Creating Coastal Resilience through Community Engagement: A Plan for Lake Taylor

University of Samantha Hunt, Kate Green, Candace Craig Prof. Phoebe Crisman, Mengzhe Ye

Project Partners: Lake Taylor Civic League The City of Norfolk The Elizabeth River Project Wetlands Watch

May 06, 2019

TABLE OF CONTENTS I. Executive Summary II. Introduction A. Climate Change, Sea Level Rise, and Changing Weather Patterns B. Community Resilience C. Norfolk, Virginia and Lake Taylor D. Our Approach III. Methodology A. Summary B. Stormwater Background C. Our Partners D. Participatory Action 1. Community Meetings 2. Survey 3. Mapping and GIS analysis IV. Proposed Actions: A. Summary of Approach B. Storm water Management Series C. Enhancement of Community Assets V. Conclusion A. Reflections B. Next Steps C. Significance

Executive Summary

This plan seeks to improve community resilience in the Lake Taylor neighborhood of Norfolk, Virginia in conjunction with the objectives outlined by the City of Norfolk’s Green Infrastructure Plan1 and the Eastern Branch Environmental Restoration Strategy2 developed by the Elizabeth River Project. The University of Virginia (UVA), the Lake Taylor Civic League, Elizabeth River Project, Wetlands Watch, and the City of Norfolk collaborated on this plan to address the poor water quality and flooding in the Lake Taylor neighborhood with innovative green infrastructure solutions. A total of three meetings were held with the partners of this project and the Lake Taylor neighborhood residents to assess the needs of the community. Upon meeting with Lake Taylor residents and local organizations to understand community needs and pair them with the City of Norfolk and Elizabeth River Project’s objectives, the UVA team developed a two-part proposal described below.

1) For storm water management, proposed actions employ green infrastructure in order to catch storm water on site where feasible and to mitigate flooding issues throughout the water flow process. 2) For enhancement of community assets, proposed actions include new park spaces, increased public access to Lake Taylor, construction of shoreline buffers, and overall beautification with native plants and trees.

This proposal details how the implementation of green infrastructure can not only serve as flood mitigation, but also create a natural habitat to serve flourishing ecosystems and maintain a healthy environment for residents. The Lake Taylor community will serve as a model for future development in Norfolk and other areas of the world dealing with sea level rise and flooding.

Introduction Climate Change, Sea Level Rise, and

Changing Weather Patterns climate-related events, as well as changes in Climate change across the globe has been average climate conditions, are expected to increasing at unprecedented rates since the mid- continue to damage infrastructure, ecosystems, 20th century due to increased levels of and social systems that provide essential greenhouse gases. It is highly likely (over a 95% benefits to communities”.7 Extreme weather probability) that the extreme rate of climate events are placing unanticipated stress on change is caused by human activity. The result infrastructure, community planning, and human has been increased temperatures of the planet’s health to many communities already suffering. atmosphere and oceans, which has accelerated glacial retreat, decreased snow cover, and consequently caused sea levels to rise. In the past century, sea levels have risen 8 inches and the rates continue to increase exponentially.3

Ocean warming and glacial melting, in combination with accelerated decline of polar ice, have the potential to result in one meter or more of future sea level rise. The immediate effects of sea level rise are increased flooding and eventually submergence along coastal land.4 This is of great concern because as of 2003, approximately 3 billion people – or half of the world’s population – live within 200 kilometers of a coastline.5 By 2025, that figure is expected to double. Fourteen of the world’s seventeen largest cities are located along the coast or on estuaries.6 As sea levels rise, billions of people’s lives and some of the world’s biggest economic hubs will be at risk of severe disruption if the Figure 1: Flooding on East Coast coastlines and coastal communities cannot be Credit: Kate Green made resilient. Certain communities will feel climate change Furthermore, climate change is resulting in effects more dramatically thereby “exacerbating increased occurrences of extreme weather existing challenges to prosperity posed by aging events such as tornadoes, hurricanes, and and deteriorating infrastructure, stressed thunderstorms. Severe weather will result in ecosystems, and economic inequality”.8 Floods, increased high winds, excessive precipitation, storms, and erosion along the coasts are and wildfires. As climate change worsens, worsening from sea level rise and are “more frequent and intense extreme weather and threatening social, economic, and environmental

systems. Most immediately, however, shorelines and poorer drainage of storm water. These are shifting and communities are experiencing communities will face consistent flooding that greater storm surges, increased tidal flooding, may make them unlivable.

infrastructure. The Norfolk-Virginia Beach Community Resilience Metropolitan Area ranks 10th in the world in value of assets exposed to an increase in flooding from sea-level rise and To better prepare for the impending effects of has the second highest rate of sea level rise in climate change, communities are striving to be the U.S., second only to New Orleans.12 In more resilient. This term refers to a Virginia, there are more than 400,000 homes community’s ability to use existing resources to that are at risk for damage from storm surges respond to, withstand, and recover from natural with costs expected to be $92 billion.13 disasters. With increased occurrences and Currently in Norfolk, 4,132 residential extremity of natural disasters, communities must properties are at risk of damage from flooding; put extra emphasis on improvement of this number is expected to increase to 5,624 community resources, disaster preparation, and within 15 years.14 disaster recovery. As best stated by the National

Research Council on Disaster Resilience, “Enhanced resilience allows better anticipation of disasters and better planning to reduce disaster losses, rather than waiting for an event to occur and paying for it afterward”.9 Communities on the coast must be especially rigorous in planning for future sea level rise, specifically referred to as coastal resilience. Coastal resilience is set at the local level where the ongoing planning processes can incorporate planning for sea level rise. In order to strive for coastal resilience, “Local governments should use appropriate studies and analyses, such as build-out analyses and mapping of vulnerable areas, to identify preferred adaptation strategies and incorporate those into their plans and policies”.10

Norfolk, Virginia and Lake Taylor Figure 2: Lake Taylor Flood Map Neighborhood Credit: Wetlands Watch and Elizabeth River Project

The state of Virginia is experiencing some of Lake Taylor is a neighborhood within the city of the most rapid sea level rise along the east coast 11 Norfolk and located along the southern branch of the United States. In particular the Norfolk, of the tidal Elizabeth River. The neighborhood Virginia Beach, and Hampton Roads areas are spreads across 0.649 square miles and has a seeing more frequent and increased flooding and population of 1,376. North are facing the expensive realities of sea level forms the western boundary of the rise. The increased flooding and standing water neighborhood with I-64 Hampton Roads has placed unanticipated stress on Norfolk’s

Beltway as the eastern border. Lake Taylor itself and Northampton Boulevard form the northern boundary. East Virginia Boulevard is the southern border. However, our area of study excludes the JANAF development on E. Virginia Boulevard though it does fall within the Lake Taylor Civic League boundaries. A map of Norfolk’s Civic Leagues is below, with Lake Taylor outlined.

