found within this section of Prince Street. One is a monument
                                dedicated to Civil War soldiers from the region and other is the Essex County
                                Courthouse Complex. Significant architectural examples can also be found
                                on upper Prince Street to Falconia Circle and in Little Egypt.

                                The character of the historic district does not relate well with the character
                                of either the northern or southern business corridors. Opportunities exist to
                                carry the colonial theme to the highway corridor.

                                One of   the concerns identified within the district is that many of the
                                structures along Prince Street have either been altered or constructed in such
                                a way that the colonial character is lost.' Also detracting from the historic
                                character is the inconsistent size and style of the signs used by the
                                commercial establishments. Finally, there exist no strong or consistent
                                visual linkages from one side of Prince Street to the other.

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                                                                                  Tappahannock Virginia


                           One of the opportunities offered within the Town's historic district is that
                           the structures within the district are designed predominately in colonial
                           architectural style. One of the most notable of these structures is the Essex
                           County Courthouse and Government -complex. The lawn which is
                           surrounded by the complex forms a pleasing green space within the
                           surrounding urban townscape.

                           The historic district contains many positive physical aspects. A vista of the
                           Rappahannock River or the monument can be observed when standing
                           along Prince Street and looking east towards the river or west towards the
                           monument. The river and the monument also form the termini of an axis
                           formed between the two. The visual element of the river end of the axis could
                           be enhanced.


                           Although the style of several buildings within the historic district may not
                           be the same, all structures blend well in terms of texture and color. Brick is
                           the predominant material used to face the buildings. In addition to brick,
                           wood siding may also be found. The colors of the paint used are also
                           complementary, consisting mainly of warm earth tones such as tan, soft grey
                           and white.

                           The historic district also contains many positive yet subtle features that are
                           not readily identified but add to the picturesque atmosphere of the district.
                           The chiming of the bell's in the courthouse complex along with the historic
                           markers on the buildings serve to create a sense of time and place for the
                           residents and visitors of the area.

                           The enhancement of the historic district is important for Tappahannock
                           because of its regional history. A historic district is utilized for several
                           purposes. Presently, it is an activity center for both local citizens and
                           regional visitors and as such, it can attract tourism into Tappahannock which
                           will help to strengthen the economic base of the community. Perhaps most
                           importantly, it gives the Town and its inhabitants a unique sense of place
                           and identity.









        ChapterlO                                                                                  Page 4






                                                                                           Comprehensive P(an


                                GOALS AND OBJECTIVES

                                Goal:     To maintain the -mix of businesses which compliment the
                                          downtown character.


                                          Objective:

                                          Encourage the location of new businesses in the     downtown area
                                          while maintaining the present businesses.

                                Goal:     Enhance the character of the historic district.

                                          Objectives:

                                          Encourage the renovation of building facades where appropriate
                                          within the historic district

                                          The identification and preservation of historic landmarks shall be
                                          encouraged within the Town.

                                          The removal or damaging of Historic buildings shall be dis-
                                          couraged. and the restoration or improvement shall be en-
                                          couraged.

                                          Considerations of compatibility shall be given to areas adjacent to
                                          historic areas or buildings when proposed for conversion to uses
                                          which would damage or destroy the character of such historic
                                          areas.


                                          Develop design standards for the historic district for all new
                                          construction and exterior renovations to existing structures.

                                          Implement programs for the improvement of window and
                                          awning treatments to all structures within the historic district and
                                          the Northern Business Corridor.


                                Goal:     Enhance visual elements which wouldgive the Town identifiable
                                          boundaries.

                                          Objectives:

                                          Implement programs to improve and maintain the landscaping in
                                          all public places.
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                                                                                      Tappahannock, Virginia


                                        Provide continuity in color and style of all street furniture.

                                        Implement standards for signage for all business establishments
                                        within the Town.


                                        Strengthen the visual image of the Town's gateways located at
                                        Hoskins Creek and the monument within the historic district.


                                        Create a visual gateway in the northern section of the Town.

                                        Apply the positive architectural and other design elements which
                                        are found in the historic district to the Northern Business Corridor
                                        and the Southern Business Corridor where applicable in order that
                                        a sense of continuity exists within the Town.


                             IMPLEMENTATION RECOMMENDATIONS

                             There is little debate that the built environment plays a significant role in the
                             quality of life a community enjoys. The purpose of the urban design element
                             of the plan for Tappahannock is to provide a vision for the future and a
                             framework for improving the Town"s man-made environment. Such a
                             vision includes well trimmed and landscaped public areas which enhance
                             the style, color and texture for the surrounding buildings. The buildings
                             themselves should complement one another and reflect the mark of history
                             on the Town in their design. For example, the historic district represents
                             Tappahannock's colonial past; the Northern Commercial Corridor, through
                             it eclectic architectural style, reflects the Town's gradual economic growth
                             and expansion.         The Southern Commercial Corridor reflects
                             Tappahannock's current regional economic importance through its newer
                             and more modem architectural style.

