Community Development Plan

I. PLANNING PROCESS

A. PURPOSE/NATURE OF THE COMPREHENSIVE PLAN

A Comprehensive Plan provides a framework to guide local leaders in decisions affecting community development. The Comprehensive Plan is a process whereby a locality can give direction to growth within its boundaries. Specifically, it is an official document which is adopted by a locality's governing body to serve as a policy guide for decisions about future physical development within a locality. The Comprehensive Plan, when completed and adopted by the City of Colonial Heights will provide a basis for decision making by the City Council and Planning Commission, as well as the City Manager and his administration, in daily operations.

The Comprehensive Plan is general, comprehensive, and long-range in nature. It is comprehensive in that it examines all geographic areas and functional elements which affect future development. It is general in that it contains mainly general recommendations. It is long-range in that it considers distant problems and possibilities which will affect the locality's future. It is intended that the plan reflects the current objectives of local officials and citizens of the jurisdiction and is used in the decision-making process to prepare for anticipated conditions occurring within the next twenty years.

The Comprehensive Plan is an important step in the growth and development of a locality. Unguided urban growth can waste tax dollars and valuable land. It can overburden existing water supplies and detract from overall environmental character. Unplanned growth can also lead to land use conflicts. Through Comprehensive Planning, a reasonable estimate of future population levels can be derived, and in turn, determination can be made as to the most suitable areas for this growth to occur, thus minimizing possible future land use conflicts. Likewise, Comprehensive planning can help point out general areas which will require higher levels of utilities, services, and community facilities, as well as indicate improvements to the transportation system that will be required.

The Code of Virginia sets forth the scope and purpose of the Comprehensive Plan. Virginia Law requires all local governments to prepare and adopt a Comprehensive Plan by July 1, 1980 and requires local governments to review and, if necessary, to revise those plans every five years. The authority for preparation of the Comprehensive Plan originates with Title 15.1-446.1 of the Code of Virginia as follows:

The comprehensive plan shall be made with the purpose of guiding and accomplishing a coordinated, adjusted and harmonious development of the territory which will, in accordance with present and probable future needs and resources, best promote the health, safety, morals, order, convenience, prosperity, and general welfare of the inhabitants.

In 1972 the first Comprehensive Plan for the City was prepared but not officially adopted by the governing body of the City. The Planning Commission approved its concept, but the document was not made official. In 1978 a Comprehensive Plan was prepared and adopted, using much of the 1972 plan with additional research and depth. Since 1978 the Comprehensive Plan has not been revised and updated. This document will serve as the 1996 update for the next twenty (20) year period.

B. PLAN ORGANIZATION

The Comprehensive Plan for the City of Colonial Heights is intended to serve as a broad policy guide concerning decisions about future development and redevelopment in Colonial Heights, Virginia. The objective of the City's Comprehensive Plan is to provide a framework and serve as a flexible guide to be used by local government, the private sector and citizens of the City toward the attainment of the highest level of health, safety, morals, order, convenience, prosperity, and general welfare of all City residents.

To this end, the Colonial Heights Comprehensive Plan Update discusses many elements which together form the character of Colonial Heights. The following elements comprise Colonial Height's Comprehensive Plan Update:

I. THE PLANNING PROCESS - consists of the purpose/nature of the Comprehensive Plan, plan organization, and a summary of the government, planning and zoning.

II. COMMUNITY PROFILE - consists of history/regional setting, population trends and characteristics, economic conditions, and housing.

III. ENVIRONMENTAL INVENTORY - summarizes geology and topography, soils, hydrology, floodplains, wetlands, Chesapeake Bay Preservation Areas, and water quality.

IV. ANALYSIS OF EXISTING CONDITIONS - provides information on existing land use, existing highways and transportation, community services and facilities and planning factors affecting development.

V. GOALS AND OBJECTIVES - consists of goals and objectives for all planning elements.

VI. COMPREHENSIVE PLAN - provides plans for land use, transportation, and community services and facilities.

VII. PLAN IMPLEMENTATION - outlines administration of the plan.

VIII. CAPITAL IMPROVEMENTS PROGRAM - provides 1992-1997 capital improvement plan.

C. SUMMARY OF GOVERNMENT, PLANNING, AND ZONING

Government

The City of Colonial Heights is organized under the Council/Manager form of government. City Council is the governing body that makes policies for the proper administration of the City. Council is elected at large by the voters and is comprised of seven (7) members, who elect a Mayor from their number for a two-year term. The Mayor presides over meetings of the Council and is recognized as the head of city government for all ceremonial purposes. Council terms are for four years and a portion of Council is elected every two years.

The Council appoints a City Manager, who serves at the pleasure of Council, to act as administrative head of the City. The City Manager attends all Council meetings and is charged with the implementation of Council's policy decisions. The City Manager directs all other business procedures for the City and has the power of appointment and removal of the heads of all departments and employees under his supervision.

Planning Department

The Colonial Heights Planning Department administers the day-to-day planning of the City as well as long-term planning. Colonial Heights also participates in the Crater Planning District Commission's local planning assistance program. The primary nature of this assistance is to provide research, reports, and expertise concerning the physical characteristics, population, and regional land use relationships pertinent to the City.

The Colonial Heights Planning Commission performs its duties under the adopted City Charter and City Code. There are seven (7) voting members, five (5) of which are locally appointed commissioners; the sixth is a voting representative from the City Council and the seventh is a member of the Board of Zoning Appeals. The Commission holds regularly scheduled monthly meetings (the first Tuesday of every month) and occasional workshops.

Zoning

The Colonial Heights City Code of 1959 was amended in 1968 to add a new chapter designated for the purpose of adopting a comprehensive zoning ordinance and planning map. At this time, the City had nine zoning classifications: four (4) residential, two (2) business, and three (3) industrial. In 1990 the zoning ordinance was amended to include a new article XI, Chesapeake Bay Preservation Area Overlay District, to provide for the regulation of land development within delineated preservation areas. This updated zoning ordinance and map also included an expanded number of zoning classifications: five (5) residential, six (6) business, one (1) mixed use, and two (2) industrial. Other ordinances that the City uses to guide development are the Subdivision Ordinance, Site Plan Ordinance, and the Soil Erosion and Sediment Control Ordinance, each amended in 1991 to comply with the Chesapeake Bay Preservation Act.

II. COMMUNITY PROFILE

A. INTRODUCTION

History

Colonial Heights, originally a part of Chesterfield County, became a town in 1926 and an incorporated city in 1948. Its history goes back much further, however, as it was the site of significant battles during both the American Revolution and the Civil War. The name "Colonial Heights" refers to the Revolutionary battle between Lafayette's artillery, stationed on Oak Hill overlooking the Appomattox River, and the British forces stationed in Petersburg. Legend indicates that an English soldier exclaimed, "Look! There are the Colonials, up on the heights!", hence, the name Colonial Heights.

The first recorded settlement in Colonial Heights was by Thomas Shore. In 1775, he purchased 144 acres of land across the Appomattox River from Petersburg. There he built his mansion and called it Violet Bank. Later, in 1864, during the War Between the States, the mansion and grounds of Violet Bank became headquarters for General Robert E. Lee. Lee was camped at Violet Bank on the morning of July 30, 1864, when he heard the explosion of the Crater. Today, Violet Bank is owned by the City of Colonial Heights and serves as a Civil War museum and is a registered Virginia Historic Landmark.