Figure 4: Lake Taylor Civic League Boundary Credit: Google Maps

Although the neighborhood is not directly impacted from coastal flooding and is not located on the coastline, it is set around a small lake called Lake Taylor and experiences other water-related issues. Lake Taylor is a man-made lake engineered as a drinking water reservoir in Figure 3: Civic Leagues - City of Norfolk, the late 1870s. The City of Norfolk residents Virginia struggled with low-quality drinking water Credit: City of Norfolk throughout the Civil War and the Yellow Fever epidemic using primarily water captured in rain barrels, cisterns, and wells, according to Norfolk City historian Peggy Haile McPhillips.15 Lake Taylor and its sister lake, Lake Wright, were designed as reservoirs to solve the drinking water issues and guarantee residents cleaner and more reliable water. The land of the Lake Taylor reservoir at this time belonged to the neighboring Princess Anne County. Eventually the land and lake were annexed to the City of Norfolk and the reservoir was connected to the nearby tidal Broad Creek through a weir. Today, Lake Taylor is no longer used for drinking water but still remains a part of the headwater for the Elizabeth River and feeds into Broad Creek.

This urban neighborhood is currently experiencing problems with poor water quality,

standing water, inadequate drainage, and flooding from storms. There is a lack of stormwater management infrastructure, and what little exists is in need of repair and reconfiguration. Due to the state of the infrastructure, roads commonly flood even during minor rainfall. Furthermore, Lake Taylor itself consistently ranks very poorly in water quality in Elizabeth River Project’s “State of the Elizabeth River” reporting. Lake Taylor falls within the Eastern Branch of the Elizabeth River, a tributary for the Chesapeake Bay and one that has a history of poor water quality and pollution. Broad Creek, the branch Lake Taylor feeds into, consistently scores an “F” on Elizabeth River Project water quality testing.16 The Lake Taylor neighborhood can be the pilot project for adaptation on high ground in Norfolk because this will serve as a place for future development as sea level threatens lower ground. Though small in size, this community will serve as a starting point for coastal resiliency and sustainability research and development, not only for Virginia but also for Figure 5: Flood waters consume back and the country, or even globe. Lake Taylor will front yards, Cornick Road Credit: Kent Haskett serve as a test case for future urban community-based mitigation and adaptation efforts in the face of climate change, sea level rise, and water quality issues.

Figure 6: Eastern Branch Watershed Outline - Lake Taylor in Red Credit: ERP Eastern Branch Environmental Restoration Strategy

Our Approach 3. Beautify and enhance access to natural areas in the neighborhood The focus of this proposal is to improve issues of water quality and flooding in the Lake Taylor Solutions will focus on improvements to community in Norfolk, Virginia. University of existing infrastructure and suggestions on Virginia Professor Phoebe Crisman and Global locations for additional green infrastructural Sustainability students collaborated with Lake changes. Furthermore, the design process Taylor residents, Elizabeth River Project, included economic, social, and equity issues. Wetlands Watch, the City of Norfolk, and the Both ERP and the City of Norfolk place a strong Lake Taylor Civic League to strategize emphasis on community engagement and innovative and effective solutions. In order to education; the intersection between ensure the effectiveness of the proposed actions, sustainability and environmental justice places a the UVA Team aligned its objectives with the strong need for critical thinking and focusing on The City of Norfolk’s Green Infrastructure plan the world as a system in order to solve and Elizabeth River Project (ERP) Eastern environmental and urban planning problems Branch Restoration Strategy goals and visions. alike. This will become an increasingly ERP’s vision statement is: important area of study as sea level rise “A healthy, enduring Eastern Branch, continues to threaten coastal communities with abundant habitat supporting around the globe. Therefore, throughout this thriving wildlife, will be a beloved proposal the community members were well destination for residents. It will connect informed and engaged in all decision making as diverse neighborhoods, sustain model it is not possible to solve these issues and take industries, and provide recreation; with dedicated actions without them. well-coordinated support across three 17 cities”. Methodology

As for the City of Norfolk’s Green Summary Infrastructure plan, the main objectives included18: For a community resilience project such as this 1. Increase and maintain natural green one, it is vital to get information directly from infrastructure the community members and organizations 2. Beautify areas where natural green involved locally. However, the UVA Team must infrastructure practices are less suitable also consult outside knowledgeable, respected 3. Provide adequate open space access to sources before offering solutions. Therefore, the ensure a healthful city for residents research includes both primary and secondary 4. Protect and restore natural shorelines sources. The primary resources consist of the and expand water access information gained from the community

stakeholders and the secondary resources help to After researching and understanding the current interpret the primary information, study relevant work based on ERP’s and the City of Norfolk’s precedents, and discover suitable solutions. goals, the UVA team developed objectives for this proposal. The three main objectives are as In order to gain a deeper understanding of the follows: problems faced by the Lake Taylor community 1. Mitigate flooding issues in the Lake specifically, the UVA Team met with the Taylor Community residents in three public meetings throughout 2. Improve the water quality in Lake the duration of this project. The Participatory Taylor, Broad Creek, and Eastern Action Research method was used because of its Branch of Elizabeth River emphasis on understanding local context,