                             Furthermore, the tourist visiting Tappahannock, should be able to recognize
                             the boundaries of the Town by gateways that visually welcome them into
                             the Town. Gateways also convey to the tourist that the Town is comprised
                             of several different districts, each with its own identify and importance.

                             In short, the purpose of the urban design plan for Tappahannock is to
                             reinforce the town's regional and historic importance as well as make the
                             Town a more aesthetically pleasing place.




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                                                                                           Comprehensive Plan


                                The Central Business District

                                The Central Business District encompasses the historic commercial area of
                                the Town fr 'om the waterfront back to adjacent residential areas that compose
                                the older residential neighborhoods of Tappahannock. Any effort to
                                improve the visual quality of this area must of necessity deal with economic
                                realities, i.e., the competitive nature of the large commercial centers located
                                in the Town and the impact they have had on the economic viability of the
                                older commercial district.

                                Revitalizing this area will require a concerted effort to attract shoppers and
                                visitors to the downtown to pur    'chase goods and services that cannot be
                                obtained in the commercial centers, Le., specialty items. Making the
                                downtown an especially attractive area for visitors can best be achieved by
                                capitalizing on the positive qualities of this area, e.g., the waterfront, the
                                historic charm and the contrast it presents to the glitz of modem centers that
                                strip U.S. 17.

                                In addition, the CBD must function well, as shoppers and tourists will not
                                be attracted to the area if it is congested and lacks adequate and convenient
                                parking. . Street and intersections that provide local access must be managed
                                so as to permit convenient access to the shops and other attractions of the
                                downtown.

                                Finally, improving the downtown willrequire a commitment on the part of
                                the Town and private sector, i.e., landowners.'- residents and merchants to
                                undertake a program of improvement.

                                Working with representatives of these groups the Town should undertake
                                a Central Business, District planning effort. The Central Business District
                                Plan should address ways of revitalizing the CBD and include an action
                                agenda for immediate implementation by both the private and public
                                sectors. Among other things the Plan should include a detailed
                                development evaluation and plan for increasing public access to the
                                waterfront startingwith development of the recommended Prince Street
                                Park.

                                Gateways

                                Gateways designating Tappahannock's Town limits should be erected along
                                Route 360 /17 in the southern portion of the Town, and along Route 17 in the
                                northern section. The gateways should consist of signs which located within
                                the median with appropriate landscaping. Such landscaping including low
              Chapter 10                                                                                Page 7






                                                                                     Tappahannock Virginia


                             plants and flowers in front of the signs and taller deciduous and evergreen
                             trees behind.

                             The Southern Business Corridor

                             The visual elements of the Southern Business Corridor should be enhanced
                             in several ways. Several varieties of trees should be planted in the median
                             strip which will narrow the field of vision for those traveling on Route
                             360/17. By narrowing the field of vision, the traveler will be able to focus
                             on whatis ahead of him/her and will be less distracted by the intense activity
                             which is surrounding them. Furthermore, the space in which people are
                             moving is made smaller which identifies more closely with the general
                             character of a small town. Help in enhancing this corridor may be achieved
                             through a highway corridor overlay zone (see Chapter 3) and the
                             Development Appearance Standards set forth below.
                             Development Appearance Standards

                             All future development within the identified urban design districts, except
                             for single-fan-dly homes, should be subject to design review for compliance
                             with mi himum development appearance standards. These minimum
                             standards that should be achieved are performance standards rather than
                             inflexible and stringent criteria. The intent of these performance standards
                             is to promote quality development that will compliment the community
                             character of Tappahannock. One of the reasons for implementing these
                             standards is, of course, to positively influence development aesthetics.
                             However, this objective is justified by the greater goals of protecting and
                             enhancing real estate values, fostering of civic pride, and improving the
                             overall investment climate within the Town.

                             These standards are not intended to restrict imagination or development
                             creativity, but rather, to assist in focusing on development design principals
                             which should result in enhancing the visual appearance of the built
                             environment in Tappahannock. The development appearance standards
                             relate to such factors as: relationship of buildings to the site; relationship of
                             existing buildings and site to adjoining areas; landscape and site treatment;
                             building design; signs; and, maintenance. These standards should not be
                             considered cost prohibitive or overly restrictive since they embody common
                             sense design principles which were traditionally employed throughout the
                             country prior to the advent of post-war suburbanization.

                             The following are recommended development appearance standards for
                             future multi-family, comm    .ercial and industrial development in identified
                             urban design districts of Tappahannock:
          ChapterlO                                                                                    Page 8







                                                                                         Comprehensive Plan


                               Relationship of Buildings to Site

                                      The site should be planned to accomplish a   desirable transition with
                                      the streetscape and to provide fo'r adequate planting, safe pedestrian
                                      movement, and screened parking areas.

