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

                                                                                                         FINAL PRODUCT            FY'94 Task 64
                                                                                                         Richmond            Mayo Island Public Access Plan

                         MA YO 'S ISLAND

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                         An Evaluation of Mayo Is Island
                         for Potential Public Accessfor
                         Recreation and Open Space Use
                         July, 1996

                    MAYO'S ISLAND EVALUATION

                             YO -IS ISLAND
                                                                              An Evaluation of Mayo's Island
                                                                              For Potential Public Accessfor
                                                                              Recreation and Open Space Use

                    This study was prepared for: The City of Richmond
                                                 Recreation and Parks Foundation
                                                 and
                                                 The Department of Recreation and Parks

                    This study was prepared by: JRH Associates
                                                 Richmond, Virginia
                                                 July, 1996

                    This report was funded, in part, by the Department of Environmental Quality's Coastal Resources
                    Management Program through Grant # NA470ZO287-01 of the National Oceanic and
                    Atmospheric Administration, Office of Ocean and Coastal Resource Management, under the
                    Coastal Zone Management Act of 1972, as amended. The views expressed herein are those of the
                    authors and do not necessarily reflect views of NOAA or any of its subagencies.
                 [MA

                     MAYO'S ISLAND EVALUATTON

                     Table of Contents

                                                                                                                 Page

                     1.      INTRODUCTION                                                                          I

                     111.    PURPOSE OF THE STUDY                                                                  2

                     III.    HOW THE STUDY WAS CONDUCTED                                                           3
                             A. Initiation of the Study                                                            3
                             B. Study Roles                                                                        3
                             C. Study Activities                                                                   4

                     IV.     CHARACTERISTICS AND USES OF MAYO'S ISLAND                                             6
                             A. Location and Physical Characteristics                                              6
                             B. Ownership                                                                          8
                             C. Uses                                                                               9
                                      1. Historic Uses                                                             9
                                      2. Current Uses                                                              11
                                      3. Proposed uses                                                             15
                             D. Utilities                                                                          16
                             E. Significant Attributes                                                             16

                     V.      ROLE OF MAYO'S ISLAND IN RELATION TO CITY PLANS                                       24
                             A. Master Plan/Downtown Plan                                                          24
                                      1. 1994 Amended Riverfront Subdistrict Plan-Policies                         24
                                      2. 1994 Amended Riverfront Subdistrict Plan-Recommendations                  26
                             B. Master Plan/Environmental Element                                                  27
                                      1. Environmental Element Recommendations                                     28
                                      2. Natural Features Issue Area Objectives                                    29

                     VI.     CONSIDERATIONS FOR THE ACQUISITION AND/OR                                             31
                             DEVELOPI@ffiNT, MANAGEMENT AND USE OF MAYO'S ISLAND

                     VII.    RECOMMENDATIONS                                                                       35
                             A. Use, Access and Other Recommendations                                              35
                                      1. Landscape, Revegetate and Clean Up the Island                             35
                                      2. Provide Handicapped Access                                                35
                                      3. Provide Access and Develop Pathways                                       35
                                      4. Provide Fishing Access                                                    39
                                      5. Provide Boating Access and Develop a Boating Center                       41

                                                                        i

                     MAYO'S ISLAND EVALUATION

                     Table of Contents

                                                                                                             Page

                                    6. Develop a Restaurant on the Island                                      42
                                    7. Provide for Public Safety                                               43
                                    8. Maintain the Recycling Center Operation                                 43
                                    9. Provide Off-Site Parking                                                43
                                    10. Provide Public Transportation                                          44
                                    11. Use the Island for Special Events                                      44
                            B. Potential Ways of Providing public Access                                       45
                                    1. Direct Acquisition by Purchase or Donation                              45
                                    2. Land Exchange, Lease, and Joint Development                             45
                            C. Funding Recommendations                                                         46

                     VIR.   CONCLUSION                                                                         48

                   MAYO'S ISLAND EVALUATION

                   Figures

                                                                                                   Page

                   1.     Location Map                                                                la

                   2.     Falls of the James                                                         6a

                   3.     Mayo's Island - Locations of Structures and Concrete                       Ila

                   4.     IDA Area on Mayo's Island                                                  32a

                   5.     Conceptual Plan                                                            44a

                     MAYO'S ISLAND EVALUATION

                     Acknowledgments

                     The authors of this report wish to thank personnel from the City of Richmond, Recreation and
                     Parks Foundation, The Department of Recreation and Parks, and the Department of Planning and
                     Community Development for their assistance and input in the development of this evaluation.
                     The authors also wish to thank personnel from The Trust for Public Land and the Commonwealth
                     of Virginia, Department of Environmental Quality for their input and assistance. Staff from the
                     Department of Environmental Quality's Office of Chesapeake Bay and Coastal Programs Division
                     of Intergovernmental Coordination were especially helpful in the review of the draft document.

                     The cover photograph was taken and provided by Charles V. Ware. Mayo's Island is depicted in
                     the center of the photograph. Since the photograph was taken in 1992, much of the eastern side
                     of the island has been cleared of the truck trailers and other material which appears.

                     JAH Associates

                     This study was conducted by JRH Associates. J. Robert Mcks, Jr. is the principal and owner of
                     JRH Associates. The individuals involved in conducting the Mayo's Island evaluation and
                     developing this report are:

                     J. Robert Hicks, Jr. Mr. 11icks is the former director of the Commonwealth of Virginia's
                     Department of Conservation and Recreation and the former executive director of the Maymount
                     Foundation. Since 1990, he has served on the City of Richmond's Strategic Planning Initiative,
                     Richmond Tomorrow, the City's Master Plan Environmental Element and the Master Plan
                     Steering Committee.

                     Paul Otto Hagenmueller. Mr. Hagenmueller specializes in the areas of strategic, future and
                     environmental planning. In his work, he has facilitated the strategic planning efforts of
                     organizations, helping them to develop strategic visions and the necessary steps to attain those
                     visions. In addition, he has conducted environmental studies and provided open space and
                     recreation planning assistance to localities. He received his Bachelor of Science degree from the
                     University of Richmond and his Masters of Forestry degree from Duke University.

                                                                      iv

                     MAYO'S ISLAND EVALUATION

                     L INTRODUCTION

                     This study evaluates the potential for providing public access to Mayo's Island for open space and
                     recreation use. The study was initiated at the request of the City of Richmond's Recreation and
                     Parks Foundation. A grant from the Department of Environmental Quality's Coastal Resources
                     Management Program to fund the study was awarded in October 1994.

                     Mayo's Island has the potential to become a hub and focal point for Richmond's downtown
                     riverfront. It is accessible from both the north and south banks of the James River by a street
                     level bridge and from east and west by light watercraft upstream and larger boats downstream. It
                     is the only island in the James River that sits in both fresh and brackish (tidal) waters. Because of
                     its location at the f" line, there are opportunities for a variety of boating experiences. Fishing
                     around the island is excellent and Mayo's Bridge (14th Street Bridge), which crosses the island, is
                     one of the heaviest used fishing sites in the City.

                     Through revegetation and returning part of the island to a more natural condition, it could
                     become an oasis connecting with green spaces on both the north and south sides of the river and
                     the other islands in the river, downtown offices and residences in Oregon Hill, Church Hill and
                     Old Manchester. It could be a starting and ending place for paddlers, cyclists, walkers, fishers,
                     and people who want to get close to and enjoy nature and the river. Simultaneously, it could
                     become a more desirable habitat for wildlife.

                     Over the years, Mayo's Island has been used in a variety of ways. It has been home for great blue
                     herons, Fortune 500 company operations and after-work fishermen; a stepping stone for the
                     evacuation of Richmond; a ball field that hosted Babe Ruth; and a place where trash has been
                     dumped and the site of a successful recycling center. The island is natural, industrial, recreational
                     and historic. In a sense, Mayo's Island is Richmond on the James condensed into 13 acres.

                                                                                                         MAYO'S ISLAND
                                                                                                         LOCATION MAP
                                                                                                         DOWNTOVM
                                                                                                         CITY OF RICHMOND

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                                                                                                                                M!rtin Luther King
                                                                                                                                Bridge

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                                                                                                                               ce or
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                                                                                                Base map provided by the City of Ricbmond,
                                                                                                     Department of Community Development

                                                                                   la                                                      Figure 1

                     MAYO'S ISLAND EVALUATION

                     H. PURPOSE OF THE STUDY

                     This study was initiated at the request of the Richmond Recreation and Parks Foundation to:

                     K      Recommend potential recreation and open space uses for Mayo's Island, including the
                            development of a conceptual/public access plan;

                     0      Determine how public access to and public recreation and open space use of Mayo's
                            Island could be achieved by the City of Richmond; and

                     0      Identify issues related to the development and management of the island for public open
                            space and recreation uses.

                     MAYO'S ISLAND EVALUATION

                     HL HOW THE STUDY WAS CONDUCTED

                     A. INITIATION OF THE STUDY

                     This study is the result of a cooperative effort between the Richmond Recreation and Parks
                     Foundation (Foundation); the City of Richmond, Department of Recreation and Parks (DRP); the
                     Trust for Public Land (TPL); and JRH Associates. The Foundation and DRP identified Mayo's
                     Island as having the potential to become a valuable public open space and recreation resource.

                     On March 3, 1994, the City's DRP applied for a $15,000 Virginia Coastal Resources
                     Management Program Grant through the Department of Environmental Quality to carry out the
                     Mayo's Island study. In its grant application, the City indicated its interest in:

                     0      providing fishing access.
                     N      providing boating access
                     0      reestablishing wildlife habitat by removing some of the impervious surface and
                            revegetating part of the island.

                     Grant matching funds were. to be provided by the City, in the form of supplies, mapping and in-
                     kind services of staff support and supervision; and by the TPL in the form of staff input. The grant
                     was awarded to the City in October 1994 and administered by the Richmond Recreation and
                     Parks Foundation, which requested and oversaw the study addressed in this report. The
                     Foundation awarded the study development contract to JRH Associates in September 1995.

                     B. STUDYROLES

                     E      The Richmond Recreation and Parks Foundation coordinated the development and
                            oversight of the study.

                     0      Staff from the City's Department of Recreation and Parks and the Department of
                            Community Development provided input, maps, staff support and meeting facilities.
                            Additionally, the DRP was involved in assisting with the workshop.

                     0      The Trust for Public Land provided staff input.

                     0      JRH Associates conducted the study and prepared this report and the conceptual plan.

                                                                   3

                     MAYO'S ISLAND EVALUATION

                     C. STUDYACTIVITIES

                     Meetings were held between the City's DRP, the Foundation and JRH Associates to determine
                     the scope of the study and roles and responsibilities. Meetings were also held with other City
                     staff, TPL, and others to obtain relevant input concerning the proposal. Representatives from the
                     Department of Game and Inland Fisheries and the Department of Conservation and Recreation
                     provided input for this evaluation. City plans were reviewed for their content and relevancy to the
                     Mayo's Island study.

                     In September 1995, the consultants, JRH Associates, initiated discussions with each of the
                     individuals or groups who were fee-simple owners of their respective portions of Mayo's Island.
                     When the study began, two individuals owned separate parcels which constituted the fee-simple
                     ownership of the western end of the island. The eastern side of the island was and still is owned in
                     fee-simple by a group which is represented by one individual. The purposes of these discussions
                     were to make these property owners aware of the study and the City's and the Foundation's
                     interest in Mayo's Island, and to determine what plans they might have for their property.
                     Property owners were also asked about their interest or willingness in having the Foundation
                     acquire their property or in entering into some type of public/private partnership, for providing
                     public recreation and open space use of their property. Property owners were involved at other
                     times during the study process so that they would know what was happening and have
                     opportunities to provide input.

                     A planning workshop concerning Mayo's Island was held on Wednesday, January 31, 1996 in the
                     City of Richmond's Planning Conference Room in City Hall. Approximately 31 people attended
                     all or part of this meeting including two of the fee-simple landowners, potential user groups, City
                     representatives, a TPL representative, several business interests, a representative from the
                     Richmond Riverfiront Development Corporation, a representative from the Metro Richmond
                     Convention and Visitors Bureau and representatives from two state agencies. Participants' input
                     was obtained in the following areas:

                     N      Suggestions on potential types of uses, facilities and access that they felt should be
                            provided;
                     n      Recommendations on what they believed was necessary, from maintenance, management,
                            safety and other aspects, to make this a successful, long-term endeavor; and
                            Ideas on how funding and non-funding support might be obtained to assist with providing
                            public access to and/or long-term management of the Island.