reflection, and data collection to enable action possible.25 Currently there is a shift in design and “improve the world”19 (1, PAR). The UVA thinking away from grey infrastructure and Team used this method to engage the toward green infrastructure. Experts in the field community in order to promote collaboration, suggest the benefits of green infrastructure earn their trust, and collect data. While meeting include not only environmental benefits but also with Lake Taylor residents and Lake Taylor economic and social benefits.26 However, issues Civic League members, the UVA Team arise with trying to value ecosystem services - engaged in dialogue to gather first-hand when trying to put a value to the environmental accounts and collected data through a survey benefits. and mapping activity. All concepts and decisions proposed in this plan stem from topics The environmental benefits of green addressed at the three community meetings. The infrastructure are wide and varied depending on data collected from each meeting was combined the exact design implemented and the scale and with outside research and expert advice from location of the project. Nonetheless, green our project partners to produce this plan. infrastructure generally has been shown to improve air quality, conserve water, improve Background Research urban habitat, reduce urban heat, and improve 27 water quality and flood mitigation efforts. The majority of our research focused on green Though each of these can be quantified infrastructure design strategies and their individually as benefits (e.g. one can see air implementation as demonstrated through quality statistics improve), the benefit they various government and city planning reports. provide is often addressed qualitatively - Green infrastructure is defined as a “nature- improved air quality is good for human health based approach to address environmental because we know it is, but how can we show challenges such as stormwater runoff, flooding, that it is? It has proven difficult for erosion, and water and air pollution”.20 Green organizations and experts in the field to infrastructure is often proposed as an alternative quantitatively value ecosystem services and to grey infrastructure, whether it be used in demonstrate their economic worth. How much conjunction with or to replace the grey money does improved air and water quality save infrastructure altogether.21 Grey infrastructure people in the long run? What is a breath of clean refers to human-engineered water infrastructure air worth? If a living shoreline provides flood such as wastewater treatment plants and the protection, how much is that protection worth to pumps, ditches, pipes, and detention ponds used an individual, a community, a state 28 in stormwater management.22 Grey government? Continual efforts are being made infrastructure has been the primary method of by groups such as the World Resources stormwater management since 1987, when U.S. Institute, the Consortium for Climate Risk in the Congress mandated the U.S. Environmental Urban Northeast, and various universities to Protection Agency (EPA) to control certain provide tools to aid in such valuations. Their stormwater discharges under the National ultimate goal is to create a standardized method Pollutant Discharge Elimination System, a part to put a monetary amount to ecosystem services. of the Clean Water Act amendments.23 Once this is achieved, green infrastructure’s Seemingly the most important distinction economic benefits will reflect its environmental between green and grey infrastructure is that and social benefits as well. green infrastructure is designed “to restore the hydrologic function of the urban landscape, For now, the economic benefits of green managing stormwater at its source”.24 Grey infrastructure are evaluated based on infrastructure in turn is conventionally designed measurable, definable, costs such as operating to convey stormwater away from the built and capital costs. The U.S. Environmental environment as quickly and as efficiently as Protection Agency recommends multiple

articles and case studies to evaluate the and the importance of small actions as well as economic benefits associated with green big projects. infrastructure: “Banking on Green”; “Case Studies Analyzing the Economic Benefits of Overall, the government informational reports Low Impact Development and Green looked at all provide accurate, current Infrastructure Programs”; “Reducing information. The EPA report in particular has Stormwater Costs through LID Strategies and done a thorough job of laying out the necessary Practices”; and “The Value of Green and potential steps to implementing various Infrastructure”. A report produced for the green infrastructure designs. It even provides government of Delaware agrees that green individual fact sheets on different green infrastructure can often be implemented with infrastructure opportunities that could be equal, if not lower, capital and operating costs implemented in most areas and includes case than conventional gray infrastructure. Cost studies, estimated time frames, financing savings largely come from the reduced runoff options, and estimated maintenance and upkeep going into sewers and wastewater facilities, overviews. This report is extremely useful to particularly during high-volume rain events communities that may not have the funds to when damage to gray infrastructure is more commission a localized study and provides likely to occur.29 Though exact economic updated information and state of the art benefits will vary by location and scale of green techniques in an easy to read format. infrastructure implementation, it is a widely accepted as cost effective. The positive social Many local and state governments have impacts are also frequently listed as a beneficial commissioned green infrastructure reports for impact of green infrastructure. These include their own jurisdictions that include much of the improved property aesthetics, recreational same information. We have reviewed “A Green opportunities30, public education Infrastructure Plan for Norfolk,” published July opportunities31, and improved public health and 2018, and the various Climate Ready Boston safety.32 reports, published at different times. See footnote Though these reports provide much of the same However, not every green planning action needs information on green infrastructure and its to be a big one or an expensive one to prove benefits and drawbacks, they focus mainly on valuable. There are plenty of small, achievable how the techniques and design strategies can be actions community members and neighborhoods applied to the specific study area. Though can take by themselves that may not ever be thorough and full of exciting possibilities, these quantifiable by the EPA. There is value in a individualized reports seem lack actual community coming together to beautify the implementation strategies. For example, the first local park and rake leaves and pick up trash. overview report, Climate Ready Boston, was Creating a community garden may provide released in December 2016, but their “progress” ecological benefits in the long run but it also page shows the status of most of the proposed empowers a neighborhood by providing food strategies are listed as “not started” or “in security, a gathering place, and a positive development.” This is surely due to political landmark. A rain garden at the community complications and access to funding but it begs center or church helps filter rain water but also the questions, are these reports merely meant to provides the community with something to be give the appearance of climate action and proud of and to admire. Such actions do not planning? Norfolk’s plan brings in detailed need to be expensive and do not necessarily analysis, including the size of the tree canopy, require a city report to implement but they are how many trees could be planted in the open valuable nonetheless. Green planning must take space, and the setbacks that might be faced.33 It into account the benefits of social empowerment lays out similar details for other aspects of green planning such as living versus hard shorelines.