                                      Site -planning in which setbacks and yards are in excess of zoning
                                      restrictions is encouraged to provide an interesting relationship be-
                                      tween buildings. Buildings in the downtown and community centers
                                      are encouraged to minimize front setbacks to enhance the traditional
                                      street/building relationships typically found in rural villages

                                      Parking areas should be treated with decorative elements, building
                                      wall extensions, plantings, berms, or other innovative means so as to
                                      screen parking areas from public ways.

                                      Without restricting  the permissible limits of the applica ble zoning
                                      district, the height and scale of each building should be compatible
                                      with its site and existing (or anticipated) adjoining buildings.

                                      Newly installed utility services and service revisions necessitated by
                                      exterior alterations should be placed underground wherever pos-
                                      sible.


                               Relationship of Buildings and Site to Adjoining Area

                                      Adjacent buildings of different architectural styles should be made
                                      compatible by such means as screens, site breaks, and materials.

                                      Attractive landscape transition to adjoining properties should be
                                      provided.

                                      Harmony in texture, lines, and masses should be required. Monotony
                                      of design should be avoided.

                                      Adjacent incompatible. land uses should be screened from one
                                      another by landscaping, berms, walls, and fences.

                              Landscape and Site Treat3nent

                                      Where natural or existing topographic patterns contribute to beauty
                                      and utility of a development      they should be preserved and

             Chapter 10                                                                              Page 9







                                                                                    Tappahannock Virginia


                                   developed. Modifications to topography should be permitted where
                                   it contributes to good appearance, or where it is necessary.

                                   Grades of walks, parking spaces, terraces, and other paved areas
                                   should provide an inviting and stable appearance for the pedestrian.

                                   Landscape treatment should be provided to enhance architectural
                                   features, strengthen vistas and important axes, and provide shade.

                                0  Unity of landscape design should be achieved by repetition of certain
                                   plant varieties and other materials and by coordination with adjacent
                                   development.

                                o  Plant material should be selected for interests in its structure, texture
                                   and color, and for its ultimate growth. Plants that are indigenous to
                                   the area and others that will be hearty, harmonious to design, and of
                                   good appearance should be used.

                                   In locations where plants will be susceptible to injury by pedestrian
                                   or motor traffic they should be protected by appropriate curbs, tree
                                   guards, or other devices.

                                   Parking areas and traffic ways should be enhanced with landscaped
                                   spaces containing trees or tree groupings.

                                9  Where building sites limit planting, the pl       acement of trees in
                                   parkways or paved areas should be required.

                                9  Screening of service yards and other places that tend to be unsightly
                                   should be accomplished by use of walls, fencing, plantings, or com-
                                   binations of these. Screening should be effective in winter and sum-
                                   mer.


                                *  In areas where general planting will not prosper, other materials such
                                   as fences, walls, and pavings of wood, brick, stone gravel, and cobbles
                                   should be used. Carefully selected plants should be combined with
                                   such materials where possible.

                                *  Exterior lighting, when used, should enhance the adjoining
                                   landscape. Lighting standards and building fixtures should be of a
                                   design and size compatible with the building and adjacent areas.
                                   Lighting should be retrained in design and excessive brightness
                                   avoided.
         Chapterio                                                                                 Page 10






                                                                                            comprehensive _Pfan


                                 Building Design

                                        Architectural style should not be restricted. Evaluation of the ap-
                                        pearance of a project should be based on the quality of its design and
                                        relationship to surroundings.

                                        Buildings should have good scale and be in harmonious conformance
                                        with permanent   neighboring development.

                                        Materials should have good architectural character and should be
                                        selected for harmony of the building with adjoining buildings.
                                        Materials should be of durable quality. Materials should be selected
                                        for suitability to the type of buildings and the design in which they
                                        are used. Buildings should have the same material, or those that are
                                        architecturally harmonious, used for all building walls and other
                                        exterior building components wholly or partly visible from public
                                        ways. In any design in which the structural frame is exposed to view,
                                        the structural materials should be-compatible within themselves and
                                        harmonious with their surroundings.

                                        Building components, such as windows, eaves, doors, parapets,
                                        should have good proportions and relationships to one another.

                                        Colors should be harmonious and should use only compatible ac-
                                        cents.


                                        Mechanical equipment or other utility hardware on roof, ground, or
                                        buildings should be screened from public view with materials har-
                                        monious with the building, or they should be so located as not to be
                                        visible from public ways.

                                        Exterior lighting should be part of the architectural concept. Fixtures,
                                        standards, and all exposed accessories should be harmonious with
                                        building design.

                                        Refuse and waste removal areas, service yards, storage yards, and
                                        exterior work areas should be screened   from view of public ways.

                                        Monotony of design in single or multiple building projects should be
                                        avoided. Variation of detail, form, and siting should be used to
                                        provide visual interest In multiple building projects, variable siting
                                        of individual projects should be used to prevent a monotonous ap-
                                        pearance.
              Chapter 10                                                                                Page 11






                                                                                  Tappahannock Virgmia


                           Signs

                               ï¿½ Every sign should have good scale and proportion in its design and
                                  in its visual relationship to buildings and surroundings.