                     All three of the fee-simple owners met with the consultants, the President of the Recreation and
                     Parks Foundation and a representative of the Richmond Riverfiront Development Corporation on
                     February 23, 1996. The purpose of this meeting was to further advise the owners of the progress
                     of the study and the plans for the riverfront development.

                                                                    4

                     MAYO'S ISLAND EVALUATION

                     Potential uses for the island were identified through interviews with the property owners, input
                     from the City's DRP and Foundation, review of City plans, and feedback fi7om potential user
                     groups, and others. The study was completed and includes recommendations for potential uses
                     and providing access; identification of things that need to be considered in providing access and
                     developing and managing the site; suggestions for methods of acquisition; and suggestions for
                     steps in the process to provide access. A conceptual plan was also developed in conjunction with
                     the recommendations and appears as Figure 5 on page 3 5 a.

                            MAYO'S ISLAND EVALUATION

                            IV. CILUA CTERISTICS AND USES OF MA YO JS ISLAND

                            A. LOCATIONAND PHYSICAL CHARACTERISTICS

                            As depicted in Figure 2, on page 6a, Mayo's Island is located in the City of Richmond in
                            approximately the middle of the James River at the fall line (the falls of the James), where fresh
                            water, flowing through rapids and channels around the western portion of the island, meet deeper,
                            tidal, flat water surrounding the eastern section of the island. A number of smaller, vegetated
                            islands are located off the western end of Mayo's Island.

                            Mayo's Island is the largest and most accessible of these fall line islands, which are shown in
                            Photo No. 1. It is approximately 2,140 feet long and about 500 feet wide at its widest point.
                            The highest elevation on the island is 29 feet above sea level. Essentially flat, the island has
                            relatively steep banks approximately 25 feet to 28 feet high around most of its perimeter, making
                            access to the water somewhat difficult. Photo No. 1 provides an indication of the steep banks
                            while Photo No. 2 on page 7, shows a close-up -view of a section of the island's steep banks.
                            Exceptions to the steep bank conditions occur at the island's upstream and downstream tips,
                            where more gentle and sloping terrain is found. Access to the water is easiest at these locations,
                            however, there are several other locations on the north and south banks of the island's east side
                            where access could be developed.

                                                                                                                                             This aerial view of Mayo's
                                                                                                                                             Island was taken in 1992
                                                                                                                                             and provided by Charles V.
                                                                                                                                             Ware. Mayo's Island is the
                                                                                                                                             large island, with the fringe
                                                                                                                                             of vegetation around its
                                                                                                                                             perimeter, in the center of
                                                                                                                                             the photograph. WhRe the
                                                                          'm, W-M,
                                                                                                                                             impervious surfaces seen in
                                                                                                                                             the photograph remain, the
                                                                                                      .......                                trailers have been removed.
                                                                                                                                             The vegetated, adjacent
                                                                                                                                             islands can be seen to the
                                                                                                                                             left of Mayo's Island. Four
                                                                                                                                             bridge crossings can also
                                                                                                                                             be seen and, from left to
                                                                                                                                             right, include: the Norfolk
                                                                                                                                             Southern Railway, the at-
                                                                                                                                             grade Mayo's Bridge, the
                                                                                                                                             CSX Railway, and nearby
                                                                                                                                             Interstate 95.

                                                                                                                              Photo I

                                                                                                  6

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                                   WA-1                                                                                                       Ob
                                                                                 VAUXHALL@,
                                                                                   ISLAND
                                                               Falls of      the James
                                                                                                          U

                                                       SHA"S
                                                         ISLAND
                                                                                            NIAYOIS
                                                                                            Is.. @T@D
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                                                                                    PO      JAMES                     VER tA
                                                 of         the James

                                         I. Gftftp-
                                                          FLOODWALL

                                                  MANCHESTER       AL         71

                     MAYO'S ISLAND
                     FALLS OF THE JAMES                                                                                       Prepared by JRH Associates
                     CITY OF RICHMOND                                                                                      Scale: 1" =Approximately 500'

                                                                                                                                                      Figure 2

                             MAYO'S ISLAND EVALUATION

                                                                                                                                               This photograph shows a
                                                                                                                                               portion of Mayo's Island's
                                                                                                                                               steep, vegetated banks.
                                                                                                                                               The James River can be
                                     @A
                                                                                                                                               seen in the lower right of
                                                                                                                                               the photograph while the
                                                                                                                                               top of the bank appears on
                                                                                                                                               the left. The banks are
                                                                                                                                               approximately 25 to 28
                                                                                                                                               feet high.

                                                                                                  4,

                             4M.

                                                                                                                               Photo 2

                             Mayo's Island is crossed by Mayo's (14th Street) Bridge, two railway lines and two power lines
                             owned by Virginia Power. For the purposes of this study, the Mayo's or 14th Street Bridge will
                             be referred to as Mayo's Bridge and is shown in Photo No 3.

                                                                                                                                             Mayo's Bridge is a gateway
                                                                                                                                             between Downtown to the
                                                                                                                                             north of the river and
                                                                                                                                             Manchester to the south. In
                                                                                                                                             this view of Mayo's Bridge,
                                                                                                                                             north is in the upper left of
                                                                                                                                             the photograph and Mayo's
                                                                                                                                             Island is the vegetated mass
                                              I kii@ I
                                                                                                                                             at the north end of the bridge
                                                                                                                                             section. In the picture, one
                                                                                                                                             can see the bridge's vertical
                                                                                                                                             light standards and the
                                                                                                                                             sidewalk paraffel to the
                                                                                                                                             northbound traffic lane.
                                                                                                                                             Downtown office buildings
                                                                                                                                             can be seen in the center left
                                                                                                                                             of the photo
                                                                                                                                                          graph.

                                                                                                                             Photo 3

                     MAYO'S ISLAND EVALUATION

                     About one-third, or 4.75 acres, of the island's total of approximately 13.62 acres are located west
                     of Mayo's Bridge while 8.87 acres, are located east of the bridge. When reference is made in this
                     study to the western portion of Mayo's Island, it refers to that portion of the island west of
                     Mayo's Bridge (14th Street) while reference to the eastern section of the island refers to the
                     section of the island east of Mayo's Bridge (14th Street). Mayo's Bridge is lighted, has a
                     sidewalk on both sides and provides access to the island for pedestrians, cyclists and motorized
                     vehicles. A Norfolk Southem rail line crosses the island near its western tip. The other rail line,
                     crossing the eastem side of the island, belongs to CSX Corporation. Interstate 95 passes near the
                     island's eastem tip. These transportation crossings are depicted in Figure 2 and Photo No. 1.

                     A large portion of Mayo's Island's surface is impervious which impedes plant growth and
                     increases runoff. Much of the island's westem side is impervious because of the presence of an
                     almost two acre concrete pad and other concrete parking surfaces. Pervious surfaces on the west
                     side are restricted to the banks and westem tip. On the eastern side of the island, another large
                     area of concrete is present between two buildings and other areas are heavily compacted.

                     Existing vegetation is sparse on the eastem side of the Island, confined primarily to a narTow band
                     along the steep banks. VVhile vegetation is somewhat denser on the western side of the island than
                     the eastern side, it too tends to be concentrated along the island's perimeter. The gently sloping
                     westem tip of the island from the high ground to the water, a distance of approximately 200 feet,
                     is generally well-vegetated. A number of large elms, sycamores and hackberries are found
                     growing on the island's banks, especially on the west side. Red river birch and other water
                     tolerant species are also found growing along the banks. Photos Nos. I and 2 show examples of
                     the Mayo's Island's vegetation as well as the vegetated adjacent islands.

                     Mayo's Island lies in the 100 year floodplain and has been flooded a number of times in the past
                     twenty-five years. The island also lies in a Chesapeake Bay Preservation Area with part of the
                     island classified as an Intensively Developed Area (IDA) which overlays a Resource Protection
                     Area and the other portion classified as a Resource Management Area as defined by the City's
                     Chesapeake Bay Preservation Program. Figure 4, on page 32a, depicts the IDA area of Mayo's
                     Island.

                     Mayo's Island is located in a stretch of the James River designated as a State Scenic River.
                     Known as the Falls of the James Scenic River, this section is administered by the Falls of the
                     James Scenic River Advisory Board.

                     R 0 WNERSHIP

                     When this evaluation began, Mayo's Island was owned in fee-simple by three separate individuals
                     or groups. However, in May 1996, the owner of most of the westem side of the island, all but

                                                                      8

                      MAYO'S ISLAND EVALUATION

                      about 10,000 sq ft, sold his property to the owners of the eastern end of the island, resulting in the
                      island now being owned by two landowners.

                      Except for the approximately 10,000 sq ft parcel on the west side, all of the fee-simple ownership
                      of the island is now held by one landowner interest. This smaller parcel fronts on 14th Street and
                      houses the Reynolds Metals Recycling Center.

                      Two railroad companies and one electric utility hold rights-of-ways across the island. The City of
                      Richmond owns the Mayo's/14th Street Bridge and its right-of-way.

                      C USES

                      1. Historic Uses

                      Mayo's Island, which was named after the family of William Mayo, who designed the layout of
                      Richmond. His son, John Mayo, Sr., was authorized to build a toll bridge which was designed to
                      cross at Mayo's Island and his son, John Mayo, Jr., completed the bridge project crossing Mayo's
                      Island in 1788.'

                      Mayo's Island has experienced a variety of uses in its history. These uses have primarily been
                      transportation, paper and wood manufacturing, and recreation.

                      Transportation
                      The island has had a long association with transportation related interests. Railways and a
                      highway have and still use the island as a crossing point. In 1788, John Mayo, Jr. built a toll
                      bridge connecting the City of Richmond with the Town of Manchester. This was the first and only
                      bridge at the time connecting the north and south sides of the James River in the vicinity of
                      Richmond. Floods, ice flows and destruction during the Civil War resulted in the need to replace
                      portions or all of the bridge a number of times between 1788 and 1912. In 1905, the City of
                      Richmond acquired Mayo's Island and the bridge in order to provide free access between the
                      Richmond and Manchester sides of the river. In 1912, the City completed construction of the
                                     2
                      current bridge.

                      Railway bridges followed John Mayo's bridge. By the late 1840s, the Richmond and Danville
                      Railroad had constructed a bridge crossing the western tip of Mayo's Island as it connected the

                            ICharles V. Ware. A Plan for the Redevelopment of Mayo's Island, Department of Urban Studies and
                    Planning, Virginia Commonwealth University. April 1992. Page 13.

                            2Ibid. Pages 13-41.

                                                                        9

                     MAYUS ISLAND EVALUAT   ION

                     south and north shores of the James River. This line later became the Southern Railway and is
                     now part of Norfolk Southern Corporation.  3  A rail line owned by the CSX Corporation crosses
                     the eastern side of the island.

                     From the 1950s to 1996, the eastern end of the island has been home to various transportation
                     interests. In the 1950s a motor freight company, the Overnight Transportation Co., operated
                     from this side of the island. Its offices and terminal were located in the two-story brick building
                     that faces Mayo's Bridge at 501 South 14th Street. The existing T-shaped brick building on the
                     east side was used as a truck maintenance and storage facility by the company. Later, other
                     transportation companies used the east side of the island for activities ranging from refurbishing
                     container trailers to truck maintenance to truck and trailer parking and storage.

                     During the 1950s, two gas stations, which were almost across the street from each other, were
                     operated on the island. An ESSO station, which no longer exists, was located on the east side of
                     Mayo's Bridge and a Gulf station, which operated until the early 1970s, was located on the
                     island's west side. The building that housed the Gulf station is now used as part of the Reynolds
                     Recycling operation.'

                     Paper and Wood Industry
                     Another major user of the island was the paper and wood related industry. In the 1870s a lumber
                     mill operated on the east side of the island.' The western side of the island was used by several
                     paper companies. In the 1950s, the Manchester Paper Company operated a paper storage
                     warehouse on the western portion of the island, followed by the Standard Paper Manufacturing
                     Company and fmally a paper recycling company until its warehouse was destroyed in 1987 by fire.

                     Recreation
                     Over the years, Mayo's Island has been used for a variety of recreational activities ranging from
                     boating; to professional, college and high school sports; to fishing. In the 1890s, the Richmond
                     Boat Club was constructed on the south bank of Mayo's Island, adjacent to and east of Mayo's
                     Bridge. The Club's initial wooden building was destroyed in a 1930 fire and was replaced by a
                     brick structure. Rowboats, canoes and rowing sculls were kept in four bays in the lower level of
                     the building. It was a short distance from the boat bays to the water where there was a pier and
                     floating dock at the bank. Besides the building, the Club also had a small outdoor swimming pool

                            3Ibid., Pages 17-25.