However, there is no implementation plan for while also promoting its economic value in the any of it. Every aspect is theoretical and not harbor economy. ERP routinely monitors the specific to any particular area or problem. This health of the Elizabeth River and rates the water seems to be a drawback with many localized quality on bacteria content, dissolved oxygen, reports. The information is there and accurate contaminants, nutrients, and fish health. In but there is little actionable advice - no plan for 2014, ERP released Eastern Branch the future. Environmental Restoration Strategy, a holistic plan to enhance water quality and restore Climate Ready Downtown and North End, in development environmental health in this area. This Climate Ready East Boston, October 2017 document references Broad Creek, the Climate Ready Charleston, October 2017 Climate Ready South Boston, October 2018 watershed encompassing Lake Taylor, Moakley Park Vision Plan, in development numerous times in the various strategies. While https://www.boston.gov/departments/environment/cli ERP has many ongoing restoration projects in mate-ready-boston-progress the area, the River Star Homes program was This report seeks to close this literature gap by most helpful in Lake Taylor as it encourages providing a real-world example of action at the household level to improve water implementing green planning in a way that is quality. Joe Rieger, the Deputy Director of feasible and attainable for areas as small as Restoration, and Grace Saunders, Eastern neighborhoods and as large as cities. The Lake Branch Lead Scientist, are the Elizabeth River Taylor report flips the standard paradigm by Project’s main points of contact for this study. first identifying specific problems with the community members, coming up with Wetlands Watch attainable, community-approved solutions, and then presenting them to the city. It is an Wetlands Watch, also a 501(c)(3) nonprofit empowering approach for the community and organization in Norfolk, leads efforts of sea puts the control back in their hands. It level rise adaptation, floodplain management, encourages communities to take action conservation landscape construction and themselves and provides concrete, fleshed-out maintenance, and citizen engagement.34 action plans for a government to then work Founded originally in 1999 to protect wetlands, with, rather than waiting for the government to this organization has expanded their efforts to come to the community. This study, informed mitigate sea level rise and “helping local by community outreach and engagement, takes governments adapt to this new threat to big, theoretical ideas, breaks them down, and Virginia’s coastal wetlands.”35 Skip Styles, applies them to a specific problem area. Our Director of Wetlands Watch, Shereen Hughes, approach is simple, replicable, and actionable. Assistant Director, and Ross Weaver, Program Assistant Director, were all partners in the Project Partners study.

Elizabeth River Project City of Norfolk

Elizabeth River Project (ERP), an independent The City of Norfolk also proved to be key 501(c)(3) nonprofit organization based in the partner during this project. One of the key Hampton road area, is leading the restoration of objectives of the City of Norfolk is to become a Elizabeth River to the highest possible more resilient city by using the area’s natural environmental quality. The Elizabeth River is a assets to improve the environment, community tributary of the Chesapeake Bay and well health, and established infrastructure. The City known for high levels of pollution. ERP has many ongoing projects and efforts to employs community efforts to restore the achieve three main resilience goals that combine Elizabeth River to former beauty and health economic security, coastal planning, and

strengthening of neighborhoods. The main point concerned with the wellbeing and safety of the of contact with the City of Norfolk was Justin neighborhood. Therefore, many meeting Shafer, a city environmental engineer working attendees were a member of this league. It was on foundational geospatial data on the area. important to first develop trust with the community members before presenting Lake Taylor Civic League solutions and changes to their neighborhood. At the meeting, the Elizabeth River Project and The Lake Taylor Civic League is a non-profit, Wetlands Watch both gave presentations neighborhood organization tasked with detailing the current conditions of flooding and improvement of neighborhood and enhanced water quality in Lake Taylor, Broad Creek, and quality of life. The Civic League is a very active surrounding areas of Norfolk. The community group that gives Lake Taylor residents a voice members learned that the water quality near in local government and City of Norfolk them consistently ranked very low. This planning. This group was essential to the information comes from the “State of the analysis of community assets and needs and Elizabeth River” report produced by ERP, contributed greatly to the success of this report. which details that Broad Creek received an “F” The Lake Taylor Civic league is led by Charla score because high levels of bacteria and low Smith-Worley. levels of dissolved oxygen among many others Participatory Action Research reasons.36 The UVA team introduced themselves, but placed emphasis on listening to In order to gain a deeper understanding of the the attendees to get a better sense of what they problems faced by the Lake Taylor community, value in their community and what they found the UVA team and partners met with the problematic. A survey was given to attendees to residents in three public meetings over a four- discover their backgrounds and their thoughts month period of January through April 2019. on community issues and assets. Results and Before the first meeting on January 26th, the analysis of this survey can be seen in the Survey team travelled to the Lake Taylor neighborhood Findings Section. The residents also participated to study the area and observe current conditions. in a mapping exercise where they placed dots on While the UVA team directly observed specific a map and wrote down what was beneficial or problem areas and their root causes, most problematic about the specific location. A more importantly, the community members helped to detailed description can be found in the identify areas of opportunity where Mapping Exercise Section. improvements can be made to make the space much more valuable to the community. Feasible Community Meeting 2: March 23rd, 2019 ~ and effective solutions lie not just in fixing the 12:00p.m.-2:00p.m. individual issues, but rather demonstrating that the community functions as a system and that The second meeting began with a presentation each person, house, building, and park from Wetlands Watch and then the UVA team contributes to the whole. presented possible solutions for the Lake Taylor area. Many of the community attendees were Community Meeting 1: January 26th, 2019 ~ present at the first meeting, but there were 12:00p.m.-2:00p.m. others who had not attended the first meeting. The community members offered helpful The first of three community visits was intended questions and comments throughout the mainly to develop an open and trusting working presentation. At the end of the presentation, relationship between the UVA research team, each proposed solution was reviewed to the NGO project partners, and the community determine whether or not the community members. The Lake Taylor Civic League is also members supported certain solutions or if they a large stakeholder in this project since they are had general concerns. They also identified areas

of concern that had not been previously improvements were beautification of the mentioned, including Old Phillips road and the community and access to pathways around Lake Lake Hubert side of the causeway. Also, the Taylor. When asked what community members heavily travelled walking path on the Lake would most like to see preserved, responses Hubert side of the causeway needs attention included beauty, tranquility, and greenspaces because it becomes a mudslide and is not (the most common answer). walkable after any rain.

Community Meeting 3: April 20th, 2019 ~ 12:00p.m.-2:00p.m.

The purpose of the third meeting was to present the final suggested solutions to our partners and the Lake Taylor community members. These proposed solutions were refined to address all the comments and concerns that our partners and the community members had expressed during and after the second meeting. These Figure 7: Likes About the Neighborhood following sections of this document contain Credit: UVA Research Team elements of the process and the final agreed upon plan.