                               ï¿½  Every sign should be designed as an integral architectural element of
                                  the building and site to which it principally relates.

                               ï¿½  The number of graphic elements on a sign should be held to the
                                  minimum needed to convey the sign's major message and should be
                                  composed in proportion to the area of the sign face.

                               ï¿½  The colors, materials, and lighting of every sign should be restrained
                                  and harmonious with the building and site to which it principally
                                  relates.


                               ï¿½  Each sign should be compatible with signs on adjoining premises and
                                  should not compete for attention.

                           Maintenance - Planning and Design Factors

                               *  Continued good appearance depends upon the extent and quality of
                                  maintenance. The choice of materials and their use, together with the
                                  types of finishes and other protective measures should be conducive
                                  to easy maintenance and upkeep.

                               o  Materials and finishes should be selected for their durability and wear
                                  as well as for their beauty. Proper measures and devices should be
                                  incorporated for protection against the elements, neglect, damage,
                                  and abuse.


                               o  Provisions for washing and cleaning of buildings and structures, and
                                  control of dirt and refuse should be incorporated in the design.
                                  Configurations that tend to catch and accumulate debris, leaves,
                                  trash, dirt, and rubbish should be avoided.

                               0 Provisions for landscape maintenance and replacement should be
                                  added.

                           The Historic District

                           The historic district of Tappahannock is a distinctive place reflecting the
                           colonial history of the Town in its architecture and design character. The
                           civil war monument will serve as a gateway into this district. As a gatewav
         Chapterio                                                                                PageI2






                                                                                              Comprehensive Pfan


                                 the island in which the monument sets -should be enhanced with plants and
                                 flowers and/or attractive masonry,work. This will draw attention to the
                                 monument as a focal point. If illuminated, the monument's importance as
                                 a landmark and gateway would not diminished at night.

                                 In addition to the general appearance standards presented above, the scale
                                 of design within the historic district is geared towards the pedestrian. As
                                 such, special emphasis on details will be placed on the urban design plan for
                                 this area. The street furniture will -reflect a colonial character with street
                                 lighting designed to replicate traditional gas lamps. The benches and trash
                                 containers will also reflect the style used in colonial periods. The sidewalk
                                 planters will consist of a uniform style and will be rigorously maintained.

                                 The character of the storefronts themselves will be enhanced. Mullions and
                                 shutters will be used in windows which again will reflect the Town's colonial
                                 past and reinforce the pedestrian scale of the area. Flower boxes located in
                                 storefronts can help to beautify the streetscape and will also enhance any
                                 window displays utilized by stores in this district. 'Awnings of a uniform
                                 style can be utilized by the stores located in the historic district.
                                 Protection and Preservation Programs

                                 Outsiders, whether they go to a new place as tourists or as potential
                                 residents, will be attracted to a community that seems to respect itself and
                                 to have character and individuality. Tourists spend money with local
                                 merchants, and new residents spend even more. Local industry and
                                 business.- if they recruit from outside the region, benefit, too, if it can be
                                 shown that the cornmunity isa good place to live. Historic preservation
                                 enhances the community character and shows that the community has pride
                                 and self-awareness. There are several methods available by which
                                 communities can make historic preservation a reality. While much has been
                                 done to preserve local architecture and history, many opportunities still exist
                                 to further preservation effort programs.

                                 A number of existing programs provide assistance in protection or
                                 preservation, offer tax benefits, provide professional historical / architectural
                                 consultin& and so forth. More detailed information on programs including
                                 the National Historic Landmark, National Register of Historic Places,
                                 Conservation and Preservation Easements, and Historic Overlay Districts
                                 can be found from various historic preservation organizations and such
                                 publications as Virginia's Heritage: A Property Owner's Guide to Resource
                                 Protec'tion, published by the Virginia Department of Conservation and
                                 Historic Resources.

               Chapterio                                                                                  Page 13






                                                                                    Tappahannock Virginia


                            National Historic Landmark - A historical resource is generally a site over
                            fifty years old. The criteria for determining these sites has been established
                            by guidelines set forth by the Secretary of the Department of the Interior. A
                            district, site, building, structure or object can be considered a historic
                            resource. The criterion is that the resource must be noted to be significant
                            in American history, architecture, archeology, engineering or culture.

                            One of the highest honors for a property owner to have bestowed upon their
                            property is the designation of National Historic Landmark. This program,
                            run by the National Park Service, is the primary Federal means of
                            recognizing the exceptional national significance of historic properties. This
                            program is also one of the major tools used to scrutinize proposals for
                            additions to the National Park System and to select nominations to the World
                            Heritage List.

                            In recognition of the historic significance of a property@ the owner receives
                            a certificate of designation and a plaque bearing the name of the property
                            and attesting to its national significance. In return, the owner agrees to
                            display the plaque publicly although not required to grant public access to
                            the property. Ownership and use of the property is not changed by being
                            listed as a National Historic Landmark. Instead, an honor is granted.