                            4Ibid. , Pages 49-50.

                            5Ibid., Page 29.

                                                                     10

                      MAYO'S ISLAND EVALUATION

                      and two tennis courts." The Club remained in use until the 1969 flood destroyed the facilities.
                      Canoeists and kayakers have and continue to use the island from time to time to put in or take out
                      their craft.

                      The eastern side of the island was also used for other recreation activities including baseball and
                      football. In April 1921, Mayo Island Park opened for Virginia League baseball games. The Park
                      was later named Tate Field. Major League exhibition games were also played at Mayo Island
                      Park and included a 1922 game in which Babe Ruth hit a home run over the right-field fence. The
                      last baseball game was played at the Park in 194 L'

                      Colleges played football in the Park between 1921 and 1928. The University of Richmond,
                      William and Mary, Virginia Military Institute, Virginia Polytechnic Institute, the University of
                      North Carolina, and Harnpden-Sydney college were some of the teams that played there. Once
                      the City Stadium w; as built in 1929, college football was no longer played on the island, although
                      high school teams played there for a few more years.'

                      Fishing has been and continues to be a major recreation activity associated with Mayo's Bridge,
                      Mayo's Island and the adjacent waters. Over the years, Mayo's Bridge has also been used by
                      walkers, runners and cyclists.

                      2. Current Uses

                      Reynold's Recycling operates a successful and well-established recycling center on the 10,000 sq
                      ft site, which they lease, adjacent to Mayo's Bridge. A large reinforced, concrete pad, which was
                      the floor of a paper storage warehouse that was destroyed by fire in 1987, is behind the recycling
                      center and covers approximately 40 percent of the island's western side, An abandoned truck
                      scale used to weigh trucks carrying paper is also in this area. Figure 3, on page I I a, depicts the
                      location of the recycling center, which is shown in photo No. 4, on page 12, and the concrete pad,
                      shown in photo No. 5, on page 12.

                      Although access to the island's western side behind the recycling center was somewhat restricted
                      in the past, trash appears to have been dumped there. This area also appears to be a place where
                      homeless individuals camp fi7om time to time.

                            6Ibid., Pages 45-50.

                            7Hany M. Ward. "Richmond Sports at Flood Tide," Virginia Cavalcade. May 1985. Pages 182-191.

                             Ibid.

                                                        VAUXHALL
                                                          ISLAND

                                             4-

                                                                             501 SOUTH
                                                       RECYCLING             14TH STREET
                                                       CENTER                BUILDING

                                              CONCRETE PAD

                       SHARPS i.                                               CONCRETE
                        ISLAND.
                            Cl-
                                                                      MAYO'S
                                                                      ISLAND

                                                                                                          CONCRETE
                                                                                                          STRUCTURE
                                                                              T-SHAPED 4;4
                                                                               BUILDING

                                                         10
                                                                      JAMES           VER

                   MAYO'S ISLAND
                   LOCATION OF                                                                             Prepared by JRH Associates
                   STRUCTURES AND CONCRETE                                                               Scale: 1" = Approximately 300'

                                                                                                                               Figure 3

                         MAYO'S ISLAND EVALUATION

                                                                             a
                                                                                                                                This photograph shows
                                                                                                                                the recycling center on the
                                                                                                                                west side of Mayo's Island
                                                                                                                                facing 14th Street. The
                                                                                                                                sidewalk on the west side
                                                                                                                                and the at-grade condition
                                                                                                                                of Mayo's Bridge/14th
                                                                                                                                Street can also be seen in
                                                                                                                                the picture.

                                                                             JN

                                                                                                                  Photo 4

                                                                                                                                This view of a portion of
                                                                                                                                the concrete pad on the
                                                                                                                                western side of the island
                                                                                                                                shows some of the debris
                                                                                                                                in this area. Vegetation
                                                                                                                                can be seen growing at the
                                                                                                                                edges of the pad. The
                                                                                                                                concrete pad is behind the
                                                                                                                                recycling center which
                                                                                                                                appeared in the previous
                                                                                                                                photograph.

                                                                                                                  Photo 5

                                                                                        12

                            MAYO'S ISLAND EVALUATION

                            On the east side of the island there are two large brick buildings which were built in the 1950s.
                            These buildings, whose locations are depicted in Figure 3, are between Mayo's Bridge and the
                            CSX Railway. There is a large, impervious, concrete surface present between these two buildings
                            as can be seen in the accompanying photographs of the buildings and in Figure 3. One building,
                            shown in Photo No. 6, is two-story, brick and adjacent to Mayo's Bridge with the address 501
                            South 14th Street This building is served by water, sewer and electricity. A portion of this
                            building is being used by an entrepreneur who plans to hold concerts and events on the island.

                                                                                                                                             The brick, two-story , 501
                                                                                                                                             South 14th Street building
                                                                                                                                             can be seen in the center of
                                                                                                                                             the photograph. To the
                                                                                                                                             back of this building, in the
                                                                                                                                             right hand side of the
                                                                                                                                             photograph, can be seen
                                                                                                                                             the T-shaped building with
                                                                                                                                             its bays. The concrete
                                                                                                                                             parking area can be seen
                                                                IRG MIL
                                                                                                                                         0   between the two buildings.
                                                                                                                                             This photograph also
                                                                                                                                             shows Mayo's Bridge/14th
                                                                                                                                             Street at-grade as well as a
                                                                                                                                             portion of the sidewalk on
                                                    _@a . . . . . . . . . . . . . .-
                                                                                                                                             the eastern side..

                                                                                            p
                                                                                                                              Photo 6

                            The other brick building, shown in Photo No 7 on page 14, is T-shaped and contains a number of
                            bays which have been used for vehicle maintenance. This building will be used by the concert and
                            event entrepreneur.

                            East of the CSX Railway crossing is a one-story, partially open, stall-like, concrete structure,
                            depicted in Figure 3 and shown in Photo No. 8 on page 14. The event entrepreneur plans to use
                            this structure for concessions during concerts and events.

                            A gated, chain link fence restricts vehicular access somewhat to the eastern side of the island.
                            Currently, it is locked at night.
                                                                        ZL

                                                                                                 13

                          MAYO'S ISLAND EVALUATION

                                                                                                                              This brick T-shaped
                                                                                                                              building was used for
                                                                                                                              truck maintenance. It has
                                                                                                                              a number of bays which
                                                                                                                              could be adapted for other
                                                                                                                              uses. The end of the 501
                                                                                                                              South 14th Street building
                                                                                                                              can be seen in the far left
                                                                                                                              of the photograph. A
                                                                                                                              concrete surface can also
                                                                                                                              be seen between the two

                                                                                                                                      S.
                                                                                                                              building
                                                                     PRO
                                                                           0

                                                  MOO 7 @.,,

                                                                                                                Photo 7

                                                                                                                             This concrete, stall-like
                                                                                                                             structure is just east of and
                                                                              Apk
                                                                         LIN                                                 parallel to the CSX
                                                                                                                             Railway crossing on
                                                                                                                             Mayo's Island.

                                                                                           J@
                                                           AL

                                                                                                               Photo 8

                                                                                      14

                     MAYO'S ISLAM EVALUATION

                     The easy accessibility of Mayo's Island from Mayo's Bridge has provided for a historic and
                     regular use of the island and the bridge by Richmonders for fishing, walking, jogging and
                     bicycling. Canoeists and kayakers. occasionally use the island for boating access. Several good
                     fishing holes are located below the bridge and next to the island. Sometimes people use the tip of
                     the western section of the island as a take off point to wade to several of the adjacent smaller
                     islands. After work hours and on weekends, fishermen will park at the Reynolds Recycling
                     parking lot and fish from the bridge or the island.

                     3. Proposed Uses

                     The eastern end of the island has been leased by its owners to a group which plans to provide
                     facilities for and hold outdoor concerts and events, with food services, on the easternmost end of
                     the island. They also plan to use the existing T-shaped building to house several recreation
                     service businesses including a tackle and bait shop, bicycle and small boat rental and a rafting
                     concession.

                     Approximately 30 concerts and events are planned annually. This group has an interest in
                     providing public access to the island via a circumferential walking/biking path and to the river by
                     means of fishing access piers and ramps. They have also indicated an interest in having take-outs
                     for rafts and small boats.

                     Parking for the planned events will be available off the island in nearby Shockoe Bottom
                     commercial lots. Some parking will also be available on the east side of the island and the group
                     has the option to lease the newly purchased property on the west end for additional parking and
                     recreational access.

                     The concert group is also exploring the possibility of converting the existing 501 South 14th
                     Street Building, which faces 14th Street, to a full service restaurant. Parking for this facility
                     would be separated from the other parking areas and related activities on the east side.

                     JRFI Associates met with the entrepreneur on the site and have kept him advised of our activities
                     and he has reciprocated. The group seems open to a cooperative arrangement with the City to
                     provide access to the island and river in exchange for support in developing and maintaining the
                     perimeter of Mayo's Island for public recreational use.

                     Cleanup of the eastern portion of the island is well underway by the lessees as are plans to attract
                     recreational service vendors. Plans include some regrading of the site and landscaping and
                     seeding of the interior of the eastern end where the concerts will be held. Stages and most
                     sanitary facilities for concerts will be temporary so that they can be removed in the event of
                     flooding. No permanent seating is planned. A perimeter walking path and a low fence similar to

                                                                       15

                      MAYO'S ISLAND EVALUATION

                      that used on Brown's Island between the trail and the top edge of the island are planned.

                      In our opinion, there is potential here for a cooperative arrangement between the City's
                      Department of Recreation and Parks and the lessee and owner to create an attractive recreational
                      facility on Mayo's Island with public access. Such an arrangement should provide for public
                      access in a documented agreement for not fewer than twenty years.

                      D. UTILITIES

                      Mayo's Island is served by electrical power provided by Virginia Power. City water and sewer
                      service is currently available to the island. A sewer fine runs from the north side of the river,
                      under Mayo's Bridge. This line serves the two buildings on the east end of the island. As
                      mentioned earlier, Mayo's Island is accessible for both pedestrians and vehicular traffic via the at-
                      grade Mayo's Bridge.

                      E. SIGNIFICANT A TTRIB UTES

                      Mayo's Island is important and has great potential for public open space, recreation and other
                      uses for the following reasons:

                          Mayo's Island is very accessible from both the north and south sides of the James River
                          via Mayo's ( 14th Street) Bridge

                          The four lane, lighted Mayo's Bridge, which has sidewalks on both sides, traverses the island
                          at grade (street level), with ingress and egress points, providing relatively easy access to both
                          sides of the island for pedestrians, cyclists, the physically challenged, and motorized vehicular
                          traffic. In fact, Mayo's Island is the only island in the Richmond-Metro area which enjoys such
                          accessibility from both sides of the river. (Eleven bridges connect the north and south banks
                          of the Jarnes River in Richmond between Bosher's Dam to the west and the Intermediate
                          Terminal to the east. Three are railway bridges and eight are for cars and trucks. Of these
                          bridges, only Mayo's Bridge connects an island in the James River with both banks at grade
                          level as shown in Photo No. I on page 6 and Photo No. 6 on page 13.)

                          The island is in close proximity to a large number of people, many of whom are only a
                          ten to fifteen minute walk away.

                          Within a mile and a half north of Mayo's Island are located the major downtown hotels, the
                          Richmond Center (Convention Center), the Coliseum, the City and State government centers,

                                                                        16

                       MAYO'S ISLAND EVALUATION

                            the financial district, corporate headquarters, Virginia Commonwealth University-Medical
                            College of Virginia, the new Biotechnology Park, tourist attractions, businesses, the Main
                            Street Station and residential neighborhoods. South of the island is the Manchester area with
                            its businesses, residential areas and corporate offices. Development on both sides of the river
                            in the downtown area has continued to move closer to the liver over the last twenty years.

                            Plans are underway which will potentially bring more people into the area. The
                            Richmond Center will be approximately tripled in size which will allow the City to attract
                            much larger conventions. Plans are in place and money is budgeted for converting Main
                            Street Station into a transportation center for Richmond and the region. This center Will
                            combine rail, automobile and bus services and will serve as a tourism center.

                            The Richmond Riverfront Development Corporation has begun a major project reaching from
                            Brown's Island eastward to 18th Street along the old canal. When completed, this project
                            will provide a major public space, approximately one and a half miles long, containing offices,
                            shops, restaurants, residential spaces, a restored section of the old canal system, canal boat
                            rides, landscaping and other amenities.

                            On the south side of the river a major corporation is constructing new offices adjacent to an
                            office building it completed a year ago. This is part of the Manchester area development that
                            is within one-half mile of Mayo's Island.