Survey Findings

The survey was conducted at the first community meeting and consisted of questions ranging from general demographics (such as age and number of kids), to community engagement and needed community improvements - the Figure 8: Dislikes About the Neighborhood survey itself can be found in Appendix B. There Credit: UVA Research Team were 18 respondents, whose average age was 62, all homeowners, and a majority of When asked to detail possible solutions or ideas, respondents plan on living in Lake Taylor community members listed cleaning ditches and indefinitely. Sixty-seven percent of respondents proper grading, investment in improving live less than a quarter of a mile from the infrastructure and storm drains, property waterfront, and 38% have homes in the flood enhancement, and community and city zone. Of those seven respondents who have involvement. These suggestions correspond to homes in the flood zone, only two of them have the low ratings that the respondents gave to the flood insurance. When respondents were asked following topics (ranking system was 1 is what they most liked about the Lake Taylor unsatisfactory and 5 is excellent): City of Community, the most common responses were Norfolk Average Response to Community the trees, the quietness of the neighborhood, and Needs (2.44), City of Norfolk Emergency and most of all the convenience (see Figure 7). The Flooding Services (2.41), Infrastructure (2.5), strongest dislikes consisted of traffic, due to the Lake Taylor Water Quality (2.73), and use of the main street as a cut through, and Household Water Quality (3.44) (see Figure 9). flooding (see Figure 8). These responses corresponded to the most common things that respondents wanted to see improved, which were flooding and traffic control. Other

neighborhood such as increased traffic along Kempsville Road, but traffic is outside the scope of this study.

Mapping Exercise

The UVA team conducted a mapping exercise using four large maps of the study area that were hung on the walls of the meeting rooms Figure 9: Community Components Ratings (see Figure 10). Attendees were invited to think Credit: UVA Research Team of both problems and assets in their community, write a description of the location on a note The analysis of this survey guided development card, and place a corresponding sticky dot on of solutions for the Lake Taylor community, but the map to mark the location. Most attendees further research was needed for a few reasons. made many different marks upon the map and First, members who came to the meeting did not rarely was there a dot unaccompanied by the fully represent the geographic region of the dots of other concerned community members. Lake Taylor study area. Second, when This mapping activity is important because it comparing the demographics to census data, the not only identified the problem areas and the average age of the Lake Taylor community is assets of Lake Taylor, but also the extent to about 35, while the survey showed 62. The split which community members agree about these between own/rent is actually about 54%/46%, locations. while the survey participants were all homeowners. This is an important factor to take into consideration because people generally have differing levels of interests, values, and inputs depending on whether they own their home or are just renting. We found that typically our community meeting attendees were homeowners and older, more permanent residents. This is perhaps due to them having a longer and greater commitment and stake in the neighborhood compared to those who are temporary renters or those who have only just moved to the area.

In the survey, respondents included concerns and ideas about a range of issues outside the bounds of this community and the scope of the study. In some instances, like with the Town and Country Day School and raising of the Kempsville Road Causeway, the City is in process of developing ideas and addressing the issues. As such, they are not addressed in this report. The IKEA also falls outside the bounds Figure 10: Community Members work with of the Lake Taylor neighborhood, however, map of Lake Taylor community members expressed concerns of Credit: UVA Research Team negative impacts overspilling into the

surface level. They consist of structures such as Proposed Actions: retention features that provide additional storage space during heavy precipitation and hold

stormwater on site for future use or release as In response to the community needs, along with needed. Solutions that slow stormwater are the objectives and concerns outlined by designed to catch precipitation where it falls in Wetlands Watch, the Elizabeth River Project, order to decrease the rate of flow across the land and the City of Norfolk, the UVA team and increase absorption on site. These solutions designed a holistic, two-part approach to are best used when water table levels are greater address the water quality, flooding, and storm than 13 feet below the surface level. Solutions water management issues of the Lake Taylor that slow and capture stormwater on site are community. Sustainable Stormwater preferred because they reduce the need to Management addresses problem areas and relocate and manage water elsewhere. “Capture” infrastructure issues. Enhancement of and “slow” solutions improve water quality as Community Assets addresses other public assets less runoff is exposed to impermeable surfaces that can be improved to benefit the Lake Taylor and their pollutants and is instead allowed to community. Modification of these areas not filter and permeate onsite. As a last resort, only mitigate flooding and improve water discharge solutions are necessary when the quality, but will add beauty, enhance ecosystem water table is 0-8 ft below surface level and restoration and biodiversity, and increase only limited amounts of stormwater can be functional green spaces in the Lake Taylor absorbed on site. These structures consist of community. Ideally these strategies would be pipes and ditch systems that efficiently drain realized together in a holistic way but can be stormwater away from where it fell to prevent implemented independently or in phases. flooding and pooling. The following sections

layout the proposed solutions for the Lake Taylor community in the categories of Capture, Slow, and Discharge.

Figure 11: Holistic Two-Part Approach Summary Credit: UVA Research Team

Sustainable Stormwater Management Figure 12: Three-step Approach to The Sustainable Stormwater Management Sustainable Stormwater Management solutions were developed around the Credit: Hampton Resiliency Plan, Wetlands Watch fundamental concept of three steps: Capture, Slow, and Discharge (see Figure 12). These Capture three steps are not necessarily sequential and are designed to work together in parallel to form a 1) Rain Barrels and Underground Cisterns green storm water management system. Solutions that capture stormwater are used Rain Barrels and Underground Cisterns are used when the water table is 8-13 feet below the to capture rainwater coming off of the roof of

homes and other buildings. Rain barrels can be pilot a program to see if switching her gravel- utilized on almost any property and can capture filled septic tank to a rainwater cistern will be 14,000 gallons of rainwater per year, according effective. However other residents have also to the Elizabeth River Project’s website.37 expressed an interest. Actual capture amount will depend on roof and rain barrel size. For example, a half-inch rainfall Maintenance for Rain Barrels and Cisterns: event will yield roughly 300 gallons of water 38 from a 1,000 square foot roof. As a partner in  Empty between storms to prevent overflow. this research, the Elizabeth River Project offers Flow bypass valves may be used to avoid funding to homeowners who wish to install rain this process. barrels. Through joining ERP’s River Star  Drain rain barrels during the winter months Homes Program, a homeowner can get a 125- to prevent freezing. gallon rain barrel for only $125 and will have  Place mesh screens on any opening to help installing the rain barrel. Rain barrels are prevent mosquitoes, small animals, and appropriate to install on homes, businesses, and debris from collecting. nearly any property. In Lake Taylor, it is mostly  Inspect rain barrels and cisterns periodically. single family homes and rain barrels are something homeowners can install themselves. Throughout the meetings, many attendees expressed interest in adding rain barrels to their homes and agreed to reach out to ERP. Charla Smith-Worley proposed her house and yard be used as an exemplar.