Regional Setting

The City of Colonial Heights is located in southeastern Virginia, 20 miles south of Richmond, Virginia's state capital, and 120 miles south of the nation's capital. The City of Petersburg lies directly across the Appomattox River. Colonial Heights is located where the Tidewater plain meets the Piedmont plateau. The City is bordered to the south by Petersburg, to the east by the Appomattox River, and by Chesterfield County to the north. Colonial Heights has a land area of 8.15 square miles or 5,216 acres. Altitudes range from sea level to about 95 feet. Mean temperature is about 40 degrees Fahrenheit in January and 78 degrees Fahrenheit in July. The annual precipitation is about 40 inches.

The City's location as part of the Richmond Metropolitan Statistical Area provides the City with access to the area's dynamic business complex. In addition to serving as a manufacturing, distribution, and trade center, Richmond is also the financial center of the Mid-Atlantic region. Government is a major employer in the immediate Tri-Cities area (Colonial Heights, Petersburg, and Hopewell) with the facilities of Central State and Southside Virginia Training Center, Richard Bland College, the United States Army Quartermaster Center, and Fort Lee. The City is also the site of a new regional shopping mall, Southpark, which opened in spring of 1989.

B. POPULATION TRENDS AND CHARACTERISTICS

The following examination of historical trends in the population of Colonial Heights over the past four (4) decades, with special emphasis on the last two (2) decades, provides insight regarding current conditions in the City today as well as an understanding of possible future population trends.

Growth Trends

Colonial Heights experienced significant population growth from 1950 to 1980 (172%). The growth rate peaked in the period between 1950 and 1960 as a result of the 1954 and 1957 annexations and continued to grow substantially through the 1970's. Since 1980, the population has stabilized and actually decreased over the last decade by approximately three (3) percent. This occurred in spite of a 12 percent growth in housing (723 units) from 1979 to 1990. In 1990, a net increase of 180 units occurred, representing a 2.7 percent rate of growth. The estimated number of available year-round housing in January 1991 was 6,940 units. The population decline may be attributed to a decline in average family size which was 3.2 persons in 1970, but only 2.4 persons in 1990. Since 1990 the population has increased by an estimated 5.2%. The following table shows the population change.

TABLE 1 Population Growth Colonial Heights, Virginia (1950 - 1995)

Percentage Increase/ Average Annual Year Population Decrease Rate of Change Change

1950 6,077 1960 9,587 3,510 5.7 57.8 1970 15,097 5,510 4.6 57.5 1980 16,509 1,412 0.9 9.4 1990 16,064 <445> <0.3> <2.7> 1995(Provisional) 16,900 836 1.0 5.2

Source: 1970, 1980, and 1990 U.S. Census of Population, Weldon Cooper Center for Public Service.

The limited availability of developable land for residential use will, in the near future, contribute to a slowdown in the housing growth rate. The available vacant land has been reduced further with the enactment of the Chesapeake Bay Preservation Ordinance in 1990 that protects wetland areas and adjoining buffer zones from urban uses in order to protect the water quality in the Chesapeake Bay and its tributaries.

Population Characteristics

The population's racial composition has remained relatively stable for the past twenty years showing only slight gains in the minority population which represents less than four (4) percent of the total population. The following table reflects the City's racial composition from 1970 to 1990.

TABLE 2 Population by Race Colonial Heights (1970-1990)

1970 1980 1990 Race Number/Percent Number/Percent Number/Percent

White 15,051 99.7 16,169 97.9 15,502 96.5 Black 8 0.1 52 0.3 129 0.8 Other 38 0.2 288 1.8 433 2.7 Total: 15,097 100.0 16,509 100.0 16,064 100.0

Source: 1970, 1980, and 1990 U.S. Census of Population.

During the past 20 years, the age distribution figures for persons under 18 years reflect a downward trend in the fertility rate, showing a 12 percent decrease since 1970. This trend contributed to the population loss experienced by the City for the past decade and has significantly altered the age distribution of the population. Since 1970, the number of elderly persons has doubled and in 1990, persons over 65 years of age represented 13.7% of the total population. An increase in the median age of ten (10) years from 1970 to 1990 also shows that the population is aging. A slight increase has also occurred for the work force age category (18 to 64). The following table shows the distribution of population by age.

TABLE 3 Age Distribution Colonial Heights (1970-1990)

1970 1980 1990 Age Category Number/Percent Number/Percent Number/Percent

Under 18 5,132 34.0 4,437 26.9 3,503 21.8 18 to 64 8,923 59.1 10,579 64.0 10,359 64.5 65 and over 1,042 6.9 1,493 9.1 2,202 13.7 Total: 15,097 100.0 16,509 100.0 16,064 100.0

Median age: 28.4 33.4 38.5

Source: U.S. Census of Population; VEC Elderly Population Estimates, April, 1990.

Although these age distribution findings are reflective of national trends, the specific needs of the Colonial Height's population should be identified and addressed by the City through such programs as housing, recreation, safety, and economic development. The working age category will continue to demand new and improved housing opportunities, leisure, and other public services. This age group will potentially spend the largest amounts of disposable income on retail goods, with the result that their expenditures will be cycled within the local economy contributing to strengthening the economic base. The increase in the elderly population signifies a need to address elderly housing opportunities, care facilities, and special recreation programs.

Population Forecasts

The number of persons estimated to reside in the City of Colonial Heights in the next twenty years is a fundamental consideration in the update of the Comprehensive Plan. The projected population serves as a partial basis for the allocation of land for specific uses in the Land Use Plan, transportation improvements, proposed housing, community facilities, and public utilities. These population projections are important to planning budgets and the capital improvements programs which are based on anticipated revenues.

Numerous variables which cannot be measured, nor anticipated, affect the growth of a community. Increased economic activity which provides new employment opportunities, government policy, land availability, local amenities, and land use regulations are major factors that will have a significant influence on population growth or decline in the City. Population projections are based on statistics pertaining to survival, fertility, mortality and migration estimates. With forecasts relying on assumptions regarding migration trends, the nature of in-migration is difficult to measure in the case of a community such as Colonial Heights which is experiencing substantial economic growth.

Two methods were used to provide population projections for the City: a Straight Line Projection based on past trends and projections as provided by the Center for Public Services (University of Virginia) and the Cohort Survival Method employed by the Virginia Employment Center (VEC). The results are summarized in the following table, showing the high and low estimates for Colonial Heights.

TABLE 4 Population Projections Colonial Heights (1970-2020)

Straight Line Population Projection Year Projections Cohort Survival 1970 15,097 15,097 1980 16,509 16,509 1990 16,064 16,064 2000 16,578 16,718 2010 17,109 17,400 2020 17,657 18,110

Sources: 1970, 1980, and 1990 Census of Population; VEC Virginia Population Projections, April 1990 adjusted (based on 1990 Census figures and application of .4% annual growth rate).

The straight line projection is based on the assumption that the average rate of growth (3.2%) in each decade for the past twenty years will continue and that average household size will stabilize at the 2.4 persons per household level.