                            Providing public access and amenities such as landscaping, walkways and fishing access
                            should make Mayo's Island more attractive to people to visit. Adding a bus stop at and/or
                            trolley service to the island would expand the opportunities for people from both sides of the
                            river who prefer not to drive or do not have a car to reach it.

                            Mayo's Island could play a valuable role as a publicly available open space and
                            recreation resource providing increased access to the river as the City of Richmond
                            continues its emphasis on the James River and its identification as a "River City".

                            Current City Master Planning and Downtown Planning efforts emphasize the importance of
                            the James River, where the river is increasingly seen as a major focal point for the City and the
                            Richmond Region. The revised 1984 Downtown Plan's Riverfront Subdistrict Plan states "the
                            riverfront should be accessible from Shockoe Bottom and the Farmer's Market along 14th,
                            15th, 16th and 17th Streets."' Mayo's Island could provide an opportunity for people to

                              9 City of Richmond, Downtown Plan Text Amendment, Riverfront Subdistrict Plan, 1994, Page 4. (The 1994
                      revision of the 1914 Downtown Plan's Riverfront Subdistrict Plan, which is a part of the City Master Plan, was adopted
                      by the City Planning Commission as an Addendum on March 7, 1994 and was approved by the City Council on March
                      28,1994 (Ordinance NO. 94-52-58). The City of Richmond's current Master Plan was approved by City Council in

                                                                              17

                          MAYO'S ISLAND EVALUATION

                                experience the river coming from not only Shockoe Bottom but also from other areas as
                                indicated earlier. The island provides an additional location where people could experience or
                                see the river on both sides such as is the case with Belle Isle.

                                Construction of the floodwall, which is depicted in Figure 2 on page 6a, has made access to
                                the James River in the area of Mayo's Island, especially on the north side, more dffficult and
                                may increase demand to use Mayo's Island for fishing access and other uses. The new
                                floodwall on the south bank of the river has a walkway on top of the wall west of Mayo's
                                Bridge and a path at its base east of the bridge. The walkway on top of the floodwall could
                                become part of a loop trail that ran through Mayo's Island via Mayo's Bridge to the north side
                                of the river, then westward to the Manchester Bridge and then southward, back to the south
                                floodwall's walkway. A floodwall parking lot by 14th Street at the southern end of the bridge
                                provides a location where people fishing can park and walk out on the bridge or to the island
                                as well as down to the river below the floodwall. There could be demand to use Mayo's Island
                                as a destination or recreation site; as a link in a greater trail and greenway; and/or as a starting
                                point for beginning a hiking, biking or canoe trail. The north floodwall is shown in Photo
                                No. 9 and the south floodwall is shown in Photo No. 10 on page 19.

                                                                                                                                 A view of the north
                                                                                                                                 floodwall taken from
                                                                                                                                 Mayo's Island. The
                            E=                                                                             . . . . . .           floodwall, shown in the
                                                                                                                                 center of the photograph,
                                                                                                                                 is the grey structure with
                                                                                                                                 the opening in it for 14th
                                                                                                        25                       Street. The 14th Street
                             MW'
                                                                                                                                 opening can be closed by a
                                                          3f
                                                                                                                                 flood gate.

                                                                                                           44

                                                           71@

                                                                                                                   Photo 9

                        1983. In 1984, the Master Plan was amended to include the 1984 Downtown Plan which was adopted by the City
                        Planning Commission on November 2, 1984 and approved by the City Council on November 19, 1984 (Ordinance NO.
                        84-299-263). The Downtown Plan was developed to address the concerns and needs of and articulate a vision for the
                        City's Central Business District. The Master Plan is currently being updated.

                                                                                         18

                        MAYO'S ISLAND EVALUATION

                                                                                                                       A view of the south
                                                                                                                       floodwall from Mayo's
                                                                                                                       Bfidge. Rip rap can be
                                                                                                                       seen at the base of the
                                                                                                                       floodwafl.
                                                                ud    -Mai r@    lb;t                 1
                                                                                                      zl_;
                                                                                                  mm

                                                                                   V

                                                                                                 L -r

                         t

                                                                            q@-
                                                                                                         Photo 10

                             Mayo's Island is located at the fall line, (the Falls of the James River) which creates a
                             variety of interesting river related environments.

                             The western end of the island is surrounded by whitewater rapids, chutes and channels near its
                             tip with flatter water near Mayo's Bridge. A number of smaller islands are located near the
                             western end of the Mayo's Island. East of Mayo's Bridge, the island is surrounded by deeper,
                             slower mo-ving, flat, tidal water. Because of these conditions, the island and the surrounding
                             area provide opportunities for a variety of visual, fishing and small, recreational boating
                             experiences. Photo No. 1 on page 6 shows the fall line islands including Mayo's Island.
                             Photo No. 11, on page 11, shows the rapids west of Mayo's Bridge while Photo No. 12, on
                             page 11, shows the flat waters encountered east of the bridge.

                                                                                  19

                          MAYO'S ISLAND EVALUATION

                                                                                                                            This view, taken from the
                                                                                                                            base of the floodwall near
                                                                                                                            Mayo's Bridge, shows the
                                                                                                                            rapids near the western
                                                                                                                            end of the island. The
                                                                                                                            Norfolk and Southern
                                                                                                                            Railway trestle bridge can
                                                                                                                            also be seen crossing the
                                                                                                                            western end of Mayo's
                                                                                                                            Island.

                                                                                   @4_

                                                                                                            Photo 11

                                                                                                                            This photograph shows
                                                                                                                            the flat water east of
                                                                                                                            Mayo's Bridge. The
                                                                                                                            Interstate 95 crossing can
                                                                                                                        1   be seen in this view as
                                                                                                                            well as the rip rapped
                                 .-,7::                                                                                     portion of the south
                                                                       M.                                                   floodwall.

                                                                            FJ

                                                                                                            Photo 12

                                                                                     2-0

                     MAYO'S ISLAND EVALUATION

                     0   Mayo's Island has the potential to provide additional access to and from the river for
                         boats which can be hand carried such as canoes, kayaks, rafts, and racing sculls.

                         Currently, boating access in the area is somewhat linfited. The most commonly used take-out
                         for whitewater canoeists and kayakers using the lower section of the James River has been the
                         Reynold's Metals Byrd Street canoe access ramp on the north bank, two blocks west of 14th
                         Street. This access point was closed during construction of the Richmond Floodwall but has
                         since been reopened. Proposed development associated with the Richmond Riverfront
                         Development Corporation may affect the use of this ramp as an access point, especially during
                         the construction phase. Other access points in the lower end of the river include Ancarrows
                         Landing on the south side, which provides access for trailered boats, and a canoe and kayak
                         access point on the north side near Tredegar, about 1- 1/2 miles west.

                         Providing public access to the island, some parking and access points to the river will allow
                         for use by boaters who hand carry their boats. Further, the island is a location where a
                         boating center could be created possibly offering boat rentals, boating classes, and guided raft
                         and canoe trips on the river.

                     0   The island is located at a very productive fishing area which receives a great deal of use.

                         A rich fishing environment exists in the area of Mayo's Island because of its location at the fall
                         line. The fall line is the interface between non-tidal waters west of Mayo's Bridge and the flat,
                         deeper, tidal waters east of the bridge. West of the bridge there are a variety of chutes,
                         rapids, and channels between islands and areas of open water. The small, vegetated islands
                         west of Mayo's Island, create a variety of aquatic conditions and provide cover for aquatic
                         species

                         The James River is a major fishway for anadromous fish, including shad, herring and striped
                         bass. It is also a year-round fishery for bass, perch, catfish, and walleye. Probably the
                         heaviest fishing traffic is during the spring spawning ran of white perch. To improve fish
                         passage in the area, the Commonwealth of Virginia's Department of Game and Inland
                         Fisheries and the City have breached dams immediately upstream of Mayo's Island. The
                         Manchester, Brown's Island, Hollywood and Williams Dams have been breached and opened
                         to fish passage. The remaining dam, Boshers, should be breached within two years. Over
                         time, this should enhance the anadromous fishery, if other conditions are favorable.

                         Dr. Greg Garman, a Fish Biologist at Virginia Commonwealth University, has indicated that
                         "the fish community within the James River provides a unique recreational fishery for two
                         reasons":

                         1. "Because of the greater proximity to Richmond and its environs, the fishery serves a

                                                                      21

                     MAYO'S ISLAND EVALUATION

                             greater number of people than any other stretch of the river in the state" and

                         2.  "Because the Fall Line is the interface between tidal and non-tidal waters, the James at
                             this point hosts a large number of migratory fishes each spring. The mingling of year-
                             round resident and migrant species results in a more diverse fish assemblage here then at
                             any other point on the James River. Several of these economically and ecologically
                             important fishes, including the American shad, have recently experienced dramatic declines
                             in abundance within the Chesapeake region." "

                         The 1993 Environmental Element of the City's Master Plan identifies the 14th Street Bridge
                         as the most popular "fishing hole" in the City." On Wednesday, April 24, 1996, at around
                         5:30 pm, the authors of this report counted seventeen people fishing from Mayo's Bridge, two
                         individuals fishing from the eastern end of Mayo's Island, one person fishing in the water
                         between Mayo's Island and Vauxhall Island and approximately ten people fishing from the
                         south bank of the river below the flood wall. In addition, there were people fishing from
                         several small boats around the eastern end of Mayo's Island

                         Access for fishing in this area is currently limited primarily to fishing from Mayo's Bridge, by
                         boat and from the south side of the river in front of the floodwall. People sometimes
                         unofficially use Mayo's Island and the smaller adjacent islands for fishing access.

                         Providing public access, including handicapped access, for fishing from Mayo's Island, would
                         expand fishing opportunities in the area. Improving access to some of the adjacent islands
                         west of Mayo's island would also enhance fishing accessibility. Fishing opportunities could be
                         improved by developing fishing pods or piers, developing handicapped fishing access sites,
                         building a trail around the island, operating a bait and tackle shop and conducting fishing
                         oriented activities such as contests, classes, etc. On both sides of the bridge, depending upon
                         river flow conditions, there are areas that can be waded and fished.

                         Mayo's Island provides interesting views of its surroundings.

                         The island's location provides, depending on where an observer is standing, opportunities for
                         interesting and differing views of the James River, the City skyline to the north, both sides of
                         the river, the floodwall, nearby islands, wildlife and people fishing and boating. Black ducks,

                            10 Grant Proposal for the FY 1994 Virginia Coastal Resources Management Program submitted by the City of
                    Richmond, Virginia, Department of Recreation and Parks, 1994, Page 2.

                            11 City of Richmond, Master Plan Environmental Element, 1993, Page 49. (The Environmental Element of the
                    City Master Plan was adopted by the City Planning Commission on January 19, 1993 and approved by the City Council
                    on March 22,1993 [Ordinance NO. 93-90-83].

                                                                       22

                     MAYO'S ISLAND EVALUATION

                         wood ducks, mallards, herons and Canada geese can frequently be seen in the area. From the
                         western tip of the island, as seen in Photo No. 13, one can see the adjacent vegetated islands,
                         rocks and boulders in the river, and a diversity of rapids, flat water and chutes and channels.

                                                                                                    In this view from the
                                                                                            ......  western end of Mayo's
                                                                                                    Island, one can see
                                                                                                    channels, rapids in the
                                                                                                    background, boulders
                                                                                                    and rocks in the water,
                                                                                   W
                                                                                                    and islands of
                                                                                                    vegetation.

                                                                                        Photo 13

                     �   Mayo's Island could potentially become a green oasis for both people and wildlife

                         With native plant landscaping and appropriate development, removal of some of the existing
                         impervious surface, and returning portions of the island to a more natural condition, the island
                         will become an attractive focal point for a natural gateway and an oasis between the
                         Downtown area north of the river and the Manchester area south of the river. The
                         attractiveness of Mayo's Island for wildlife will also be enhanced with these changes.

                      �  The western side of Mayo's Island provides potential access to a number of smaller,
                         nearby islands.

                         A number of smaller islands, including Vauxall and Sharps Islands, are located adjacent to the
                         western end of Mayo's Island. These islands are unoccupied and generally vegetated. Some
                         of them can be reached by wading during low water conditions or by canoe and kayak.
                         Providing access to Mayo's Island western tip would make it easier for people to view and,
                         during low water conditions, walk to, explore and fish fi7orn several of these islands. Creating
                         boat trails to the different islands would allow boaters to explore and learn more about them.