                            National Register of Historic Places - In 1966, Congress established the
                            National Register of Historic Places as the Federal Government's official list
                            of properties, including districts, significant in American history and culture.
                            In Virginia, the Register is administered by the Virginia Landmarks Register.
                            Some benefits resulting from a listing in the National Register include the
                            following:

                                *  National recognition of the value of historic properties individually
                                   and collectively to the Nation.

                                9  Eligibility for Federal tax incentives and other preservation assis-
                                   tance.


                                e  Eligibility for a Virginia income tax benefit for the approved
                                   rehabilitation of owner-occupied residential buildings.

                                *  Consideration in the planning for federally and state assisted projects.

                            Listing does not interfere with a private property owner's right to alter,
                            manage or dispose of property.

         Chapterio                                                                                  Page 14






                                                                                             comprehensive P@M


                                Virginia Landmarks Register - The Virginia Division of Historic
                                Landmarks (VDH.L) surveys historic buildings, structures and archeological
                                sites to determine eligibility of being listed on the Virginia Landmarks
                                Register. As with being on the National Register of Historic Places, listing
                                does not limit or regulate the property owner in what can or cannot be done
                                with the property. In -order to be considered for listing on the National
                                Register or having an easement on the property to be accepted by the VDHL,
                                the site usually must first be listed on the Virginia Landmarks Register..
                                VirOnia Historic Preservation Easement - A stat6-held historic preservation
                                easement monitored by the Virginia Division of Historic Landmarks
                                (VDHL) is an excellent means of perpetually preserving a historical structure
                                and property for future generations. - Regulations state that easements may
                                be assignable to other parties or run with the land. The benefits for a
                                property owner to donate his land to the VDHL include income, estate,
                                inheri'tance, gift and property tax benefits. In exchange, the owner gives the
                                V1QHL the final word regarding proposed alterations. However, for
                                properties whose fair market value is - largely based on the value of
                                development rights, this method of preservation may not be the most
                                financially expedient for the property owner or for the VDHL.

                                Local Historic Overlay Zone - A third, but separate,     type of designation is
                                the locally-zoned historic district which is an overlay on the existing zoning
                                ordinance of a specified area. This district, allowed by the Code of Virginia,
                                Title 15.1, Chapter 11, Article 9, Section 15.1-503.2, is designed to maintain
                                the -visual character of the community. It may allow an appointed
                                Commission to monitor changes, alterations and demolition of buildings
                                and structures of architectural or historic significance. In Tappahannock, the
                                governing position could be filled by the Town Council or an appointed
                                board. The main purpose of such zoning, is:

                                       to safeguard the heritage of the Town by preserving the District
                                       therein which reflect elements of its cultural, social, economic, politi-
                                       cal or architectural history;

                                       to stabilize or improve property values in such a District;

                                    0  to foster civic beauty;

                                    0  to strengthen the local economy;



             Chapter,10                                                                                  Page 15






                                                                                  Tappahannock Virginia


                                  to promote the use 'and preservation of Historic Districts for the
                                  education, welfare and pleasure of the residents of t.he county or
                                  municipal corporation.

                           Monitoring of historic buildings and structures by a Historical Committee
                           under the supervision of the Town Council is done so that property owners
                           can gain recognition and protect the special character of their historic
                           neighborhood. There are well-publicized design guidelines that the
                           Committee would employ when assisting the applicant in obtaining a
                           certificate of approval for alteration or new construction. The government
                           supports these

                           owners' efforts through tax benefits and other programs. By creating such
                           districts, a community can look forward to being able to maintain its identity
                           in the face of advancing new developments.

                           The following criteria should be used when making the determination to
                           designate an area eligible for classification as a Historic Overlay District.

                           A. Historic and Cultural Significance

                                  The historic resource:

                                  1. has significant character, interest or value as part of the develop-
                                     ment, heritage, or cultural characteristics of the Town, County,
                                     State, or Nation;

                                  2.is the site of a historic event;

                                  3. is a site that has yielded, or may be likely to yield, information
                                     important in prehistory or history;

                                  4. is identified with a person or a group of persons who influenced
                                     society; or,

                                  5. emplifies the cultural, economic, social, political, or historic
                                     heritage of the Town and its neighborhoods.






         Chapter 10                                                                              Page 16






                                                                                             Comprehensive Plan


                                 B. Architectural and Design Significance

                                        The historic resource:

                                        1. embodies the distinctive characteristics of a type, period, style, or
                                            method of construction;

                                        2.  represents the work of a master craftsman, architect, or builder;

                                        3.  possesses high artistic values;

                                        4.  represents a significant and distinguishable entity whose com-
                                            ponents may lack individual distinction; or,

                                        5.  represents an established and familiar visual feature of the Town,
                                            due to its singular physical characteristics or landscape.
                                 Non-Profit Preservation and Conservation Organizations
                                 A number of organizations exist throughout the State of Virginia whose aim
                                 is to preserve and conserve archeological and historical resources. These
                                 include, but are not limited to, the Archeological Society of Virginia, the
                                 Association for the Preservation of Virginia Antiquities and the Council of
                                 Virginia Archaeologists. Individuals can contact the Virginia Department
                                 of Conservation and Historic Resources in Richmond for a more complete
                                 listing of existing organizations.
