The VEC April 1990 population projections were produced by the cohort component method of projecting demographic change. This method recognizes that population changes are the result of three factors: births, deaths, and migration. The effects of each factor were projected separately and then combined to produce the final projections. The following assumptions were used:

Fertility Assumptions

Age and race specific birthrates are projected for females 10 to 49 years of age in five-year age groups for the years 1989-2000. The state's birthrate for the projection period will increase slightly over the 1980 rate (1.63 births per woman).

Mortality Assumptions

The assumptions about future levels of mortality used in these projections are based on 1979-1981 Virginia survival rates, with a slight increase in overall life expectancy. In general, these projections assume a slight increase in life expectancy from 73.4 in 1980, to 77.6 in 2000.

Migration Projections

Migration projections are based on the 1970-1980 cohort specific rates with adjustments made for changes that have taken place since 1980. These adjustments are based on intercensal population estimates produced by the Center for Public Service in conjunction with the U.S. Bureau of the Census.

The adjusted VEC Year 2000 population projection (16,718 persons) will be used for planning purposes. Based on field observations of land use and housing starts, these projections best take into consideration the amount of available land for development, utility capacity, infrastructure construction, and future economic conditions. The estimated population increase projected for the City of Colonial Heights is 18,110 persons by the year 2020. This represents only a 12.7 percent increase over the 1990 population. This population projection more accurately reflects changes in population than projections stated in the 1975 Comprehensive Plan. The earlier study did not anticipate the substantial decline in household size. Goals that give direction to the City in encouraging expansion and accommodating the needs of a changing population should be formulated.

The slowdown between 1980 and 1990 has prompted the analysis of several factors affecting the population growth in Colonial Heights. These factors include: the limited amount of remaining land that is available for residential uses, the nature and density of residential development, the difficulties of access because of Interstate 95, and railroad right-of-ways and bodies of water that have been, and will likely continue, to deter growth. The City must also compete with a large number of housing developments in surrounding counties that now provide an available choice of housing in desirable living environments to first time buyers, growing families, or transfers to the area. Commuting has become a way of life that has contributed to the decline of city populations as people, particularly the middle class, increasingly choose to live in the outlying areas of central cities. These factors require attention in establishing goals for the City and in preparing the various components of the Comprehensive Plan.

C. ECONOMIC CONDITIONS

The growth of a community is closely tied with the growth of employment. A measure of employment growth and other economic conditions such as retail trade are just a few of the indicators of the economic strength and growth potential of a community.

Employment

In 1995, the unemployment rate for Colonial Heights was 4.5 percent. This was equal to the State's unemployment rate. In 1982 and 1992, the City exceeded the State's level of unemployment by nine and eleven tenths of a percent respectively, but between 1983 and 1991, the percentage of unemployed persons in the City of Colonial Heights was consistently less than the Commonwealth of Virginia's. From 1993 to 1995 the City and the State have had fairly equal unemployment rates. The average rate of unemployment over the past fourteen (14) years has been 5.0% for Colonial Heights and 5.2% for the State of Virginia. Overall, unemployment patterns for the City and the State have been similar with trends of rising unemployment and falling unemployment for Colonial Heights coinciding with State trends. The following table shows the comparison of unemployment rates for Colonial Heights and the State.

TABLE 5 Unemployment Rates Colonial Heights (1982-1995)

% Unemployment % Unemployment Year Colonial Heights Virginia

1982 8.6% 7.7% 1983 5.8% 6.1% 1984 4.1% 5.0% 1985 5.1% 5.6% 1986 4.9% 5.0% 1987 3.8% 4.2% 1988 3.0% 3.9% 1989 3.1% 3.9% 1990 4.0% 4.3% 1991 5.4% 5.9% 1992 7.5% 6.4% 1993 5.4% 5.1% 1994 4.8% 4.9% 1995 4.5% 4.5% Average Rate: 5.0% 5.2%

Source: Virginia Employment Commission (VEC) data, 1982-1991.

The occupation of workers is divided into nine categories: Managerial, Professional, Sales, Clerical, Services, Craftsmen, Operators, Technicians, and Farmers. Five (5) of these categories have shown increasing trends, while four (4) categories have shown decreasing trends. Only three (3) categories actually experienced a decrease in the number of workers (Sales, Clerical, and Operators). The table below shows the occupations of workers from 1970 to 1990 and the changes that occurred during the two decades.

TABLE 6 Occupation of Workers 16 Years and Over Colonial Heights, Virginia (1970-1990)

1970 1980 1990 1970-1990 Occupation # workers % # workers % # workers % % change Managerial 624 9.8 798 10.3 1062 13.2 +3.34 Professional 1018 16.0 1042 13.5 1087 13.5 -2.56 Sales 609 9.6 1058 13.7 1044 12.9 +3.36 Clerical 1630 25.7 1618 20.9 1582 19.6 -6.06 Services 482 7.6 749 9.7 844 10.5 +2.88 Craftsmen 964 15.2 979 12.7 1095 13.6 -1.61 Operators 1016 16.0 1141 14.8 937 11.6 -4.39 Technicians ------298 3.9 351 4.4 +4.35 Farmers 5 0.1 49 0.6 61 0.8 +0.68

TOTAL: 6348 7732 8063

Source: Virginia Employment Commission (VEC) Data, 1970, 1980, 1990.

The five occupation categories which increased their share of total employment in Colonial Heights were Managerial, Sales, Services, Technicians, and Farmers.

Managerial occupations, the fourth largest occupational category in the City in 1990, include Executives, Administrators, and Managers. This category has grown from 624 workers in 1970, to 798 workers in 1980, to 1,062 workers in 1990, representing a 3.34% increase in the percentage of total workers.

Sales occupations were the fifth largest category in 1990, although the number of workers actually decreased. Sales occupations employed 609 workers in 1970, 1,058 workers in 1980, and 1,044 workers in 1990. Even with the decrease of workers in sales occupations in 1990, the percentage of total workers in sales occupations increased 3.36% from 1970 to 1990.

Service occupations, including private household occupations and protective service occupations, were the seventh largest occupation category in 1990. There were 482 workers in 1970, 749 workers in 1980, and 844 workers in 1990. From 1970 to 1990, service occupations grew 2.88%. This growth in service occupations is similar to trends nationwide.

Technical occupations, which include health workers, grew 4.35% from 1980 to 1990. This occupation has seen the most growth among all occupations which is consistent with national trends. Technical occupations employed 298 workers in 1980 and 351 workers in 1990 (data is not available for 1970).

Farmer occupations also include forestry and fishing. This category grew .68% from 1970 to 1990, although it is the smallest occupation category for the City. Farmer occupations employed

11 five (5) workers in 1970, 49 workers in 1980, and 61 workers in 1990. Growth in this category is surprising given that agricultural and forestal lands are declining in Colonial Heights. The four (4) occupation categories which decreased in their share of total employment in Colonial Heights were Professional, Clerical, Craftsmen, and Operator occupations. Although these occupations lost their share of total employment in the City, these categories rank first, second, third, and sixth (respectively) in the number of workers employed.

Professional occupations employed 1,018 workers in 1970, 1,042 workers in 1980, and 1,087 workers in 1990. This category is the third largest category of employees in the City. Although the number of professional workers has been increasing compared to other occupation categories, professional occupations decreased 2.56% in terms of the percentage of total workers from 1970 to 1990.

Clerical occupations consist of administrative support workers. This category experienced the largest decrease in growth (6.06%) since 1970 with the number of workers declining from 1,630 in 1970 to 1,618 in 1980, and to 1,582 workers in 1990. Although this category has decreased in number of workers and percentage of growth, it still remains the occupation with the largest number of workers.