                                                                    23

                        MAYO'S ISLAND EVALUATION

                        V. THE ROLE OF MA YO JS ISLAND IN RELA TION TO
                            CITYPLANS

                        A. MASTER PEANIDOWNTOWNPEAN

                        Mayo's Island was addressed in the Riverfront Section of the City's 1984 Downtown Plan which
                        is a section of the 1983 City Master Plan. The City is currently in the process of updating the
                        Master Plan. Potential uses suggested for Mayo's Island in the 1984 Plan included: "ball fields; a
                        major sport center, including swimming, tennis, racket ball, fitness center, a gymnasium, saunas,
                        pro shops, restaurant and club."     12

                        When the 1984 Downtown Plan's Riverfront Subdistrict Plan was revised in 1994, Mayo's Island
                        was not directly mentioned. However, Mayo's Island has relevance to a number of policies and
                        recommendations mentioned in the 1994 amended plan.

                        1. 1994 Amended Riverfront Subdistrict Plan-Policies

                        Of the eleven "Riverfront Policies" listed in the 1994 amended Riverfront Subdistrict Plan,
                        Mayo's Island could play a role in the implementation of six of them." These six policies include:

                        N Promote public andprivate riverftont development which will provide economic development
                            bene ts, includingjobs, an increased tax base, and an improved downtown economy.
                                 fil

                            Uses on Mayo's Island could provide opportunities for small businesses to provide services
                            and products, for example, boat rental, boating classes, restaurant or food services, fishing
                            supplies and classes, etc. As an attractive resource, landscaped and maintained and providing
                            opportunities for people to experience the river in a variety of ways, Mayo's Island should
                            provide another river oriented attraction for people in the downtown area.

                               '2City of Richmond, Downtown Plan, 1984, Page 12 1. (The City of Richmond's current Master Plan was
                      approved by City Council in 1983. In 1984, the Master Plan was amended to *include the 1984 Downtown Plan which
                      was adopted by the City Planning Commission on November 2, 1984 and approved by the City Council on November
                      19, 1984 [Ordinance NO. 84-299-263]. The Downtown Plan was developed to address the concerns and needs of and
                      articulate a vision for the City's Central Business District. The Master Plan is currently being updated.)

                               13 1994 Amended Riverfront Subdistrict Plan of the 1984 Downtown Plan. Pages 2-3.

                                                                              24

                      MAYO'S ISLAND EVALUATION

                      0 Promote public andprivate riverftont development which will increase tourism andprovide
                         entertainment opportunitiesfor the public.

                         Mayo's Island's accessibility to Downtown, tourist facilities in the Downtown area, the
                         Main Street Station when it becomes a transportation hub, and other nearby river tourist
                         attractions, puts it in a position to play a role in tourism in the Richmond area. The types of
                         activities provided on and from the island will, in part, determine its attractiveness from a
                         tourist perspective. For example, a boating center, good fishing opportunities, fishing
                         contests, water related festivals, concerts, and an interesting restaurant are some of the uses
                         which might be a draw for tourists visiting the area. Also, providing easy transportation links
                         to other tourist visited facilities such as the downtown hotels, the convention center and other
                         attractions should enhance its attractiveness from the perspective of tourism.

                      0  Include public amenities in riverftont development which will provide a recreational benefit
                         to the region and complement private development.

                         Depending upon uses, Mayo's Island could provide recreational benefits by increasing the
                         opportunities for the public to experience and enjoy the James River at a unique area, the fall
                         line. Trails; landscaping; fishing access sites, including for handicapped fishing; a boat
                         launching site; food service; tackle shop; and other amenities and services would enable
                         Mayo's Island to provide a range of outdoor recreational benefits. Private development could
                         provide some of these recreational opportunities on and from the island.

                      E  Recognize the scenic beauty of the riverftont and encourage development -which is based on
                         public spaces andprovides a continuous, quality pedestrian greenway.

                         In its present condition, Mayo's Island is not especially attractive. However, removing some
                         of the existing impervious surfaces and landscaping and returning portions of the island to a
                         more natural state can make the island more visually pleasing. This will also increase the
                         amount of greenspace in the river corridor in the downtown area. Mayo's Island and the
                         smaller adjacent islands could become a part of a continuous, publicly accessible James River
                         greenspace corridor. Because of its easy accessibility via Mayo's Bridge, Mayo's Island could
                         be a link for pedestrian and bicycle use from both sides of the river, connecting with a variety
                         of trails and pathways, including the floodwall. Opportunities exist for developing canoe and
                         kayak trails and possibly, historic interpretation.

                         Returning portions of the island to a more natural state should make it more attractive to birds
                         and other wildlife. Mayo's Island and the adjacent islands can serve as part of a wildlife
                         corridor.

                                                                       25

                     MAYO'S ISLAND EVALUATION

                     0 Encourage development along the riverftont and canal which respects sunlight, open space
                         and view corridors.

                         Development of public open space on Mayo's Island, if properly designed, should be
                         complementary to this policy. A revegetated, attractively developed and landscaped Mayo's
                         Island should provide a more pleasing focal point when viewed from both sides of the river
                         and as a gateway. Just as importantly, with access, the island can provide opportunities for
                         people to experience exciting, diverse and interesting views of the river, the City skyline,
                         adjacent islands, bridges, the river banks, the floodwall and other scenes. Development should
                         complement, not detract from, the visual experience.

                     0   Recognize the benefits ofpublic1private partnerships in riverftont development.

                         Depending upon how access is provided and what services and opportunities are provided, the
                         development and use of Mayo's Island could be a cooperative partnership between the public
                         and private sectors. Current plans for the use of Mayo's Island for concerts, events, recreation
                         and dining by the aforementioned entrepreneur are not inconsistent with future City plans. The
                         City should pursue cooperative partnerships with the present owner and lessors.

                     2.  1994 Amended Riverfront Subdistrict Plan-Recommendations

                     Mayo's Island could also play a role in the implementation of the following recommendations of
                     the 1994 Amended Riverfront Subdistrict Plan:

                         The riverftont should be accessible ftom Shockoe Bottom and the Fanner's Market along
                         14th, 15th, 16th and I 7th Streets. 14

                         By providing public access, Mayo's Island, with its ease of accessibility, could provide an
                         opportunity for people coming from not only Shockoe Bottom but from other areas as well to
                         experience the river. The island provides an additional location where people could view the
                         river on both sides such as is the case with Belle Isle.

                           14 1994 Amended Riverfront Subdistrict Plan of the 1984 Downtown Plan. Page 4.

                                                                    26

                     MAYO'S ISLAND EVALUATION

                         Riverftont should be recognized as a special public resource which should be developed as a
                         whole system. 15

                         Mayo's Island and the adjacent islands could be an integral part of a riverfront system by:

                         1. Providing a link in a related James River greenspace with boating, walking, wading and
                             biking trails; opportunities to enjoy the river environment; and fishing opportunities,

                         2.  Providing the public with access and the opportunity to experience the James River at a
                             location where the deeper, tidal waters of the James River east of Mayo's Bridge meet the
                             fresh waters of the fall line rapids west of the bridge. This location creates a variety of
                             environmental and physical conditions and recreational opportunities which can be
                             experienced on and around Mayo's Island; and

                         3.  Linking with the James River Park system through trails, management and maintenance.

                     R MASTER PLANIENVIRONMENTAL ELEMENT

                     In 1993 an Environmental Element was added to the City's Master Plan. The Environmental
                     Element provides comprehensive policy guidance on environmental protection and preservation.
                     It sets forth policies and directions for City actions and recommends projects and programs which
                     will prevent or reduce environmental degradation. Five issue areas are addressed in the
                     Environmental Element: Air Quality, Natural Features, Noise, Solid Waste, and Water
                     Resources." Mayo's Island ties in directly with the Natural Features area.

                     The Riverfront Land Use and Development Section of the Environmental Element recommends
                     converting Mayo's Island to public open space: "the conversion ofMayo Island into public open
                     space is recommended due to its accessibility by City residents, including the handicapped, the
                     availability of excellentfishing opportunities, and the potentialfor boating access.""

                     The Environmental Element identifies the 14th Street Bridge, which crosses Mayo's Island, as the
                     most popular "fishing hole" in the City." It further indicates that the James River rapids are home

                           15 Ibid., Page 5.

                           16 Master Plan Environmental Element, Page 5.

                           17 Ibid., Pages 61-62.

                           18 Ibid., Page 49.

                                                                     27

                     MAYO'S ISLAND EVALUATION

                     to an excellent smallmouth bass fishery while areas of flat water below the downtown area are
                     known for exceptional largemouth bass fishing.

                     1. Environmental Element Recommendations

                     Other recommendations in the Environmental Element that Mayo's Island could potentially play a
                     role in meeting include:

                     E Identify andprovide access to existing andpotentialfisheries with the assistance ofpublic
                         andprivate groups.'

                         The fisheries resources and fishing activities are well established in the vicinity of Mayo's
                         Island. As indicated earlier in this report, Mayo's Island straddles the fall line, with
                         whitewater rapids and channels at the western end of the island and flat, tidal water at the
                         eastern end. This variation creates a variety of habitats for fish and other aquatic life.

                         Providing public access to Mayo's Island, which has had a tradition of fishing use, and
                         developing fishing facilities such as fishing pods or piers and handicapped fishing access win
                         increase fishing opportunities. This could potentially be accomplished by public and private
                         entities working cooperatively.

                         Increase handicapped access to fisheries, particularly in areas impacted by thefloodwall.

                         The floodwall is located along both sides of the river in the vicinity of Mayo's Island. It
                         significantly reduces access to the river from the river banks in this area. There is access to
                         the river from the south end of Mayo's Bridge, however, it does not offer handicapped access
                         for fishing. Even where there is some access, the rip-rapped areas associated with the
                         floodwall make it difficult, and sometimes impossible, for many people to reach the water.
                         The fact that Mayo's Island is easily accessible via the at-grade Mayo's Bridge helps to create
                         conditions favorable to providing handicapped access to the island, provided other actions are
                         undertaken, Handicapped parking will need to be developed on both sides of the island. In
                         addition, "handicapped friendly" walks will need to be provided on the island as will
                         handicapped accessible fishing piers at good fishing holes. Such actions would greatly
                         enhance the opportunities for everyone to fish.

                            19 Ibid., Page 48.

                            20 Master Plan Environmental Element, Page 50.

                            21 Ibid., Page 52.

                                                                      28

                      MAYO'S ISLAND EVALUATION

                      0  Provide for maintenance and security at urbanfishery access points.     12

                         Providing a public safety mini-station for police and river rescue on the eastern side of Mayo's
                         Island would enhance security and public safety in the area. Safety can also be enhanced by
                         increased public activity; the use of design elements, such as lighting; and having businesses
                         present.

                      0  Implement park and recreation area development and renovation projects through the CIP
                         (Capital Improvements Program) that are consistent with the greenways plan. '

                         Use of Mayo's Island and the smaller adjacent islands for recreation and open space use fits in
                         with the greenways concept. Mayo's Island is depicted in the Metro Richmond Greenway's
                         Committee Draft Concept Plan as part of a proposed River Trails/Boat Route." The island
                         can become a link for boating, biking and walking trails along the James River Greenway
                         corridor. Landscaping and revegetating the island, using native species attractive to wildlife,
                         will turn the island back into more of a greenspace and enhance it as a habitat for wildlife.

                      2. Natural Features Issue Area Objectives

                      There are a number of objectives listed in the Natural Features Issue Area of the Environmental
                      Element that Mayo's Island can help to reach:

                      E Promote the preservation and maintenance of existing vegetation and guide the planting of
                         new vegetationfor the purpose of improving the quality of development, improving the
                         aesthetics of the City, providing habitatfor urban wildlife, and minimizing stormwater
                         runoff. 25

                         Removal of some of the impervious surfaces, cleaning up, landscaping, revegetating, and
                         returning some of the island to a more natural state can make Mayo's Island more
                         aesthetically pleasing and attractive to wildlife and will reduce runoff. With appropriate
                         landscaping and development, Mayo's Island can become an attractive focal point or green
                         oasis which enhances the experience of people traveling from one side of the river to the other

                            22 Ibid., Page 50.

                            23 Ibid., Page 58.

                            24 Ibid., Figure 12, Page 55-a.

                            21 Ibid., Page 45.

                                                                      29

                     MAYO'S ISLAND EVALUATION

                         or visiting and viewing the island.

                     �   Preserve, manage, andpromote urban wildlife and wildlife habitat in a manner consistent
                         with the resources and needs of the City".

                         As indicated earlier in this report, returning portions of the island to a more natural condition,
                         removal of some of the existing impervious surface, landscaping and revegetation, especially
                         using native plant species attractive to wildlife, should increase wildlife habitat on the island.