Underground cisterns are generally bigger than rain barrels, but are installed underground and out of sight. When mentioning this at Meeting 2, attendees questioned whether old septic tanks might be used a de-facto cisterns. Many Lake Taylor residents once used septic tank systems to treat household wastewater but have since switched to sewer. Many of these disused septic tanks were not removed and were instead left in place, cleaned out, and filled with gravel. The Florida Keys Aqueduct Authority has written on the subject of septic tank conversions to cisterns and encourages its residents to pursue this Figure 13: Rain Barrel option. Their detailed instructions can be found Credit: ERP Website here. Briefly, once the septic tank has been properly unhooked from the building’s wastewater, the tank should be pressure cleaned and connect roof gutter downspout(s) to tank.39 Residential septic tanks range in size depending on the number residents in the household but generally hold 750 gallons to 1,250 gallons.40 While the old septic tanks in Lake Taylor have mostly been filled with gravel, they will likely still be able to hold a significant amount of rain water. Charla Smith-Worley has volunteered to

Anne Park and have already been planted in the green space near the causeway.

Mockernut Hickory River Burch

Figure 14: Underground Cistern Credit: YourHome - Australia’s guide to environmentally sustainable homes41

2) Trees Red Maple

Trees are another solution to capturing Figure 15: Sample of Native Trees stormwater. One mature tree can uptake 3,000 42 Credit: Native Plants for Southeast Virginia or more gallons of water annually. Also, an urban canopy can reduce a city’s stormwater 43 Maintenance for Rain Barrels and Cisterns: runoff by anywhere from two to seven percent. Furthermore, it is important to plant native  Water newly planted trees species, some of which include the Red Maple,  Monitor for diseases and insect damage 44 River Birch, and Mockernut Hickory. Urban  Use and maintain mulch trees offer climate regulation services that can  Pruning, which is generally every 3-5 years improve public health, decrease overall Slow Control invasive species temperatures, and reduce energy costs. They also add aesthetic appeal to the neighborhood 1) Native Species and habitat for a variety of species that are part of the ecosystem in Norfolk. Trees absorb air Native species are vital to a flourishing pollutants through their leaves and capture ecosystem. They are important for the health carbon dioxide from the atmosphere and store it and livelihood of other native animals and 45 in plant tissues and the soil. What is more, the plants, but also offer services to humans. City of Norfolk’s 2018 “A Green Infrastructure Planting native plants is necessary for a healthy 46 Plan for Norfolk” stresses the importance of watershed. These plants provide oxygen and a increasing the tree canopy in this area. In this habitat for both freshwater and saltwater report, the City indicates that “Norfolk’s current ecosystems, and their roots absorb nutrients and urban tree canopy is 25.8% and the new canopy prevent erosion. Erosion prevention reduces goal is to increase canopy to 30%. This will pollution and improves water quality. As shown require the planting of 104,000 more trees at a in Figure #, native species have deeper root rate of 5,200 trees annually to reach the goal systems than non-native species. The deeper 47 within 20 years.” Thus, planting more trees in roots of native species help absorb stormwater Lake Taylor can ease water quality and and mitigate flooding. stormwater stressors, while also contributing to a lofty goal of the City of Norfolk. More trees could be planted along the edges of Princess

Sundial Lupine Black Eyed Susan

Figure 17: Sample of Native Plants Credit: Native Plants for Southeast Virginia Guide

2) Landscape Planters Figure 16: Diagram of Root System for Native vs. Non-Native species Landscape planters are an easy implementation Credit: Field Guide-Native Plants48 for homeowners and business owners. They are aesthetically pleasing and help to manage and Beyond stormwater management and habitat, filter rainwater that runs off of roofs or other another benefit of using native species is that impervious surfaces. Landscape planters spraying pesticides for insects is generally not provide the most stormwater management necessary because insects that feed on local services when native plants such as the ones plants don’t damage the plants. This not only listed previously are used. In landscape planters, saves time on maintenance, but also money. the rainwater enters the planter and filters Landscape planters, rain gardens, and vegetated through a layer of mulch, soil and sand. The swales, which are introduced in the following excess water that makes it through all the layers sections, are solutions for slowing stormwater then flows out of the planter and onto the lawn and their designs have a dependency on plants. or landscaping. In the Lake Taylor These solutions must be implemented using neighborhood, landscape planter could be native species to Virginia in order to ensure the implemented not only at private residences but greatest effectiveness and long-term use of the also businesses such as the Town and Country solutions. Some plants native to the Hampton Day School. Roads area include Marsh Marigold, Spring Beauty, Sundial Lupine, and Black Eyed 49 Susan. There are several resources available to help Lake Taylor residents select appropriate species, such as the Native Plants for Southeast Adherence to the following guidelines will Virginia guide. ensure that planter overflow cannot damage the adjacent buildings. The overflow outlet should be:50

 A minimum of 6 feet from a house with a basement  At least 2 feet from a house with a crawl space or slab foundation Spring Beauty Marsh Marigold  At least 5 feet from any property line

 At least 3 feet from a public sidewalk

great additions to most private homes and areas There is limited maintenance required. The with more open land such as churches and the rainwater will water the plants year-round, Transitional Care Hospital. Charla Smith- except during dry spells. The two main tasks to Worley has again volunteered to be the example keep the plants in good health and retain the for the community, but several community functionality of a landscape planter are: 1) weed members have also expressed an interest in and mulch the planter, and 2) water the plants constructing rain gardens in their lawns as well. during dry summer months. Those interested were advised to reach out to ERP and their River Star Homes Program to receive a free yard placement assessment and quote.

Figure 18: Diagram of Landscape Planter Credit: EMSWCD51 Figure 20: Example of a Rain Garden Credit: Elizabeth River Project

Figure 19: Possible Design of Planter Credit: Charles County, MD52

Figure 21: Example of a Rain Garden 3) Rain Gardens Credit: Elizabeth River Project

Rain gardens are shallow depressions in the There are a few site and design considerations in earth with vegetation that collects and infiltrates order to have a beneficial rain garden:53 rainwater into the ground. They consist of multiple layers of mulch, soil, and plants, all of  Rain gardens function best on gentle slopes which help to absorb water and pollutants. Rain ranging from 1 to 10 percent gardens reduce the volume of water in sewer systems, provide natural habitats for species,  Rain gardens are best located where surface and are aesthetically pleasing to community water drains off paved surfaces or turf grass members. Rain gardens are an ideal solution in  Avoid areas with poor drainage that will not the Lake Taylor neighborhood because they are support infiltration  Avoid compaction of soil by heavy equipment  Rain gardens should be installed at least 10- 30 feet away from any building  Plant selection should include native species

corner of Kempsville and Prince Avenue. She has agreed to use the ditches in her yard along Prince Avenue as a potential first retrofit (see Figure 23). Another proposed location for ditches to be retrofitted into vegetated swales is 4) Vegetated Swales along Cornick Road. These residences

experience significant roadside standing water.