Craftsmen occupations include precision production and repair occupations. This category employed 964 workers in 1970, 979 in 1980, and 1,095 in 1990. Craftsmen occupations were the second largest employers in the City of Colonial Heights in 1990. Although the number of persons in craftsmen occupations increased, the category lost 1.61% of all total workers in the City since 1970.

Operator occupations include fabricators, laborers, machine operators, assemblers, inspectors, transportation and material movers, handlers, equipment cleaners, and helpers. Operator occupations employed 1,016 workers in 1970, 1,141 in 1980, and 937 in 1990. Overall, the operator occupations decreased 4.4% in total workers in Colonial Heights from 1970 to 1990.

The total persons (16 years of age and older) employed in Colonial Heights grew from 6,348 workers in 1970, to 7,732 workers in 1980, to 8,063 workers in 1990. The percentage of the population that was working increased from 60% in 1970, to 61% in 1980, to 65.8% in 1990. Five (5) occupational categories are growing. Three (3) of the four (4) categories which are decreasing are the largest categories where slight decrease can be more readily afforded. Because local unemployment remains below the State level and the increases in several employment categories, Colonial Height's employment record has been strong.

Income Characteristics

Census data shows family income to be growing in Colonial Heights. Median family income in 1970 was $10,813; in 1980 it was $23,539; and in 1990 it was $40,929. One of the factors that has influenced the increase in median family income is the increase in two (2) wage earner families. Since the U.S. Census divides family income into different ranges for each Census year, direct comparisons between Census years is difficult. However, in comparing median income in Colonial Heights ($40,929) in 1990 to the State's ($38,213), the City's median income is slightly higher, indicating that family income in Colonial Heights is slightly more affluent than the State- wide levels.

Retail Taxable Sales Trends

The City of Colonial Heights experienced tremendous growth in taxable sales in the late 1980's and early 1990's. Taxable sales within the City doubled from 1988 to 1989. The City's percentage of total taxable sales for the region also doubled from 1988 to 1990. Taxable sales for Colonial Heights represented almost 45% of the region's taxable sales in 1995, up from 14.73% in 1981. The table below shows a comparison of taxable sales in Colonial Heights versus the taxable sales for the region as a whole from 1981 to 1995.

TABLE 7 Taxable Sales Colonial Heights vs. the Region (1981-1995)

Taxable Sales Col. Hghts. Year Colonial Heights Regional Total % of Total 1981 $62,804,690 $426,245,062 14.73% 1982 $64,205,248 $430,816,148 14.90% 1983 $67,928,358 $469,966,212 14.45% 1984 $89,870,503 $547,239,237 16.42% 1985 $85,280,002 $577,921,504 14.76% 1986 $85,560,728 $572,603,770 14.94% 1987 $89,918,485 $620,721,658 14.49% 1988 $96,486,936 $637,868,574 15.13% 1989 $184,913,095 $709,206,371 26.07% 1990 $257,618,809 $747,665,174 34.46% 1991 $263,948,470 $737,822,453 35.78% 1992 $282,698,723 $759,238,662 37.23% 1993 $305,832,948 $796,642,880 38.39% 1994 $367,341,125 $866,065,593 42.41% 1995 $397,418,750 $887,238,089 44.79%

* Region includes Dinwiddie, Prince George, Hopewell, and Petersburg.

Source: Virginia Department of Taxation, Taxable Sales, 1981-1995.

The Department of Taxation divides taxable sales into eleven groups: apparel; automotive; food; furniture, home furnishings, and equipment; general merchandise; lumber, building materials, and supplies; fuel; machinery, equipment, and supplies; miscellaneous; hotels, motels, tourist camps, etc.; other miscellaneous and unidentifiable. This information does not identify specific businesses, but consolidates taxable sales data by groups. If there are not enough competitors within a group, the data is consolidated under the "other miscellaneous and unidentifiable business" category.

TABLE 8 Taxable Sales by Business Classification City of Colonial Heights (1988-1994)

Taxable Sales ($ in thousands) Class Code 1988 1989 1990 1991 1992 1993 1994 Apparel 866.6 18,472.5 50,493.5 58,801.2 62,707.3 63,757.8 85,423.5 Automotive 9,706.3 11,558.1 9,669.6 9,706.7 9,771.6 19,511.7 14,972.1 Food 20,844.8 58,095.2 67,926.0 55,367.1 71,084.2 72,538.3 79,053.3 Furniture, 2,289.0 3,884.6 5,750.3 5,846.8 7,547.9 7,628.6 10,688.4 Home and Equipment General 12,052.4 56,847.6 81,534.5 78,134.2 86,122.7 92,007.3 16,244.1 Merchandise Lumber, * 1,984.8 1,759.3 1,053.9 * * * Building Materials, and Supplies Fuel *** *** *** *** *** *** *** Machinery, 1,838.9 3,110.3 3,420.5 2,984.5 3,085.1 3,706.9 2,853.1 Equipment, and Supplies Miscellaneous 7,456.8 17,391.2 22,102.2 23,338.9 26,084.7 30,988.4 33,601.4

Hotels, Motels, 3.5 * * * * * 307.7 Tourist Camps Other Misc. & 41,428.5 13,568.8 14,962.9 28,751.2 15,624.4 14,542.1 25,580.3 Unidentifiable

Total: 96,486.9 184,913.1 257,618.8 263,984.5 282,698.7 305,832.9 368,724.0

* Number of dealers was so small, data was included under "other miscellaneous". *** Withheld to avoid identification; amount is included in "other" and in "total taxable sales".

From 1989 through 1994, the three categories with the highest taxable sales were general merchandise, food, and apparel. During the 1990's, general merchandise generated the most taxable sales: $81,534,510 in 1990; $78,134,239 in 1991; $86,122,675 in 1992; $92,007,254 in 1993; and $116,244,115 in 1994. The category with the highest taxable sales in 1989 was food ($58,095,205), and in 1988, other miscellaneous & unidentifiable generated the most taxable sales ($41,428,542). The most significant change during this time period occurred in the apparel category. In 1988, the total taxable sales of apparel was $866,633. In 1989, total taxable sales for apparel was $18,472,541, and in 1990, $50,493,497. Total taxable sales in 1988 was $96,486,936. In 1989, this figure increased to $184,913,095. Total taxable sales in in the 1990's were the following: 1990 - $257,618,809, 1991 - $263,984,470, 1992 - $282,698,723, 1993 - $304,450,048, and 1994 - $367,341,125.

Clearly, the opening of Southpark Mall in 1989 has been instrumental in raising the City's share of taxable sales within the region. Groups such as general merchandise and apparel have provided Colonial Heights with new taxable sales because of the Mall's businesses. As more businesses move into the Southpark area, the economic health of Colonial Heights should continue to improve.

D. HOUSING

Housing Characteristics

According to the 1990 Census, the total number of housing units in Colonial Heights is 6,592 of which 4,591 (72.2%) are owner occupied, and 1,772 (27.8%) are renter occupied. 1,535 (24%) of the City's occupied housing units are elderly (65 years or older) occupied. Of the total number of housing units in Colonial Heights, 229 (3.5%) are vacant.