                     E   Promote the development and management of the James River and appropriate lakes and
                         streams within the City as urban fisheries."

                         Providing fishing access from Mayo's Island will, as stated earlier in this report, improve
                         access for fishing by an urban population at a very productive fishing location.

                     �   Ensure availability and access to open space, recreation, and natural areasfor all citizens of
                         Richmond through implementation of a master plan for parks and natural areas. "

                         Mayo's Island and its namesake bridge has traditionally been used for fishing by people from
                         the Richmond area. Mayo's Island should be included in a master plan for parks and open
                         space as a publicly accessible recreation and open space resource. Its ease of access, close
                         proximity to a large number of people and location at the fall he makes the island an ideal site
                         for providing access to recreational opportunities and open space.

                     �   Protect the recreational, aesthetic, and environmental attributes of the James River
                                                                             29
                         consistent with its role as a unique urban waterway.

                         Converting portions of Mayo's Island to a more natural greenspace, and developing and using
                         it for primarily open space and outdoor recreation use will allow it to compliment the desire to
                         protect the recreational, aesthetic and environmental attributes of the river.

                           26 Ibid., Page 47.
                           21 Ibid., Page 48.
                           28 Ibid., Page 53.
                           29 Ibid., Page 58.

                                                                     30

                      MAYO'S ISLAND EVALUATION

                      VI. CONSIDEJU TIONS FOR THE A CQ UISITION
                            ANDIOR DE VEL OPMENT
                            OF MA YO'S ISLAND                            , MANAGEMENT AND USE

                      There are circumstances that can potentially affect the acquisition, development, management and
                      use of a potential recreation site. Identified below are nine areas to consider in the case of Mayo's
                      Island. These nine areas do not constitute the entire universe of things which may need to be
                      considered.

                          Hazardous Materials
                          If the City should choose to acquire Mayo's Island, the island should be evaluated by a
                          qualified source for the presence of toxic and hazardous materials and buried tanks. For a
                          number of years, the east side of the island served transportation uses and was used as a trailer
                          and truck storage and maintenance area. Two gas stations with underground tanks were also
                          operated on the island.

                          Floodplain and Flooding
                          The Island is located in the James River's 100 year floodplain. In the middle of the island, the
                          100-year floodplain is 36 feet in elevation while at the upper end of the island it is 36.9 feet.
                          Since and including Hurricane Camille in 1969, the island has experienced four floods
                          exceeding 27 feet. The Camille caused flood reached 30.76 feet. Hurricane Agnes, in 1972,
                          resulted in a flood, reaching a level of 36.5 feet, completely inundating the island. The most
                          recent flood, in the spring of 1996, was 22 feet high and resulted in minor flooding of a
                          portion of the island's far eastern end. Mayo's Island is 29 feet in elevation above sea level at
                          its highest point.

                          City Code restricts development in the 100-year floodplain." Some of the restrictions are:

                          �   No new residential construction, where construction began on or after December 9, 199 1,
                              will be allowed unless adequate vehicular access can be provided to the site at all times
                              prior to and during the 100-year flood.
                          �   Development or land-disturbing activities will not be permitted within a floodway district
                              if they will cause an increase in flood levels during the 1 00-year flood.
                          �   Development or land-disturbing activities will not be permitted if they will adversely affect
                              the capacity of any floodway or watercourse subject to the provisions of the City Code
                              Chapter on Floodplain Management.

                            30 City of Richmond, Code, Article II, Floodplain Management, Pages 937-950.

                                                                       31

                    MAYO'S ISLAND EVALUATION

                            Development or land-disturbing activities are not permitted in a Chesapeake Bay
                            Preservation Area (within which Mayo's Island is located) until a Chesapeake Bay site
                            plan has been approved.

                        Mayo's Island is located between two sections of the new floodwall which is designed to with
                        stand a 283-year level flood. Floodgates are located at either end of Mayo's Bridge. Access
                        to Mayo's Bridge would probably be restricted at floodwaters around 26 feet high, depending
                        upon the predictions for total flood height and the speed with which flood waters are
                        projected to rise. This height provides an approximately four foot margin of safety in which to
                        close the flood gates, which have a 301/2 feet sill elevation. It takes approximately nine hours
                        to close these gates. Prior to closing the gates, public safety personnel go to Mayo's Island to
                        alert anyone there that they should leave. Procedures are also in place to restrict access to the
                        island and bridge when the floodgates may not be closed but it is believed that flood
                        conditions pose a safety hazard to people.

                        Any development proposed on the island will have to consider the potential effects from
                        flooding. In addition, constraints on development in the I 00-year floodplain will also have to
                        be considered.

                        Chesapeake Bay Preservation Areas
                        Mayo's Island lies in a Chesapeake Bay Preservation Area with part of the island classified as
                        an Intensively Developed Area (IDA) which overlays the Resource Protection Area (RPA)
                        and the remainder of the island classified as a Resource Management Area (RMA) as defined
                        by the City's Chesapeake Bay Program, adopted by the City of Richmond in    1991.3' Figure 4,
                        on page 32a, depicts the limits of the IDA.

                        There are requirements which must met before development can occur in these areas. In
                        addition, there are some restrictions on development, depending upon the circumstances.
                        Development in Chesapeake Bay Preservation Areas win be required to meet various water
                        quality performance criteria and obtain various approvals.

                        Clean Up, Landscaping and Revegetation
                        The island needs to be cleaned up, revegetated and landscaped with native plants. Removal of
                        the eight inch thick, almost two acres in area concrete pad on the western end of the island
                        may be expensive. Cleanup work is under way on the eastern side of the island by an
                        entrepreneur who wants to hold concerts and events on that end. It is recommended that
                        native plant species attractive to wildlife and that can tolerate flooding from time to time be
                        used in landscaping when possible. Native species will have a better chance of survival.

                            31 City of Richmond, Public Information Manual, Chesapeake Bay Preservation Program, 1994.

                                                                    32

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                                                                                                                                                                                                                                                                       .....                               .....

                                                                                                                                                            Yi

                                                                                                                                                         . ........

                                                                                                                                                                                                                                                                                                                       Mll!!

                                                                                                                                                                                                                                                    .. ..... ...... ..
                                                                                                                                                                                                                                                    .......  .....
                                                                                                                                                                                                                                                    .. ......... .. ..
                                                                                                                                                                                                                                                    . ........ ..... .

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                                                                                                                                                                                                                                                       .. .. .......
                                                                                                                                                                                                                                                    .. .. ...........
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                                                                                                                                                                                                                                                       .. .... ...... ..

                                                      NMYO'S ISLAND
                                                                                                                                                                                                                                                                                                                   Base map provided by the City of Richmond,
                                                      INTENSIVELY DEVELOPED AREAS (IDA)                                                                                                                                                                                                                                   Department of Community Development

                                                                                                                                                                                                                                                                                                                                                                                              Figure 4

                     IAAYO'S ISLAND EVALUATION

                         When considering landscaping, attention should be given to developing a design and using
                         materials and vegetation which will reduce the amount of maintenance required.

                     E   Combined Storm and Sewer Outfall
                         There is a combined storm and sewer outfall (CSO) located on the north bank of the river
                         across from Mayo's Island. The lower James River from the Boulevard Bridge to the tidal
                         area does not meet water quality standards for bacteria according to the Department of
                         Environmental Quality. However, it is considered safe for fishing and consumption of fish.
                         The City of Richmond is currently involved in a major CSO project which will ultimately
                         result in the capture and partial treatment of CSO events which will then be released below
                         Mayo's Island. Until the CSO project is completed, direct human contact, such as swimming,
                         in the waters around Mayo's Island should not be encouraged.

                         Parking and Public Transportation
                         Satellite parking and public transportation should be provided in order to reduce the impact of
                         parking on the island's use as well as provide access for a broad range of potential users. The
                         entrepreneur who plans to hold concerts and events on the island has reached agreements with
                         nearby parking garages for people to park and walk to the island when events are held during
                         non-working hours. Parking on the island, especially the west side, should be minimized to
                         allow for greater revegetation and landscaping and reducing impervious surface areas. A
                         limited amount of parking is available at the floodwall parking lot located adjacent to the
                         floodwall and 14th Street at the south end of Mayo's Bridge. Consideration should be given
                         to providing a parking area on the north side of the river by the floodwall. and 14th Street.
                         Bus and possibly trolley service to the island should be available.

                         Traffic and Safety
                         Mayo's Bridge (14th Street) carries a significant volume of daily traffic. Traffic counts
                         conducted in September of 1994 indicated traffic volumes of 6,884 vehicles northbound and
                         8,156 vehicles southbound. Because of this traffic and concern for safety, it may be necessary
                         to install a traffic light on the bridge at the Island to allow pedestrians to cross the street to go
                         from one side of the island to the other and vehicular ingress and egress from the island.
                         Constructing perimeter paths around the two sides of the island that connect below Mayo's
                         Bridge at the southern side of the island would allow walkers to avoid crossing the street.

                         People will need to feel safe using Mayo's Island. Safety can be enhanced by increased public
                         activity, the use of design elements, including sufficient fighting, and having businesses
                         present. It is recommended that a public safety substation be located on the eastern side of
                         the island near Mayo's Bridge. Such a substation could house a small police unit and a river
                         rescue unit.

                                                                     33

                     MAYO'S ISLAND EVALUATION

                         River Access Difficulties
                         The majority of the island has steep banks approximately 25 feet to 28 feet high which create
                         challenges for providing access to the water and have the potential for erosion problems if
                         they are not vegetated. Both ends of Mayo's Island provide relatively easy access to the
                         water. The eastern tip of the island is adjacent to the Interstate 95 bridge and bridge piers.
                         Easy access to the adjacent islands west of Mayo's Island does not exist. These islands can be
                         reached by boat and occasionally people will wade/walk to them during lower river flows.

                         Maintenance
                         As with any recreation site, providing for proper maintenance on the island will be an
                         important issue. Facilities should be designed to minimize maintenance. Consideration should
                         be given to requesting volunteer assistance, especially from user groups.

                                                                    34

                      MAYO'S ISLAND EVALUATION

                      IL RECOMMENDA TIONS

                      A. USE, ACCESS, AND OTHER RECOMMENDATIONS

                      The overall recommendation for Mayo's Island is that it be returned to a more natural condition
                      and developed for a variety of open space and recreation uses, many of which are generally river
                      related. It is recommended that the western end of Mayo's Island be, in-part, returned to a more
                      natural state. More intensive development is recommended for the eastern portion of the island.
                      Boating access to the river is recommended here as well as the development of a boating center in
                      the existing T-shaped building. The potential for developing a full service restaurant in the 501
                      South 14th Street building on the east side should also be explored.

                      Fishing access is recommended for both sides of the island as are walking paths. Both sides of the
                      island should be cleaned up, landscaped and revegetated. Figure 5, on page 44a, depicts the
                      locations of a number of the recommended features. Specific recommendations include:

                      1.  Landscape, Revegetate and Clean Up the Island
                          The island should be cleaned up, landscaped, revegetated and returned to a more natural
                          condition. Landscaping could include creating grassed areas, constructing walks, planting
                          native trees and shrubs which attract wildlife, using attractive and informative signage,
                          landscaping parking areas, providing seating and using attractive fencing where needed.
                          Special emphasis should be given to returning most of the western side of the island a more
                          natural condition. A priority should be given to retaining the larger, more mature trees
                          growing on the island. The amount of impervious surface on the island should be reduced,
                          including removal of the concrete pad on the west side. Landscaping should be designed to
                          minimize maintenance, enhance security, create beauty, improve accessibility and support
                          wildlife. If the island is owned by the City, it is recommended that professional design
                          organizations be contacted to take on a portion or all of the landscaping as a project.

                      2.  Provide Handicapped Access
                          Opportunities for handicapped use of the island for fishing, visiting and viewing should be
                          developed and provided.

                      3.  Provide Access and Develop Pathways
                          Paths for walking, biking and access to the water, depicted in Figure 5, should be provided on
                          the island. A handicapped accessible perimeter trail should be developed along the top of the
                          bank for the entire island. It is recommended that the trail continue under Mayo's Bridge on
                          the south side of the island. This will allow trail users to have to cross from one side of the
                          island to the other without having to worry about traffic on 14th Street. To make the path

                                                                        35

                     MAYO'S ISLAND EVALUATTON

                         under the bridge wheelchair accessible may require a substantial amount of work along a
                         portion of the south bank on either side of Mayo's Bridge. An attractive, safety fence, similar
                         to the one on Brown's Island, should be installed between the path and the edge of the bank.