               Chapter10                                                                                 Page 17






                                                                                         Commeliensive Plan


                                CHAPTER 1.1

                                IMPLEMENTING THE PLAN

                                F    1h Comprehensive Plan is intended to capture a vision of the future
                                      Tappahannock. As such it provides a basis for a wide variety of public
                                      and private actions and development decisions which are to be un-
                                dertaken in the Town over time. It is not a static document because a
                                community is not static, but one which provides general guidelines to the
                                local community in order that piecemeal improvements or day to day
                                decisions can be properly evaluated against their long-range impact upon
                                the community and their relationship to existing settlement patterns.

                                The Plan and, in particular, the Land Use Element indicates the proposed
                                general or conceptual development pattern of the community projected to
                                2010. However it is not a detailed blueprint. Local conditions, values, and
                                philosophies change as a result of economic and political pressures and the
                                Plan must subsequently be responsive to these changes. The Plan is not a
                                document which encourages regimentation. It is, however, a guide which
                                encourages patterns of development which permit orderly and economical
                                growth of the community in a manner which can be more efficiently served
                                with a variety of governmental services and, facilities. Implementation
                                involves the concerted actions of both Town elected officials and certain
                                appointed boards. This chapter addresses two aspects of. plan
                                implementation that need additional treatment: Administration and
                                Enforcement; and Development Standards and Design Guidelines.


                                ADMINISTRATION AND ENFORCEMENT

                                One of the most important, yet often neglected, issues to be considered in
                                the formulation of the Comprehensive Plan, Zoning Ordinance and
                                Subdivision Regulations is administration and enforcement. Even the most
                                well conceived plans and ordinances will lose effectiveness (and in some
                                cases be invalidated) without consistent and equitable administration and
                                enforcement. The responsibility for administering and enforcing the
                                Comprehensive Plan and its associated ordinances and regulations rests
                                primarily with the Town Council, Planning Commission, Board of Zoning
                                Appeals and the Town staff.* Each group has a different role in
                                administration and enforcement. Their roles need to be defined and
                                understood in the context of this Plan.
              Chapter 11                                                                              Page 1






                                                                                   Tappahannock Virginia


                           Implementation Plan
                           The actions needed to guide construction of plan implementation tools,
                           particularly the preparation of new land use and development regulations,
                           as well as operational features of future administrative structure are
                           summarized below:

                           1.  Where possible, use clear measurable performance standards in ordinan-
                               ces to minimize interpretive confusion.

                           2.  Where uses are subject to Board of Zoning Appeals special exception
                               approval, enumerate minimum standards by use and improve the
                               criteria or standards which the Board uses as a yardstick to determine
                               the appropriateness of a given use in the respective zoning district.

                           3.  Reduce the number of special exception uses where possible by estab-
                               lishing clear standards by which they may be permitted by right and
                               subjected to established standards.

                           4.  Establish a policy for reasonable time frames for review of rezoning
                               applications, special exception uses, subdivisions, and uses subject to site
                               plan review and approval.

                           5.  Establish clearer administrative procedures documenting applicant, staff
                               and approval authority responsibilities for processing rezonin& special
                               exception uses, subdivisions, and uses subject to site plan review and
                               Iapproval. Minor site and subdivision plans should be approved by the
                               authority of the Town Manager, however, the major site plans and
                               subdivision plans should be reviewed and approved by the Planning
                               Commission.


                           6.  Utilize standard forms and checklists for ministerial and administrative
                               procedures which clarify for all parties various application submission
                               requirements, improvement guarantees, and inspection procedures.

                           7.  Review and refine rules of procedure for use by the Town Council and
                               Boards for all zoning forms of action which require public hearings.

                           8.  Provide adequate budget and staff as well as training and support for
                               administrative procedures and inspection functions, and attempt to
                               coordinate and/or integrate inspection and administrative functions to
        Chapter1l              the maximum extent possible.                                         Page 2






                                                                                            Comprehenswe Plan


                                9. Revise the penalty section of the Zoning Ordinance to allow civil penal-
                                   ties for less serious violations.

                                10. Require the annual revision to the Town@s Capital Improvements Pro-
                                   gram to be coordinated with the Comprehensive Plan and any recom-
                                   mended amendments resulting from the annual review of the Plan and
                                   planning process.