The majority of housing units in the City, 77.8%, were built between 1940 and 1979, as indicated in the table below. 9.7% of the City's housing units were built in 1939 or earlier, while 12.5% were built between 1980 and 1990.

TABLE 9 Housing Units in Colonial Heights, Virginia - Year of Construction

Number of Percentage of Housing Units Housing Units Time Period

639 9.7% 1939 or earlier

5,129 77.8% 1940 - 1979

824 12.5% 1980 - 1990

Source: 1990 U.S. Census of Population.

Information regarding the different types of housing units in Colonial Heights is summarized in the table below. The predominant form of housing in the City are single detached/attached units, followed by 2-9 unit structures, 10-50 unit structures, other housing types, and lastly, mobile/trailer homes. While Colonial Heights will always be characterized by its low density, single-family housing, given the trends of decreasing family size, the increasing number of people over 65, and the increase in single person households, additional multi-family housing has been developed in the Dunlap Farmes Planned Unit Development to satisfy the demand resulting from demographic trends.

TABLE 10 Types of Housing Units in Colonial Heights, Virginia

Number of Housing Type Housing Units

One unit detached/attached 5,532

2-9 unit structures 836

10-50+ unit structures 316

Mobile/trailer homes 5

Other 35

Source: 1990 U.S. Census of Population.

With the following exceptions, the housing in Colonial Heights is in adequate condition. Of the City's 6,592 housing units, .2%, or approximately 13, lack complete indoor plumbing, while .4%, approximately 26 housing units, lack complete kitchen facilities. Approximately 7 housing units, or .1% of all housing units in Colonial Heights, do not have public water service, and .3%, or 19 housing units, do not have public sewer service.

In addition to providing information regarding housing tenure and the adequacy of the City's housing stock, Census data also provides information regarding the affordability of housing in Colonial Heights. According to 1990 Census data, the median monthly housing expenditures of homeowners in Colonial Heights is $662 which represents 17.7% of median monthly income. The median gross rent in the City is $458 which represents 23.3% of median monthly income. Median monthly housing expenses in Colonial Heights are all within the limits of affordability of less than one-third of monthly income, indicating that housing affordability is currently not a major issue in the City.

Neighborhood Preservation

Housing is a basic need of all citizens. Housing is extremely important to the quality of people's lives, their self-esteem, and socio-economic attitudes. Housing often dictates where people work, shop, attend school, socialize, and worship. Also, the quality of housing in the community mirrors its economic stability and social values. For these reasons, one of the City's goals is to ensure decent and affordable housing, preserve residential neighborhoods, and improve opportunities for homeownership.

Despite the commercial-industrial expansion during the past decade, residential growth and character constitute the backbone of Colonial Heights. Because of the important function housing serves in the community, the preservation of the housing stock and the stabilization of residential areas must represent a major objective and priority of the City. Municipal resources and the City's leadership, in coordination with efforts by the government, private sector, and non-profit partners, is necessary.

The City identified six (6) neighborhood areas exhibiting signs of deterioration. A detailed analysis of these areas is strongly recommended. Such a study should identify physical problems and major housing and neighborhood issues. The social context, including population growth or decline, household characteristics (age, size, tenure), and ratio of housing expense to income will assist in identifying housing and neighborhood needs. The analysis of housing conditions and household characteristics can help pinpoint the need and opportunities for rehabilitation, required neighborhood infrastructure improvements, affordable housing, and homeownership opportunities.

Neighborhood Preservation Program

The City of Colonial Heights should take an active role to coordinate and direct housing improvement efforts and neighborhood revitalization. Measures to preserve and improve existing housing should be developed and implemented prior to the serious decline of older residential areas.

Colonial Heights needs to explore funding sources for housing rehabilitation, including federal, state, and locally sponsored programs.

Proposed Activities

A. Housing Rehabilitation - The City should establish a Housing Rehabilitation Program which provides technical assistance and financing in the form of loans and grants to eligible property owners to renovate housing units to a specified level or code. Federal funds, in combination with funding from local lenders, can underwrite the program and serve to generally improve existing housing throughout the community. Housing rehabilitation assistance could be structured in the following manner:

1. Eligible Areas: a. Lafayette A b. Lafayette B (priority area) c. Royal Oaks

d. Battery Place e. East Lakeview f. Hillcrest

2. Eligible Households: a. Low- and moderate-income (Sec. 8 Family Income Limits) b. One or more violations of property rehabilitation standards. c. Rehabilitation cost limited to no more than 80% of Fair Market Value (afterrehabilitation) or $25,000 per unit.

3. Financial Assistance: a. Forgivable loans for owner occupants (5 to 10 year term). b. Amortized loans below current prime lending rate for investor-owners.

4. Property Rehabilitation Standards: a. U.S. Department of Housing and Urban Development's (HUD) Section 8 Housing Quality Standards or local housing standards.

5. Contracting Procedures: a. Pre-qualified contractors placed on bidders list by the City. b. 3-party construction contract between the City, owner, and contractor.

Existing City planning staff, with assistance from the building inspectors office, could administer the program which would include application intake, verification, work write-ups, and inspections.

B. Property Acquisition - Substandard properties could be acquired by the City or by a subgrantee, rehabilitated, and sold to low- and moderate-income persons thereby assisting in blight removal and increasing the availability of affordable housing opportunities for homeowners.

C. Downpayment Assistance - Entitlement monies can provide downpayment assistance to increase homeownership opportunities available to low- and moderate-income persons who want to become homeowners. Such assistance would help the City stabilize neighborhoods, thereby reversing the recent trend of investment ownership. Assistance could be in the form of money applied to the required downpayment or to closing costs. Downpayment assistance is a fundamental means of encouraging tenant residents to become owner residents.

D. Neighborhood Infrastructure Improvements - Capital improvements for the target areas can also be made with the City's entitlement money, contributing further to the City's stabilization efforts. These could include:

. sanitary sewer improvements . water improvements . storm drainage . streets (resurfacing, widening, curb and gutter, trees) . sidewalks . lighting . neighborhood parks/recreation

Neighborhood organizations in the identified target areas should be established to develop a grass roots approach to neighborhood improvement. The citizen-based groups can be instrumental in identifying community problems and in developing feasible improvement plans. Participation of neighborhood residents in program planning and decision-making is an effective means of building community pride, interest, and a neighborhood social structure. The citizens can pursue self-sufficiency endeavors as an integral part of the overall neighborhood preservation effort.

III. ENVIRONMENTAL INVENTORY

A. INTRODUCTION

Colonial Heights was originally a small settlement sited on a northern escarpment above the Appomattox River, opposite the City of Petersburg. The fall line of the River is just west of the Route 1-301 bridge, and the escarpment ridge runs just west of the Interstate 95. The Appomattox River defines the eastern boundary of the City; and Swift Creek forms the northern boundary. The only other tributary, Old Town Creek, essentially bisects Colonial Heights from east to west.

Land forms of the area show some fundamental differences due to the fact that in the City, the coastal plain meets the Piedmont region. The latter area can be characterized as gently rolling hills, generally draining to the east and south. The coastal plains area is generally flat and sandy. Flat areas in the 100 year floodplain are located adjacent to the Appomattox River, in the low basin along Old Town Creek near the River, and at some of the bends along Swift Creek.