The final area identified by the community for a A vegetated swale, also known as a bioswale, is test is Old Phillips Road – see Figures 24 and a shallow channel that has dense vegetation to 25. slow stormwater runoff and help it infiltrate into

the ground. They also reduce the volume of stormwater in drainage systems, absorb pollutants, provide habitat for native species, and add aesthetic appeal to a community. Vegetated swales are generally best located near a road or parking lot, and site considerations include:54

 A swale should be constructed with a 6 h percent slope to allow water to flow o m  Dense vegetation is necessary to help retain e water and facilitate infiltration s  Swales are best utilized in coordination with other stormwater practices to provide pretreatment of stormwater  Areas with high volume and/or velocity of runoff may be prone to erosion  Swales located next to a road or pedestrian need to have a walkway for access over the

swale. Figure 21: Example Location for Swales, Kempsville Road As for maintenance, there are a few steps to be Credit: Google Maps, UVA Research Team considered:55

 Remove trash and debris from the swale  Monitor vegetation and invasive species  Trimming and mowing may be periodically necessary  Addition of mulch or soil to damaged areas and replacement of dead trees and shrubs There are many suitable locations for vegetated swales in the Lake Taylor neighborhood because there are so many traditional roadside ditches. Areas of focus might first be along Kempsville Road – see Figure 21. This is a major road with many homes and organizations that may be willing to work with the city as a trial run. Charla Smith-Worley lives on the

Figure 25: Current State of Old Phillips Rd Ditch Figure 22: Example Location for Swales, Credit: Charla Smith-Worley Cornick Road Credit: Google Maps, UVA Research Team Approach B: Enhancement of Community Assets

Princess Anne Park Improvements:

Princess Anne Park is located at 1450 Kempsville Road, at the intersection of USAA Drive and Kempsville Road. It is currently the only park in the Lake Taylor community. The park is fenced-in with a parking lot on Kempsville Road; there is a baseball field, scrimmage basketball court, playground, and a large, open grassy area. There are benches along Figure 23: Illustration of Potential Swale the baseball field and more benches and a picnic Credit: UVA Research Team area under the trees away from the road. During the first public meeting, the Lake Taylor residents identified Princess Anne Park as a great community asset that is used quite often and enjoyed, particularly for the playground and basketball court. However, they also identified needed improvements in order for the park to better serve the neighborhood. One response expressed a desire for more shade trees (Note card #88), and various note card comments brought up issues of flooding and standing water after even minor storms. Verbal

Figure 24: Current State of Old Phillips Rd commentary explained that the grassy areas Ditches have large puddles that stayed around for days Credit: Charla Smith-Worley after rain and that sections of the park got very

muddy (Meeting 1). Another note card asked for walking paths within the park (Note card #10).

Rain Garden Installation:

Once residents identified what they liked and disliked about Princess Anne Park, the UVA team developed a proposal to add one or more rain gardens in low areas where standing water tends to accumulate after precipitation events. Refer to Figure 26 for specific locations. One such area is on the southern end of the park near the parking lot. Another elongated garden could be added along the eastern edge and run along Kempsville Road. A third area is at the north- eastern corner near the intersection. These locations would not interfere with the baseball field’s outfield or be in the way of the basketball court. The rain gardens will help water infiltrate into the ground after light rainfalls and will capture and hold rainwater after more Figure 26: Potential Locations for Rain significant rainfall events. During installation, Gardens in Princess Anne Park the ground should be graded slightly to direct Credit: Google Maps, UVA Research Team runoff flow into the gardens, but not enough to affect the usability of the grass areas for play. The plants used in the gardens should be native to Virginia so as to improve the water absorption and filtration abilities of the garden but should also be carefully chosen to be non- toxic to humans or animals if touched or consumed. The rain garden could have stepping stones throughout to create small walking paths for park-users to enjoy during dry periods. Making the garden walkable will also mitigate fears of taking usable park space away.

Figure 27: Current Flooding and Pooling at Princess Anne Park Credit: UVA Research Team

Figure 28: Princess Anne Park with Proposed Rain Garden Credit: UVA Research Team

Horseshoe Park Figure 29: Location of “Horseshoe” Park “Horseshoe Park” - as it was nicknamed during Credit: Google Maps, UVA Research Team the second community meeting - is the public land between the Kempsville Road causeway and Town and Country Day School (see Figure 29). The property has a pull-through driveway in an elongated horseshoe shape - hence the nickname - and a small area for parking. The property abuts the lake, has newly planted shade trees, existing shade trees, and open grassy areas. With the addition of a picnic area or a gazebo, this could easily become a lovely park along the water for the community to use. Unfortunately, though the land is designated as ‘public property,’ a “No Trespassing” sign (see Figure 30) prohibits public access. Early on, the UVA team saw this area as a potential new park area and the residents enthusiastically supported the idea at all three community meetings. If the City of Norfolk could allow public access, this area could very easily be transformed into a wonderful park and community asset.