                         The perimeter of the west side along the edge of the top of the bank is well suited for a
                         walking and biking trail, offering over looks of the river and views of the City to the north.
                         Consideration should be given to constructing an overlook off the path on the north side, as
                         depicted in Figure 5, to allow views upriver, of the river's north shore, of the adjacent islands
                         and of a portion of the city skyline. A north-south path is also recommended to allow people
                         to cut across the middle of this side of the island. A view fi7om the north bank of the western
                         tip of the island is shown in Photo No. 14.

                                                                                                     In this view from the
                                                                                                     north side of the Mayo's
                            17
                                                                                                     Island's western tip, one
                                                                                                     can see rapids, boulders,
                                                                                                     adjacent islands and a
                                                                                                     portion of the City's
                                                                                                     skyline.

                                                                                         Photo 14

                         Access to the river on the north side of the island here is not suitable until one reaches the
                         western tip because of the very steep bank slopes and the presence of old stone walls. The
                         stone walls offer little opportunity for visitors to reach the water.

                         The upper tip of the island's west end offers a terrain that gradually slopes down and enters
                         the river under the Norfolk Southern Railroad bridge, shown in Photo No. 15 on page 37.
                         With minor work, this area could be used for ambulatory fishing access, hiking and exploring,
                         and canoe and kayak use. The tip also provides access to much of the base of the south side

                                                                     36

                             MAYO'S ISLANI) EVALUATION

                                   of the west end of the island, shown in Photo No. 16, for fishing.

                                                                                                                                                 Shown in this photograph
                                                                                                                                                 of the western end of
                                                                                                                                                 Mayo's Island is an
                                                                                                                                                 existing path running from
                                                                                                                                                 the crest of the bank to
                                 .!u                                                                                                             under the Norfolk Southern
                                                                                                                                                 Railway bridge to the
                                                                                                                                                 western tip of the Island.
                                                                                                                                                 This is an area of relatively
                                                                                                                                                 gently sloping terrain. The
                                                                                                                                                 western tip is well
                                                                                                                                                 vegetated and provides
                                                                                                                                                 access to the souther bank
                                                                                                                                                 of the western portion of
                                                                                                                                                 the island as well as to the
                                                                                                                                                 adjacent islands.

                                                                                                                               Photo 15

                                                                                                                                                 This view shows a portion
                                                                                                                                                 of the southern bank near
                                                                                                                                                 the western tip of Mayo's
                                                                                                                                                 Island. The southern bank,
                                                                                                                                                 which is vegetated, can be
                                                                                                                                                 reached via the island's
                                                                                                                                                 western tip and provides
                                                                                                                                                 fishing access to the river,
                                                                                                                                                 which is seen in the right
                                                                                                                                                 hand portion of the
                                                                                                                                                 photograph.

                                                         Al

                                                                                                                               Photo 16

                                                                                                    37

                      MAYO'S ISLAND EVALUATION

                          The Norfolk Southern Railroad tracks span the James via bridges and piers touching not only
                          the western tip of Mayo's Island but also crossing Vaxuall Island to the north and Sharp's
                          Island to the south. This connecting link offers a possible linkage for pedestrian access to
                          three of the largest islands in the downtown James. Consideration should be given to the
                          feasibility of developing a walkway between the islands and the north bank using the piers and
                          substructure already in place. Such a walkway would be expensive to construct and would
                          require negotiation and cooperation with the Norfolk Southern Corporation. It would also
                          have to be developed in a way that was safe for pedestrians to use, safe from rail traffic and
                          falling objects. The Norfolk Southern Railway crossing from Mayo's Island to Sharps Island
                          is shown in Photo No. 17.

                                                                                                       In this picture the Norfolk
                                                                                                       Southern Railway bridge
                                                                                                       can be seen spanning a
                                                                                                       porfion of the Jarnes River
                                                                                                       between Mayo's Island on
                                                                                                    N  me leil and Sharps Island
                                                                                                       on the right.

                                                                                          Photo 17

                          A perimeter walking trail should also be developed for the east side of the island. Three
                          access points to the water off of the trail are recommended on this side. All three access points
                          would allow for fishing, taking out or putting in hand carried boats and rafts, and being near
                          the water. Two of the access points axe recommended to be wheelchair accessible while the
                          third is not. Another pathway may also be needed for people to walk north-south across the
                          island. It is recommended that some type of netting or screening be positioned between the
                          CSX Railway tracks, shown in Photo No. 18, on page 39, and the ground below to protect
                          people on the island from falling objects.

                                                                       38

                         MAYO'S ISLAND EVALUATION

                                                                                                                              e       ai way
                                                                                                                           crossing of the eastern
                                                                                                                           portion of Mayo's Island.
                                                                                                                           North is toward the upper
                                                                                                                           right hand comer of the
                                                                                                                           photograph. The tires
                                                                                                                           seen in the photograph
                                                                                                                           have been removed,

                                                                              W I   t4

                                                 V                                                                 "A

                                                                                                      N
                                       R'2177- 7; iz.;AA

                                                                                                            Photo 18

                         4.   Provide Fishing Access
                              It is recommended that fishing access be provided at a number of sites on the island.
                              Providing access at the western tip will allow people fishing to access a portion of the
                              southwest bank and, depending upon river conditions, wade out into the water or to several of
                              the adjacent islands. Three fishing access locations are suggested for the east side of the
                              island. A site for handicapped and non handicapped fishermen is recommended via the boat
                              access ramp proposed for the south side. This will allow access to a portion of the south bank
                              and a handicapped fishing pier should constructed parallel to and along a portion of the bank.
                              Another potential handicapped/non handicapped fishing site is at the other boat access point
                              on the north bank. A fishing pier which runs along and parallel to the bank could be used by
                              both fishers. Providing access at the eastern tip would allow fishing access not only at the tip
                              but also to a portion of the south bank. Figure 5 depicts the access sites mentioned. The
                              proposed access sites for the eastern side of the island are shown in the following
                              photographs: Photo No. 19, on page 40, - north access site, Photo No. 20, on page 40, -
                              south access site and Photo No. 2 1, on page 4 1, - eastern tip.

                                                                                     39

                    MAYO'S ISLAND EVALUATION

                                                                                             This photograph shows a
                                                                                             portion of the north bank
                                                                                             of the eastern end of
                                                                                             Mayo's Island in the
                                                                                   fi
                                                                                             vicinity of the CSX
                                                                                             Railway crossing. The
                                                                                             access site is proposed for
                                                                                             just east (to the left in the
                                                                                             photograph) of the CSX
                                                                                             Railway, which is the
                                                                                             closest bridge to the
                                                                                             viewer. The Interstate 95
                                                                                             bridge can be seen in the
                     -A                                                                      background.

                                                                                  Photo 19

                                                               084!                          This photograph shows a
                                                                                             portion of the south bank
                                                                                             on the eastern end of
                                                                                             Mayo's Island in the
                                                                                             vicinity of the T-shaped
                                                                                             building. The access site is
                                                                                             proposed in the general
                                                                                             vicinity to the left of the
                                                                                             CSX Railway which is the
                                                                                             closest bridge to the
                                                                                             viewer. Interstate 95 can
                                                                                       mp-1  be seen in the background.
                                                                                             The south bank in this area
                                                                                             is vegetated and fairly
                                                                                             steep.

                                                                                  Photo 20

                                                                 40

                           MAYO'S ISLAND EVALUATION

                                                                                                                                 Access to the eastern tip of
                                                                                                                                 Mayo's Island, shown in
                                                                                                                                 this photograph, is
                                                                                                                                 relatively easy. From the
                                                                                                                                 sandy tip, one can walk
                                                                                                                                 along a portion of the
                                                                                                                                 southern bank for fishing.
                                                                                                                                 The Interstate 95 bridge
                                                                                                                                 piers can be seen in the top
                                                                                                                                 of the photograph.

                                               4

                                                       -r --Y-R-li
                                                                                                                  Photo 21

                           5.   Provide Boating Access and Develop a Boating Center
                                It is recommended that Mayo's Island become a focal point for boating, by providing facilities
                                and access for water craft that can be hand carried to the water such as canoes, kayaks, rafts,
                                racing sculls, row boats and possibly small jon boats. The facility and access points are
                                recommended for the eastern side of the island. A variety of boating related activities could be
                                conducted from the island:

                                0    Canoes, kayaks, row boats and possibly jon boats could be rented to people for fishing,
                                     sightseeing, exercise, nature observation and just paddling around on the river.
                                0    Canoe and kayak trails of varying degrees of difficulty and expertise required could be
                                     developed for paddling around the island and to the adjacent islands.
                                N    Classes could be held on boating and boating safety. Classes specifically designed for
                                     inner city children on crew, canoeing and kayaking could be developed by working with
                                     the school system and the Department of Recreation and Parks.
                                E    The island could potentially become the home for the Richmond Boat Club which is a
                                     crew organization that races scuffs.
                                0    A rafting concession which offers raft trips on the James River in the Richmond Metro
                                     area could operate off the island. Mayo's Island could be the take out point for raft
                                     excursions.

                                                                                         41

                     MAYUS ISLAND EVALUATION

                         Portions of the existing T-shaped building located on the east side of the island, shown in
                         Photo No. 7 on page 14, could potentially be adapted for reuse as a boating center. It could
                         be used by a concession which rented canoes and other small water craft; a James River
                         rafting business which conducted raft trips down the river; a crew organization for storing
                         racing sculls and holding meetings and for boating classes. Other amenities that should be
                         considered for the facility include space for offices related to outdoor activities on the island,
                         a classroom, a meeting room, bathrooms, a place to store outdoor equipment, and a snack bar
                         or vending machines. This facility could also be a place where bicycles could be rented and
                         water, biking and walking trail maps of the area obtained. The building could also be used by
                         a public safety police and river rescue unit. While parking currently exists by the building, it
                         will need to be attractively landscaped and the spaces lined off so that there is room to off-
                         load boats. In any development and use of this building, consideration must be given to the
                         potential for flooding of the island, the possibility of the island being closed to access during
                         certain flood conditions and any requirements necessitated by the building being located in the
                         100-year floodplain and a Chesapeake Bay Preservation Area.

                         There are several sites on the east side of Mayo's Island where access to the water for hand
                         carried boats and rafts could be provided. If the T-shaped building is developed into a boating
                         facility, then access could be developed on the south bank adjacent to the building. It is
                         recommended that a main access ramp be constructed at the south bank of the east side of the
                         island by the south end of the T-shaped building. A portion of this bank is shown in Photo No.
                         20 on page 40. This location would require a minimal amount of carrying to move boats and
                         rafts to the water. It would also help to keep boating related activities generally concentrated
                         in a main location and minimize conflicts with other uses. Consideration should be given to
                         providing a floating dock at the base of the ramp. This site should also provide fishing access
                         to a portion of the south bank. It is recommended that access for handicapped fishermen be
                         incorporated with the boat ramp since this is a good fishing area. An appropriate ramp slope
                         and rest stops will need to be used when designing the ramp.

                         Another, less developed access point for boating could be provided at the north bank at the
                         CSX Railway crossing area. This site could be used by canoeists, kayakers and rafters who
                         use the river north of the island. The north bank site, which is shown in Photo No. 19 on page
                         40, would also serve as an access point to the water for fishermen and others who wanted to
                         reach the water. This site should be handicapped accessible for fishing.

                         The eastern tip of the island could also be used for occasional take-out of rafts, canoes and
                         kayaks. Because of terrain, this is the most easily accessible, existing location to the water.

                     6.  Develop a Restaurant on the Island
                         The eastern portion of the Island may potentially be a good location for a full-service
                         restaurant. Dining on an easily accessible island in the middle of the river, with interesting

                                                                     42

                      MAYO'S ISLAND EVALUATION

                          views of the river and City skyline, should draw people. This might be especially attractive if
                          outdoor seating could be provided in good weather. The 501 South 14th street building,
                          depicted in Figure 5, should be examined to determine if it could be readapted for restaurant
                          use. In any development and use of this building, consideration must be given to the potential
                          for flooding of the island, the possibility of the island being closed to access during certain
                          flood conditions and any requirements necessitated by the building being located in the 100-
                          year floodplain and a Chesapeake Bay Preservation Area. In addition to a full-service
                          restaurant, it is recommended that some type of smaller food vendor or food vending area be
                          provided for boaters, people fishing, and people walking or biking to and on the island.

                      7.  Provide for Public Safety
                          The City should explore the possibility of locating a small public safety substation, possibly
                          staffed by bike patrol officers and a river rescue unit, on the east side of the island. Having a
                          police presence would enhance security and also provide for rapid response to either side of
                          the river. If these services are located on the island, it is recommended that they be located in
                          the T-shaped building or in a portable structure which could be moved during floods.