Streams, creeks, and erosion have cut into the upper table of high ground, and sandy embankments, marsh areas, wetlands, and non-tidal ponds have formed below. These low areas are water saturated throughout most of the year and are now classified as wetlands areas. Once thought to be undesirable areas, these wetland and marsh areas are now recognized to be vitally significant components of environmental systems providing water filtration and purification, shoreline stabilization, and important breeding grounds for terrestrial and aquatic life.

During the past two decades, we have acquired a better understanding of the delicate balance and complex ecological interrelationships that must be maintained for human habitation to be sustained in the greater natural environment without destroying the beauty of the natural environment and upsetting the natural balance of systems. Various state and federal programs and legislative acts have contributed to protect these resources, but the most recent legislation, the Chesapeake Bay Protection Act of 1989, is the most comprehensive in managing the impacts of growth and development in the Tidewater areas and protecting the water quality in the Chesapeake Bay and its tributaries.

The following section provides an inventory of the natural features of the City of Colonial Heights and an overview detailing the relationship between urban development practices and environmental quality. A summary then highlights environmental legislative control measures, with particular emphasis on the Chesapeake Bay Preservation Act (CBPA) and the locally adopted CBPA Ordinance. This is followed by a brief summary of the specific factors affecting water quality in Colonial Heights and the local approaches used to protect water quality.

B. ENVIRONMENTAL FEATURES

Geology

Colonial Heights has characteristics of both the Piedmont and Tidewater. The land is mostly low, but is gently rolling in some places. It is underlain by crystalline rocks. In certain areas, however, the hard crystalline rocks pass beneath softer, unconsolidated sediments.

The section of Colonial Heights which lies in the Coastal Plain Province is underlain largely by unconsolidated sand, gravel, and clay strata which were deposited upon rocks similar to those in the Piedmont. In the late 1960's, sand and gravel, granite, and lightweight aggregate were produced commercially in Chesterfield County. Some formerly mined areas (made land) are also found in Colonial Heights along I-95 and Swift Creek.

Samples of local clay and siltstone have been tested and found potentially suitable for use in face brick, sewer pipe, quarry tile, and other ceramic use. Diatomaceous earth occurs in the Coastal Plain section, but the presence of commercial deposits has not been established.

Topography

Typical of many older Colonial towns, the City of Colonial Heights is located on the high ground of an escarpment adjacent to a once-navigable river. The land is relatively flat; elevations range from 20 to 40 feet above sea level, with the highest elevation occurring in the far western area of the City. The City is mostly surrounded to the east by lower areas: tributaries, creeks, streams, and tidal shores. All of these areas adjacent to the Appomattox River are bordered by wetland and/or marsh areas. The Appomattox drains into the James River at Hopewell; the James then flows into the Chesapeake Bay at Hampton Roads.

Soils

Information on soil types is a valuable aid in local land use planning and decision making, as well as site-specific planning and design. Soil characteristics affect the capacity of land to support structures, roads, foundations, and septic systems. The information found in soil surveys can be used to identify certain areas that may need special attention because of potential soil limitations. Once such areas have been identified, more detailed soil analyses can be performed that will help determine appropriate engineering practices needed to overcome and/or mitigate soil-related limitations.

Soil Survey Maps, which are prepared by the Soil Conservation Service, can be used to map areas of sensitive soils. Sensitive soils are generally highly erodible soils or highly permeable soils. Highly erodible soils have a high potential for erosion and sedimentation problems. This potential is due, in part, to excessive steepness and length of slope which act to increase precipitation runoff velocity. Higher velocities act to loosen and remove certain soil particles. Highly permeable soils are extremely susceptible to pollutant leaching, and thus have a high potential for groundwater pollutionthrough the vertical transportation of pollution-charged particles. The amount of water that moves down through the soil varies depending upon the water holding capacity of the particular soil

type. That capacity is largely determined by the soil structure, texture, percentage of organic matter and permeability. Soil permeability is especially important in relation to the design of soil drainage systems, septic tank absorption fields, and construction projects where the rate of water movement under saturated conditions affects pollutant behavior.

Existing Soils Data

At present, only limited soils data exists for Colonial Heights. To date, the Soil Conservation Service (SCS) has not prepared a formal Soil Survey for Colonial Heights, nor is the City included in the Chesterfield or Prince George County Soil Surveys. The most recent data available is a 1979 Soil Study commissioned by Colonial Heights for the Northeast Quadrant of the City. The scope of this study was limited to the relatively undeveloped portion of the City located south of Swift Creek and along both sides of I-95 north of the Colonial Heights interchange.

To this day, this particular study area encompasses most of the City's remaining undeveloped lands, and therefore the information continues to be of practical use. The table below provides a summary of the nine (9) principal soil mapping units identified in the 1979 study. This information was directly incorporated in the Development Suitability Analysis found at the end of this chapter.

In the near future, as funds and manpower become available, the City should encourage the Soil Conservation Service (SCS) to prepare an updated, comprehensive Soil Survey for Colonial Heights. To be of the greatest value for planning, the updated soil survey should be taken in the near-term (1-3 years) and should target the currently undeveloped areas of the city.

TABLE 11 General Soil Characteristics City of Colonial Heights, Virginia

Soil Hydric/ Erosion Permea- Depth to Shrink-Swell Type Non-Hydric Hazard bility Water Tbl* Potential ______

Pamunkey Non-Hydric Slight Moderate (72"+) Slight-None Loam

Altavista Non-Hydric Slight Moderate (20-30") Slight-None Loam

Gritney Non-Hydric Slight Mod-Slow (36"+) Critical Sandy Loam

Craven Non-Hydric Slight Moderate (18-30") Marginal to Sandy Loam Critical

Lenoir Hydric Slight Moderate (6-18") Critical Silt Loam

Wet Alluvial Hydric Mod-Severe Mod-Rapid (12-30") Critical Colluvial Soils

Sandy Non-Hydric Severe Rapid (N/A) N/A Gravelly (Steep & Clayey Slopes) Sediments

Tidal Hydric N/A Slow (+6-0") N/A Marsh

Made Land (Former sand and gravel mining operations)

*Seasonal perched water tables

Source: Soil Science & Soil Engineering Study, Northeast Quadrant - City of Colonial Heights, Virginia; Old Dominion Soil Consultants, June 1979.

Steep Slopes

Bluffs and steep slopes of any kind have unusual development problems. Stormwater runoff can cause bluffs to cave in or can easily erode steep slopes, with large quantities of unwanted sediment carried into streams or onto nearby properties. Generally, areas with slopes equal to or greater than 15 percent generate additional construction costs, which in itself has tended to limit development. However, valuable "waterfront" property and new construction techniques will lead to future use of the more buildable slopes. It is therefore important that sensitive steep areas prone to erosion and crucial to the protection of water quality be preserved in their natural state.

In Colonial Heights, steep slopes help protect water quality of both tributaries and intermittent streams. For the most part, steep slopes lie within the Resource Protection Areas (RPAs) and their preservation is critical to water quality and erosion control. In Colonial Heights, steeper grades are generally found adjacent to larger streams (Swift and Old Town) and along most of the Appomattox River. Stream and river embankments include some areas with gentle slopes as well as areas with moderately steep slopes. Elevations along the steeper embankments range from 0 - 5 feet at the waterway's edge to about 60 feet on the adjacent upland terraces. The most visibly steep areas within the City are found in the vicinity of the US 301 bridge, along the northern side of Old Town Creek, in the Dunlop Farms area, and along certain sections of the Appomattox River. These areas are discussed in greater detail in the following section on erosion control issues.