                                11. The Plan should be reviewed and updated every four (5) years.

                                DEVELOPMENT STANDARDS AND DESIGN GUIDELINES

                                This section addresses many aspects of development design. Development
                                design can   be generally defined as the management of the visual and
                                physical development of the built environment. Primary emphasis is placed
                                on the preservation of the Town@s character. The intention is to respond to
                                growing public concern about the increasing transformation of
                                TappahannocVs traditional townscape to sprawling suburban residential
                                and strip commercial development similar in nature to the land use pattern
                                ringing most of the metropolitan centers throughout the Hampton Roads
                                region and the nation. Concern is that, if measures are not taken now,
                                Tappahannock could become conventionally suburban, with only vestiges
                                of the traditional townscape remaining.

                                Managing development design to maintain and enhance the aesthetics of the
                                Town is an  'important component of Tappahannocles Comprehensive Plan.
                                Application. of development design standards is appropriate anywhere
                                human features are present, and where the physical and visual properties of
                                development can significantly influence the character of the Town-s
                                suburban areas, as well as urban areas. Development design guidance, or
                                the lack thereof, significantly affects real estate values, community pride, a
                                sense of obligation to private property, personal enjoyment and satisfaction,
                                and the overall investment climate in Tappahannock.

                                This section will discuss andreicommend various approach       *es to positively
                                influencing the development design of areas throughout Tappahannock.
                                Density and Intensity Regulations,,,
                                Density and intensity regulations control growth by regulating the number
                                of units that may be built on a particular site or by regulating the intensity
                                of that development. Zoning is the traditional technique used to set density
                                and intensity standards. Density standards are typically applied to
              Chapter-11                                                                                 Page 3






                                                                                   Tappahannock Virginia


                            residential development, where growth is managed by limiting the number
                            of homes that may be built per acre as opposed to regulating lot size.
                            Intensity standards are more often applied to commercial, office, and
                            industrial developments and are related to the bulk and height of buildings
                            permitted in a particular area.

                            Intensity is a broader standard of measurement than density. The intensity
                            of a building or a development on a parcel of land refers to the impact it has
                            on neighboring land uses. The greater the intensity of development, the
                            greater the impact and potential for nuisances. For example, greater
                            intensity may result in decreased open space, increased runoff from paved
                            surfaces, increased bulk and height of buildings, increased traffic with
                            associated noise and congestion, increased exterior lighting visible from
                            neighboring property, and other nuisances.

                            Tappahannock's Zoning Ordinance identifies various density within the
                            same zoning District, which ends up producing development with different
                            characters adjacent to each other. Table 11-1 illustrates the varying densities
                            currently permitted for different dwelling types.

                                                        Table 11-1
                                                   Permitted Densities
                                                (DweHing Units Per Acre)
                                           Tappahannock Zoning Ordinance
                                             Single Family         Town Houses           Apartments

                            R-1                      4.1                  12.5             12.5
                            R-2                      7.4                  13.8             13.8
                            R-3                      4.8                  13-14            13-14
                            R-A                                                            20-40
                            PC-1                     8.0                  12.0             12.0
                            NIH-1                    6.0
                            The somewhat incongruous densities permitted in Tappahannock are an
                            issue that needs to be resolved as part of the Town's effort to enhance and
                            preserve the character of its neighborhoods. It is recommended that the
                            effective densities be modified to conform to the intent of the Town's
                            comprehensive plan districts and that the densities are generally uniform
                            throughout each planning district.




         Chapter1l                                                                                  Page 4






                                                                                          Comprefwtuive, P&n


                               Zoning bistricts
                               The land use plan and zoning map serves      as an additional tool that can be
                               used to regulate growth. Together, they indicate the appropriate land use
                               for parcels and areas of land throughout the Town. It is recommended that
                               the Town reorder the zoning districts, if necessary, to ensure compatibility
                               among land uses and meet other the identified objectives of the Town. It
                               may also be necessary to revise the permitted uses within residential zones
                               to ensure that compatibility among land uses is achieved.
                               Performance Standards

                               Performance standards address how the land uses are placed on the ground
                               rather than what is placed on the'land. A wide variety of performance
                               standards can be used to control community character, many of which are
                               discussed in other sections, such as bufferyards, landscapin& and density.
                               In addition to- these performance standards, it is recommended that
                               standards for other development related elements be incorporated in the
                               zoning ordinance, e.g., minimum open space requirements. Open space
                               requirements will be varied by the character to be preserve or enhanced. For
                               example, a 15% open space. ratio may be. adequate for townhouses in an
                               urban setting, but 40% may be needed to preserve the character of a
                               particular suburban area.
                               Single Family Cluster

                               More flexibility in the zoning ordinance for the cluster options that do not
                               by themselves change the overall density permitted in the zoning district is
                               encouraged. While the minimum lot size will be reduced, gross density
                               would remain that of the existing zoning district. This type of zoning is a
                               positive influence to any attempt to preserve character and still permits some
                               development. Cluster development is recommended for use, particularly
                               when it preserves the small town character and valued natural areas.
                               Planned Devel

                               It is the intent that the planned development provisions in the Town continue
                               to permit a variety of dwelling unit types within the same development and
                               to permit much more intense clustering. It is not the intent of this plan to
                               permit a higher density by right than the underlying zoning district,
                               however additional density may be made available through bonus densities.
                               Bonuses could be granted for such things as providing additional developed
                               parkland or some other amenity that is in excess of that required or for
                               addressing affordable housing needs.