                      8.  Maintain the Recycling Center Operation
                          A 10, 000 sq ft parcel on the west side of the island bordering Mayo's Bridge is the site of the
                          Reynolds Metals Recycling Center, depicted in Figure 5. This center is open during the week
                          and its parking lot is used by people fishing and occasionally by boaters on the weekend and
                          after work hours for parking. In addition to its recycling operations, this center, with some
                          improvements, could become a site used to promote recycling through educational activities,
                          materials and signage.

                      9.  Provide Off-Site Parking
                          Off-site parking be encouraged as much as possible. On the west side of the island, parking
                          should be concentrated near 14th Street and limited to that needed by the recycling center,
                          handicapped parking, and a handful of spaces for fishing and boating access.

                          A greater amount of parking will be needed on the eastern side to serve the boating center,
                          handicapped access, parking for fishermen, and a restaurant. Parking for boaters should be
                          concentrated near the T-shaped building. Spaces need to be large enough to allow for off-
                          loading boats from vehicles. If a restaurant becomes a reality, then sufficient parking for the
                          restaurant, separate from other parking will need to be provided. Proposed parking areas are
                          depicted in Figure 5.

                          The City should explore the possibility of providing parking at the north end of Mayo's Bridge
                          on either side of 14th Street. Visitors could park there and walk to the island, just as they
                          presently do in the case of the south side.

                                                                        43

                     MAYO'S ISLAND EVALUATION

                     10. Provide Public Transportation
                         Mayo's Island should be served by bus and possibly the rubber tired trolley that used to
                         operate downtown. Both bus and trolley service would make it easier for people to reach the
                         island, especially those who do not have a vehicle or who choose not to drive. The trolley
                         could connect Mayo's Island with the proposed transportation center at Main Street Station,
                         downtown businesses, hotels and offices and possibly the offices on the Manchester side of
                         the river. Bus and trolley service to the island could reduce the need for parking.

                     11. Use the Island for Special Events
                         Mayo's Island could be use for concerts, festivals and river oriented outdoor events such as
                         fishing contests. Figure 5 shows the area suggested for special events.

                                                                    44

                                                                                                               LEGEND

                                                                                                                         Trail/Path                          Vegetation

                                                                                                                  P      Parking Areas           SP         Satellite Parking

                                                                                                                         Picnic Area with picnic tables and trash receptacles

                                                                                                                                                       0
                                                                                                                         Bank Fishing                  0 Traffic Light
                                                                                                                                                       0
                                                                                                                      0      Perimeter Trail - wheel chair accessible - crosses
                                                                                                                             under Mayo's Bridge on island's southern side.

                                                                                                                             Observation Point - wheel chair accessible.

                                                                                                                             Trail/Access to western tip of the island,
                                                                                                                             providing fishing access to a portion of the
                                                                                                                             southern bank and access to the water. While not
                                                                                                                             a formalized boat access, can be used for
                                                       ft                                                                    canoe/kayak take-out.

                                                                                                                             Recycling Center.

                                                                             4b                                              Trail/Access to western tip of the island,
                                                                                                                             providing fishing access to a portion of the
                        SHA"S                                                                                                southern bank and access to the water. While not
                        ISLAND                                   * %                                                         a formalized boat access, can be used for
                                                                                                                             canoe/kayak/raft take-out and put-in.

                                                                                                                       @     North Access Point to the water for fishing and
                                                                                                                             hand carried boats such as canoes, kayaks and
                                                                                                                             rafts. The fishing pier located parallel to the bank
                                                                                                                             can be reached by the boat access. Wheel chair
                                                                                                                             accessible.
                                                                                                  U11                        South Access Point to the water for fishing and
                                                                                                                             hand carried boats such as canoes, kayaks, rafts,
                                                                                                                             racing sculls and perhaps jon boats. The fishing
                                                                                                                             pier located parallel to the bank can be reached by
                                                                                                                             the boat access. Wheel chair accessible.

                                                                                                                             T-Shaped Building which could be used as a
                                                                                                                             boating center and for classes, bait and tackle
                                                                                                                             shop, restrooms and a public safety unit.

                                                                                                                             The 501 South 14th Street Building which could
                                                                                                                             potentially be used for a restaurant.

                                                                                                                             Lawn area for special events, concerts, and
                                                                                                                             festivals. Picnic tables could also be located in
                        MAYO'S ISLAND                                                                                        this area.
                        CONCEPTUAL PLAN                                                                                           Scale: V = 200'
                         (N)

                        RECOMMENDATIONS                                                                                   Prepared by JRH Associates

                                                                                                                                                                         Figure 5

                      MAYO'S ISLAND EVALUATION

                      B. POTENTIAL WAYS OFPROVIDINGPUBLICACCESS

                      There are several methods available to the City of Richmond and the Recreation and Park
                      Foundation to keep all or most of Mayo's Island as open space and available for public access.

                      1. Direct Acquisition by Airchase or Donation

                      Fee simple ownership by the City or foundation is the simplest way to assure that the island will
                      be accessible to all citizens in perpetuity. The owning agency would have control of the land and
                      remaining improvements allowing for development of plans to include the island as part of a
                      larger, connected river front and open space. Potential types of direct acquisition include:

                      E   Purchase: In this case the City would purchase the property fi7om the current owners at the
                          full market value. However, capital funds for park land acquisition are minimal if not non-
                          existent in the City's current and future budgets.

                      0   Bargain We Purchase: The entire island is or parts of it are purchased at a price well below
                          current market value. If the Recreation and Parks Foundation (Foundation), a 501(C)3 tax
                          exempt entity, purchased the property, the seller may take a charitable contribution deduction
                          for the difference between the full market value and the actual sales price. We recommend
                          that the Foundation work with an organization like the Trust for Public Land to handle the
                          purchase and hold the land until funds can be raised by the Foundation and the City to
                          purchase the Island.

                      0   Donation: This is the simplest and best method for the City or Foundation and provides the
                          greatest tax benefits to the donating landowners. This course should be pursued, but win
                          probably be a more successful method on the smaller, adjacent islands which have little or no
                          development potential.

                      0   Remainder interest with reserved life estate: This is a legally recorded transfer of title that
                          would give the owner lifetime rights to use the land. This enables the landowner to take a
                          charitable tax deduction at the time of the transfer. This option could possibly be attractive to
                          the owner of the property leased to the recycling operation, allowing him to continue to enjoy
                          the lease income from the recycling operation.

                      2 Land Exchanize, Lease and Joint Developmen

                          Land Exchange: Under this method, the City and the Foundation would offer to exchange
                          other City owned property to the current landowners for all or portions of Mayo's Island.

                                                                       45

                      MAYO'S ISLAND EVALUATION

                         This method was suggested by one of the landowners prior to his decision to sell his property.

                         Lease: The City and/or the Foundation could lease certain portions of the island or rights
                         thereto for public access. This lease should be long term (20 years or more) and include an
                         option of first refusal to purchase any or all of the island from the landowner(s) or lessee. It
                         would mean that the City's Department of Recreation and Parks would assume the
                         maintenance and policing responsibilities for the leased portion.

                         Joint Development: With recent changes in ownership of the island and current plans to
                         create recreational uses for most of it, joint development may be a viable alternative. The key
                         to a joint development arrangement would be a long term agreement between the present
                         landowners and the City of Richmond setting forth the specific responsibilities of each party, a
                         guarantee of public access and a right of first refusal to the City in the event the owner
                         chooses to sell.

                         Advantages to  the City and the public in joint development include having access to Mayo's
                         Island and the James River without a large initial capital outlay and possibly sooner than if the
                         City were to buy and develop the property by itself. Advantages to the landowners and
                         lessees include having the resources and expertise of the City to develop perimeter trails,
                         access points and to act as a conduit for funds from state and federal sources. Also, general
                         upkeep, maintenance and security would be better, making the entire island more attractive to
                         users. A joint development arrangement would require a definite commitment of additional
                         operating monies by the City's Department of Recreation and Parks.

                      C. IVADING RECOMMENDATIONS

                      Mayo's Island is privately owned, but there are opportunities for future public use of the island
                      for open space and recreation. The current fee simple owners are aware that this study of the
                      island for future open space and recreation uses is underway. In fact, they were informed of the
                      study when it began and were invited to attend the January 31, 1996 Workshop and a subsequent
                      meeting on February 23, 1996.

                      Potential funding options for Mayo's Island include:

                      0 Direct purchase of the entire Island from its current owners by the City.

                      0 Purchase of portions of the island, especially the western portion from Mayo's Bridge to the
                         upstream tip.

                      0 Long term lease of all or portions of the island by the City for public access and recreation.

                                                                      46

                     MAYO'S ISLAND EVALUATION

                         Purchase or lease of all or part of the island by a separate park authority or foundation whose
                         specific purpose is to develop and maintain Mayo's Island as a public park with public and
                         private concessions.

                     Discussions with private funding sources makes it clear that the City of Richmond must fund at
                     least a portion of the purchase price of Mayo's Island. Matching funds are potentially available
                     from foundations and organizations like the Trust for Public Land, but these sources require that
                     the benefitting municipality or foundation make the initial investment.

                     There is some indication by City officials that some funds may be available for purchase of park
                     land, specifically Mayo's Island, but these funds are limited.

                     In our opinion, the answer to funding lies in a combination of methods, each requiring cooperative
                     partnerships. The City's Department of Recreation and Parks must be a primary player since the
                     long term development and maintenance will fall within that agency's responsibilities. However,
                     the Department is currently under funded for its essential operations, making additional purchases
                     and subsequent upkeep questionable if not unfeasible. There must be a commitment from the City
                     administration and City Council to acquire and maintain open space within the City, specifically
                     along the James River.

                     As a non-profit, the Recreation and Parks Foundation is the logical entity to lead the effort to
                     acquire funds from private sources - individuals, corporations and foundations - to purchase, and,
                     where appropriate, provide maintenance funds for new parks and open spaces in the City. The
                     Foundation needs the financial and administrative support of the City, specifically the Department
                     of Recreation and Parks for several years. Also, the Foundation must strengthen its governing
                     Board by including more influential members of means.

                     A possible source of ffiture ftinds for land purchases and maintenance reserves for parks could be
                     from the sale of surplus City-owned property. Now, both real and personal surplus property
                     proceeds are returned to the City's General Fund. It would be a help if only 25 percent of these
                     funds could statutorily be designated for the City of Richmond's to acquire and maintain parks
                     and open space.

                     With a combination of City Capital Funds and private donations designated for the purchase of
                     Mayo's Island, and possibly adjoining islands, proposals to private land trusts for matching funds
                     should be made. A combination of City capital funds and private donations raised by the
                     Recreation and Parks Foundation for the purchase of Mayo's Island and possibly some of the
                     adjoining islands could be used to attract matching funds from private trusts such as The Trust for
                     Public Land.

                                                                     47

                     MAYO'S ISLAND EVALUATION

                     VIR. CONCL USION

                     Mayo's Island has the potential to become the focal point for recreational and open space access
                     to the fall line of the James River in downtown Richmond. Its size, location, and access offer the
                     best opportunities for both active and passive uses, combined with modest economic
                     development.

                     There is a unique blend of natural space close to downtown and nearby neighborhoods, easily
                     reached by intermodal means. The adjacent smaller islands offer complementary scenic vistas,
                     habitat and recreation potential, accessible fi7om north and south.

                     Mayo's Island can be linked to the floodwall, downtown, Church Hill, Ancarrow's Landing,
                     Gillies Creek, Brown's Island and Belle Isle by existing and easily developed trails for hiking and
                     biking. Mayo's Island is the only island in the metro Richmond area that is accessible at grade by
                     automobile and other intermodal means. This feature makes the island especially attractive for
                     recreational use by all, regardless of economic means or mobility.

                     Restoring most of the surface of Mayo's Island to a natural condition will be beneficial to wildlife,
                     reduce runoff and present a more pleasing environment for public use. This can be accomplished
                     without unduly restricting reasonable development of trails, access to the water, concert and
                     entertainment areas and support facilities in existing buildings.

                     Mayo's Island presents an opportunity for the City of Richmond that should be pursued. Public
                     ownership of the property would be preferable but a long term lease assuring public use with an
                     option to purchase from the existing owners is a reasonable alternative. Whichever course is
                     taken, it is in the best public interest to proceed with negotiations and proposals as soon as
                     possible. Richmond's downtown riverfront future should include Mayo's Island as a critical and
                     important component.

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