Shoreline/Streambank Erosion Issues

It is now known that shoreline and streambank erosion can have a significant negative impact on water quality. In Virginia, initial studies have found that 1.37 million pounds of nitrogen and 0.94 million pounds of phosphorous are introduced into the Chesapeake Bay each year through shoreline erosion, accounting for five (5) percent of the total nitrogen and 23 percent of the total phosphorous in Virginia's controllable pollutant load. Natural forces which cause shoreline erosion include wave action, storm events where water or wind damage occurs, and upland runoff. Human-generated sources of erosion can originate from construction and land disturbing activities, boat wakes, over-building (excess impervious cover) or improperly sited development.

Local Shoreline/Streambank Features:

In the Colonial Heights planning area, the vast majority of river, stream and lake shoreline consists of heavily vegetated, unmanaged shoreline segments. The principal shoreline/ streambank types in the City include tidal/nontidal wetlands, sediment banks, and swamp forests. Each type is discussed generally below:

1) Tidal/Non-tidal Wetlands: Tidal and non-tidal wetlands are vegetated marshes located adjacent to or offshore of sediment banks and along creek floodplains. These wetlands are resistant to normal wave activity since their matted root systems are effective at trapping and holding sediment in place. Additionally, their low elevation provides effective protection to sediment banks along the backshore by baffling wave energy.

2) Sediment Banks: Sediment banks are composed of various soil types such as gravel, sand, silt, and clay, and can be classified into either high or low bank types. High banks are normally eroded by rain, groundwater seepage, and wave action from storm events or boat wakes. High banks are susceptible to undercutting at the toe (base) of the bank by high energy waves; this process leads to slumping - collapse of material composing the bank due to gravity. Low banks are normally eroded by wave action. These erosion processes may cause the loss of trees and other vegetation, further decreasing shoreline stability.

3) Swamp Forests: Swamp forests occur normally in the upper reaches of tributary rivers and creeks and contain a variety of tree specimens. These forests are usually stable due to the large tree root systems. However, their vulnerability to flooding makes them unsuitable for urban forms of development.

Analysis of Existing and Potential Shoreline/Streambank Erosion Problems

A number of sources were consulted to identify the location and extent of any significant shoreline/streambank erosion problems in the City. Interviews were conducted with regional Soil Conservation Service (SCS) officials, as well as with City engineering staff responsible for site plan review and implementation of the local Erosion and Sediment (E&S) Ordinance. These background sources were supplanted by field investigations along stream and shoreline areas offering ready access.

Within the Colonial Heights planning area, four (4) major water features can be identified: the Appomattox River, Swift Creek, Swift Creek Lake (Reservoir), and Old Town Creek. Each of these water features is discussed below with respect to erosion issues, local planning and erosion control policies.

Appomattox River. In almost all areas, the Appomattox River shoreline is heavily vegetated with mature trees and thick undergrowth. This natural vegetation effectively anchors the river embankments and helps minimize potential erosion problems. In terms of topography, the Colonial Heights side of the Appomattox is comprised of three distinct segments: (1) steep bluffs north of Old Town Creek (0-50' elevation), (2) flatter embankments between Old Town Creek and the I-95 bridge (0-10' elevation); and, (3) a narrow strip of floodplain rising to moderately steep bluffs (0- 60'elevation) in the area upstream of I-95.

Because of the steep topography, opportunities for river access from Colonial Heights proper are very limited. Except for a few passive recreation sites, water-related development (e.g. piers, boating facilities) has been minimal to non-existent in recent years. This trend is expected to continue in the future, as explained further below.

The Appomattox River bordering Colonial Heights consists of two separate channels, with numerous marsh islands in the midst of the river. The portion of the waterway adjacent to Colonial Heights currently serves as a diversion channel, with the primary navigation channel abutting Prince George County and the City of Petersburg. Due to narrow width and shallow depth, this diversion channel is considered unnavigable for most motorized craft with the exception of small "john boats", canoes and the like. Accordingly, boat wakes and wind-generated erosion problems are not significant factors affecting the diversion channel bordering the City.

The primary river channel bordering Prince George County and Petersburg is presently being dredged by the U.S. Army Corp of Engineers and may be more directly impacted by future boat- related activity. It should be noted however, that while water-related development is proposed in Old Town Petersburg in conjunction with the dredging project, Colonial Heights does not anticipate any future development pressure along its side of the Appomattox River. This is primarily due to economic and environmental constraints which hinder practical development of the area. The only project anticipated to occur within the river shoreline area is the US-301 Bridge Relocation project, which will be designed by VDOT highway engineers. As deemed appropriate, City staff will review VDOT design plans and environmental provisions for compliance with CBPA and other applicable City ordinances.

It is also unlikely that water-related development of any significant scale will be proposed or seriously considered for sites along the Colonial Heights riverfront given the area's navigation limitations, low local demand for boating facilities, and the presence of established marinas in nearby Prince George County and the City of Hopewell. Accordingly, it is the City's intent to encourage continued conservation and passive recreational use of its Appomattox River shoreline and the adjacent diversion channel. At the same time, Colonial Heights leaders generally support Petersburg's efforts to concentrate any future water-related development in the Old Town/Pocohantas Island area, which is the terminus for the Corps dredging project. At this location, land and water features are better suited for such purposes and necessary support facilities are available.

In order to better protect water quality of the Appomattox River, the City has proposed establishing a minimum 100-foot wide Conservation Area along the entire river shoreline of Colonial Heights. As reflected on the Future Land Use Plan, the Conservation Area widens beyond 100 feet at several points, where riverside wetlands, floodplains, and steep topography exist. This land use designation is intended as a consistency measure with the City's CBPA Ordinance and RPA designation. No erosion control structures are found along the City's river shoreline, other than check dams at stormwater outfall points. All such facilities are in good operating condition based on City engineering inspections.

Swift Creek

Forming Colonial Heights' northern perimeter, Swift Creek is a meandering, narrow waterway predominantly fringed by forested swamp and wetlands. These natural areas provide a number of water quality benefits and help protect the creek banks from erosion. In the northwestern portion of the City, Swift Creek flows past several suburban neighborhoods, including Woodlawn, Sherwood Hills and Dunlop Farms. Streambanks and fastland adjoining Swift Creek in this urbanized area range from gently graduated to moderately steep. Some residential structures are sited near the creek, other properties are set well-back from the water's edge. Most creekside lands consist of landscaped lawns or overgrown natural areas.

At the present time, no critical or significant erosion problems were observed or are known to exist along the urbanized portion of Swift Creek. However, in order to better protect this water resource, the City has proposed establishing a 100-foot wide Conservation Area along the entire urbanized portion of Swift Creek. This land use designation is intended as a consistency measure with the City's CBPA Ordinance and RPA designation. Since some "grandfathered" structures presently encroach in this 100-foot RPA/Conservation Area, the City will encourage re-establishment of the buffer through sensible redevelopment approaches. Limits on structural expansion and rebuilding in the RPA/Conservation zone are already established in the City's Zoning and CBPA Ordinances. These measures may need to be strengthened as future ordinance revisions are considered..