Figure 30: Warning Sign at “Horseshoe” Park, Indicates Lack of Lake Access Credit: UVA Research Team

Public Access to Water: This plan proposes that the City of Norfolk and The park could be the ideal location to add a Norfolk Public Schools work with the Elizabeth public access point to the lake. As it stands, River Project to clean up the school shorelines there are no public places where one could and to create riparian buffers along the lake. launch a kayak or canoe - the majority of These buffers will help slow and filter runoff lakeside property is privately owned. With some before it enters Lake Taylor while improving landscaping and grading, a small dirt ramp the habitat and appearance of the area and could easily be added to the shore. Such a ramp giving users better vistas of the lake. Improving could also be a good spot for fishing. Careful the water quality of Lake Taylor is a goal of all planning and landscaping along the shoreline involved and will be aided through the use of could also turn Horseshoe Park’s shores into riparian buffers at such a large property as the buffer zones. The Elizabeth River Project has schools. More native trees could be added to already completed similar buffer projects and further the City of Norfolk’s Green could spearhead this effort. Buffers will help Infrastructure Plan’s goal of increasing the tree slow and filter runoff into the lake creating yet coverage. A buffer also improves the natural another benefit from this potential park. coastline habitat and will increase biodiversity. Furthermore, in the past, the buffers that ERP New Sidewalks and Safety Measures: has help design and implement have included walking paths to give people more waterfront If this area is turned into the attractive park it access without disturbing the waterfront. The could be, there is likely to be more foot traffic buffers could also be used as an educational tool along the causeway and the stretch of for the schools to teach about sustainability and Kempsville Road leading there. The existing the science of stormwater management and sidewalks are crumbling and very uneven. The eutrophication. community sees this as an opportunity to encourage the City of Norfolk to fix and Wooded area along I-64 (See Figure 31) improve the existing sidewalks. A popular public attraction like a park, and one near a There is a large section of woods to the west of school at that, demands safe access. the Hampton Roads Beltway (I-64), between Lake Taylor and Kempsville Road. Currently The Lake Taylor Middle and High Schools the woods remain undeveloped and uninhabited, but some residents voiced concern at the first Public access to waterfront: community meeting that the area may soon be sold for development. Though unclear who The Lake Taylor Middle and High School owns this stretch of land, the Lake Taylor properties border the north side of Lake Taylor, community generally sees the untouched natural however, none of their extensive shoreline is area as an asset. Residents also explained that in currently being used to give the public access to the past there have been some issues with the water. At the second community meeting, littering and homeless camps in the woods. attendees discussed how this might change. Residents liked the idea of cleaning up the shoreline along the school property. They also brought up the idea of creating walking paths along the water and expressed understanding that something like a kayak launching spot might not be possible due to safety concerns on school property.

Buffer areas:

this might increase the chances of littering and encourage people to camp deeper into the woods. Based on the discussion that followed, the idea of adding trails was decided against.

Community Engagement Education

There are opportunities for community engagement and education within the proposed community enhancements and throughout the proposed actions. This can be as elaborate as a science class helping ERP design the buffer zones at the school or as simple as installing small signs at Horseshoe Park that identify what the riparian buffer is, what it does, and why native plants are used. Any area with walking paths offers an opportunity to add signage with fun facts and explanations about what the users are seeing around them. Rain barrels and rain gardens are great additions to schools to help teach students about responsibility, gardening, and working together. Education has been Figure 31: Location of Wooded Area Along proven to be a crucial step in encouraging Highway 64 people to become supporters of sustainability Credit: Google Maps, UVA Research Team efforts and will be necessary in order for the next generations to continue to maintain and Remain Untouched: build upon the sustainability efforts of this generation. One option is to leave this area as it is. Based on the note card responses, this was the most popular option among the community members Conclusion who attended the first meeting. The community noted the benefits of leaving this as natural Reflections habitat for animals as well as a natural riparian buffer for Lake Taylor. It also appears that, This proposal reflects in depth research and based on flood prediction maps, this area floods collaboration with the Lake Taylor Civic rather easily and therefore would not be a League, Elizabeth River Project, Wetlands contender for future development. Watch, City of Norfolk, and, most importantly, the residents of Lake Taylor. The community Trails: members were vital contributors in this process as they provided clear direction for the research A few residents present at the first meeting of the UVA team. During the community expressed an interest in creating a trail or a meetings, residents detailed a comprehensive series of trails through these woods. Ideas history of the problems in their neighborhood, included a trail that leads to the lake and as well as fully explaining the assets that make perhaps could have an access point for kayaks Lake Taylor a unique and hospitable place to or fishing and a trail loop with benches live. The UVA Research team learned (Meeting 1). When this idea was raised, a few invaluable lessons from this partnership and community members pondered aloud whether

discovered what it takes for all partners to be Significance successful on a project focused on sustainability, economic feasibility, and The Lake Taylor neighborhood presents an community resilience. opportunity to develop an ideal model for community resilience and modern stormwater Next steps management practices. Once new green infrastructure plans have been implemented, the The next steps for the Lake Taylor neighborhood will exemplify how similar neighborhood will be developed in three unique communities can respond to the growing pathways that tie into the solutions proposed in impacts of climate change. Furthermore, the this report. First, the City of Norfolk will be Lake Taylor neighborhood will see powerful tasked with updating and retrofitting results from improving current stormwater neighborhood ditches to ensure proper grading management practices and enhancing utilization and drainage. It is recognized that proper ditches of community assets. The ideas and solutions are essential to this neighborhood’s expressed in this proposal will help lead the functionality, despite the fact that modern neighborhood to successful mitigation of stormwater management places less emphasis flooding improved water quality. Community on draining water away from where it falls. involvement is invaluable for not only achieving Second, Elizabeth River Project is applying for coastal resilience but also maintaining it. funding to implement swales and other green Throughout this study, the Lake Taylor infrastructure solutions within the neighborhood Community has been involved in every step of increase absorption of stormwater where it falls. the way and has made their voices heard. They Third, the Lake Taylor Civic League, with help are an exemplar for other communities around from Wetlands Watch, is going to apply for the state, country, and globe, showing how smaller grants to fund the development of the individuals can work together and take a stand “Horseshoe park” in the aim to enhance against environmental inequity and taking shoreline buffering, increase accessibility to the charge in changing their community into a lake, and prevent future development of this beautiful, sustainable, and thriving area. Coastal land. These three different endeavors should not resilience does not depend on only large-scale be viewed as individual projects, but instead as projects and expensive infrastructure; it begins parts of one plan to increase community with the individuals coming together and taking resilience. Together, these three steps work on small projects to manage their stormwater toward achieving a holistic transformation of the and beautify their land. neighborhood to enhance resilience and protect against future developments of climate change.

The team would like to thank everyone involved for the guidance, support, and time that has gone into this proposal and we are optimistic about the future of the Lake Taylor neighborhood.

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APPENDICES

Appendix A Community Meeting #1, Survey Side 1

Appendix B Community Meeting #1, Survey Side 2

Appendix C Lake Taylor Map with Community Identified Problems and Assets

Appendix D Community Response Note Cards