             Chapter1l                                                                                 Page 5






                                                                                  Tappahannock Virginia


                           Residential Planned Developments should permit and even encourage the
                           elements found in traditional neighborhoods so that the new developments
                           become extensions of the Town rather than isolated pockets of residential
                           development. The planned developments should be tied to the older parts
                           of Town by a street and sidewalk system. Development should be permitted
                           to be oriented around neighborhood services and accessible by pedestrians.
                           A degree of mixed residential and commercial should be permitted in the
                           neighborhood centers within planned developments.
                           Landscaping and Tree Preservation

                           Implementation of landscaping and        tree preservation objectives should
                           address the three broad issues relating to landscaping in Tappahannock.
                           One is the apparent absence of street tree requirements in single family and
                           townhouse developments. Two is the lack or lack of quality of landscaping
                           in the commercial areas. Three is the practice of clear cutting mature
                           woodlands for development rather than designing with tree preservation in
                           mind.


                           First, the Town should require a minimum number of trees per linear feet of
                           street. A minimum standard of a 10 foot tree every 25 to 35 feet planted in
                           a minimum tree space of five to seven feet is recommended. Townhouse
                           development should provide equivalent plantings in, planting islands to
                           break up the large expanses of parking.

                           Second, the Town should require minimum landscape area - expressed as a
                           "landscape surface ratio (LSR)" - for commercial development. Minimum
                           LSRs of 15% to 20% should be used in the Town, setting. Requirements for
                           parking lot landscaping should be very specific for different planning district
                           within the Town. Interior landscaping standards should specify the number
                           of planting islands per number of parking spaces with a minimum number
                           of shade trees to be provided.

                           Third, the Town should place limits on clearcutting of mature woodlands.
                           Cutting of a certain percent of stands of trees of a certain diameter should
                           be prohibited unless for a valid purpose such as roads, buildings, parking,
                           etc. The Town should include tree preservation recommendations which
                           include the protection of existing trees during construction.

                           Section 15.1-14.2 of the Virginia Code allows Tappahannock to adopt an
                           ordinance providing for the planting and replacement of trees during the
                           development process. The law appears to prescribe the minimum as well as
                           maximum tree canopies for towns; however, there is. some language to
         Chapter1l                                                                                  Page 6






                                                                                              Comprehensive Plan


                                 suggest that a town could require less stringent regulations. Use of this
                                 provision will require State agency interpretation of the law.
                                 Buffenfard Standards

                                 One of zoning's most important functions is the division of land uses into
                                 districts that have similar character and contain compatible uses. All uses
                                 permitted in any district have generally similar nuisance characteristics. In
                                 theory, the location of districts is supposed to provide protection, but in
                                 Tappahannock this is not the case because uses as diverse as single-family
                                 residential and commercial can occasionally be found adjacent to one
                                 another. Bufferyards can be used to minimize the negative impact of any
                                 redevelopment -or future use of vacant land on neighboring uses.

                                 A bufferyard is a combination of setback and a visual buffer or barrier and
                                 is a yard or area together with the planting required thereon. Both the
                                 amount of land and the type and amount of planting specified for each
                                 bufferyard requirement are designed to minimize nuisances between
                                 adjacent zoning districts to ensure the desired character along public streets
                                 and roads. The planting units required of bufferyards can be calculated to
                                 ensure that they do, in fact, function as "buffers".

                                 Bufferyards should be required to separate different zoning districts from
                                 each other in order to eliminate or minimize potential nuisances such as dirt,
                                 litter, noise, glare of lights, signs, and unsightly buildings or parking areas,
                                 or to provide spacing to reduce adverse impacts of noise, odor, or danger
                                 from fires or explosions.















               Chapter 11                                                                                 Page 7



                                                BUFFERYARDS


                                                  150,


                                                                                                         I Canopy Tres
                                                                                        CP          20' 2 LkWerstory tem
                                                                                                         10 Shnft









                                                                                                         2 Canopy Trees
                                                           Oeop
                                                                                                    20'  4 Understory Trees
                                                                                                   e     20 Shmbe








                                                                                                    4z
                                                                                                         3 Canopy Trees
                                                                                           ct       25'  6 Understory Trees
                                                                                                         30 ShnAbs
                                                                                                  @Ae








                                                                                                         4 Canopy Trees
                                                                                                    2W   8 Uxlerstwy Trees
                                                                                                         40 ShPjbs









                                                              .wm@
                                         'V7
                                                                                                           Canopy Trese
                                                                                                    -2W  io uxwstwv Trees
                                                                                                         50 Shube









                                                                                                         2 Canopy uves
                  C9.)                                                                                   4 Understory Trees
                                                                                                         20 Shnbs
                                                           4@1
                                          d)r; `0













                                                        Pigura. 11"t,



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