At the present time, no erosion control structures are found along Swift Creek other than check dams at stormwater outfall points. All such facilities are believed to be in good operating condition.

Swift Creek Lake (Dam Reservoir) Swift Creek Lake is found in the northwestern part of Colonial Heights, where Swift Creek initially enters the City. This lake once served as the City's potable water supply prior to establishment of the regional system at Lake Chesdin. To this day, Swift Creek Lake still functions as a reservoir, hence only electric-powered boats are permitted. Land use adjoining the shores of Swift Creek Lake include single-family and multifamily residences, as well as a Public Works maintenance yard and a small 2.7 acre park (Lakeside Park) offering waterside trails, a fishing dock and a boat launch. A small run of the stream hydroelectric plant, privately owned and operated under contractual agreement with the City, produces a limited amount of power for purchase by Virginia Power Company.

The only shoreline structures include a few private piers and wooden bulkheads, as well as abutments associated with a large concrete dam. All of these facilities are in good overall condition based on observations by City engineers. Since Swift Creek Lake does not have any exposed, high energy shoreline, the private bulkheads are used primarily for aesthetic purposes as opposed to retaining fill. It is noted that Swift Creek Lake has experienced siltation problems over the years, primarily as a result of large-scale upstream development patterns in adjoining Chesterfield County. Resolution of this problem will require regional cooperation, from both private developers and local governing officials.

In order to better maintain the water quality of Swift Creek Lake, the City has proposed establishing a 100-foot wide Conservation Area along the entire lake shoreline. This land use designation is intended as a consistency measure with the City's CBPA Ordinance and RPA designation. As is the case on Swift Creek, a number of "grandfathered" structures presently encroach in the 100-foot RPA/Conservation Area, hence the City will also encourage re- establishment of the buffer here through sensible redevelopment approaches. Limits on structural expansion and rebuilding in the RPA/Conservation zone are already established in the City's Zoning and CBPA Ordinance. These measures may need to be strengthened as future ordinance revisions are considered.

Over the next twenty years, the City intends to make further improvements and upgrades to the lake's existing park and water access facilities. However, all such improvements are to be environmentally sensitive and ensure that water quality remains protected in the reservoir. Environmental standards and guidelines for water-related park improvements are outlined under the water access facilities portion of this Plan.

Old Town Creek . Old Town Creek generally bisects the City of Colonial Heights, originating a mile south of Swift Creek Lake and flowing just north of the Southpark Mall commercial area. Old Town Creek then empties into the Appomattox River near the Temple Avenue bridge crossing. Within the City, the upland reaches of Old Town Creek include narrow segments that closely abut urban development centered along the Route 301/1 (Boulevard) corridor. Near Southpark Mall, the creek valley widens considerably, and streambank segments are fairly well-buffered from urban development by a broad floodplain/marsh area and heavily vegetated slopes.

Because Old Town Creek is proximate to intensive land uses and large amounts of impervious cover, the primary concern has and will continue to be uncontrolled stormwater runoff. If not closely controlled and mitigated, stormwater runoff can degrade water quality and lead to potential erosion problems along receiving waters, including the smaller drainageways feeding Old Town Creek.

Fortunately, most urban development near Old Town Creek has occurred in recent years when environmental safeguards were in place to minimize stormwater impacts and erosion/ sedimentation problems typically associated with intense development patterns. For example, a large professionally engineered retaining basin was constructed adjacent to Southpark Mall in order to adequately control increased stormwater loadings originating from that site and from nearby outparcels. In addition, high quality stormwater conveyances and check dams were required by the City to adequately control projected stormwater runoff and mitigate erosion problems at outfall points discharging to Old Town Creek. All such facilities are in good operating condition and no critical erosion problems along Old Town Creek have been observed or are are known to exist by City engineers. More detail on the adequacy of local stormwater facilities in the Old Town Creek drainage basin are discussed under "Strategies for Stormwater Management" in Section 6 of this Plan.

In order to better protect the Old Town Creek drainage basin, the City has proposed establishing a minimum 100-foot wide Conservation Area along the entire creek shoreline. As reflected on the Future Land Use Plan, the Conservation Area widens considerably beyond 100 feet at several points, where creekside wetlands, floodplains, and steep topography exist. This land use designation is intended as a consistency measure with the City's CBPA Ordinance and RPA designation. The City also intends to continue close scrutiny of all site plan submissions in this particular drainage basin, with particular attention to compliance issues relevant to the City's CBPA/E&S ordinances and stormwater management requirements.

Hydrology

Groundwater:

Colonial Heights is located in the Fall Zone Ground Water Area. This is a transitional zone up to 10 miles wide where the thin, younger Coastal Plain sediments begin to cover the older Piedmont rocks. Most wells are drilled through the thin coastal plain deposits and are completed in the underlying bedrock. The area can support moderate industrial and public needs. Pumping rates up to 10 gallons per minute (gpm) are common, with rates up to 100 gpm possible. Groundwater quality is generally good except for some areas where high iron concentrations pose a problem. The potential for pollution movement is moderate-to-high in the area.

East of U.S. Highway 1, water from thick sediments is moderately hard to hard, but is otherwise of good chemical quality. Water from the igneous and metamorphic bedrock is generally of good quality except for small to moderate amounts of iron in some areas. Groundwater is readily available in the young, unconsolidated sediment that occurs in tabular and lenticular bodies of sand and gravel commonly overlain by confining beds of clay.

Surface Water:

Colonial Heights is strategically located to obtain water from the Appomattox River. There are a number of small streams in the surrounding area such as Swift Creek. Stream gauging stations have been maintained for many years on the James River at Richmond and on the Appomattox River at Matoaca. Surface waters in areas surrounding Colonial Heights are very soft. The James River above Richmond is a little harder due to chemicals from the upper James. An abundant supply of water is obtainable from the Appomattox River reservoir, Lake Chesdin (upstream from Petersburg), and from the Swift Creek reservoir.

Floodplains

Floodplains are areas which are subject to predictably recurring overflows from nearby bodies of water including streams, rivers, bays, and oceans. A floodplain acts as a natural reservoir for these overflows by storing the excess water as a temporary "lake", thus reducing the volume and speed of flood effects downstream.

Flood activity has a potentially detrimental effect on water quality, since the volume and velocity of water associated with floods are of such magnitude that severe soil erosion is caused, creating non-point source pollution. The preservation of the stream channel, the floodplain, the banks above the floodplain, and part of the upland above the banks -- collectively known as the stream corridor -- provide a mechanism for controlling water flows. Because water runoff and consequent flood runoff can be minimized when effective steam corridors extend up the slope of the banks of a stream where vegetation can slow down and filter flood waters, water quality objectives can be better achieved through the preservation of stream corridors and their floodplains.

The main floodplains in the City are adjacent to the Appomattox River and along Swift Creek and are shown on the Environmental Factors Map. The Federal Emergency Management Agency (FEMA) floodplain maps identify the 100 year floodplain areas. Local floodplain regulations prohibit residential construction in the 100 year floodplain, but generally allow non- residential structures to be constructed on raised platforms. Suggestions to guide future land uses and water-related development are described in the Future Land Use Plan.

Wetlands

Wetlands are defined as transitional lands between terrestrial and aquatic systems where the water table is usually at or near the surface or the land is covered with shallow water. Wetlands must have one or more of the following three attributes: 1) at least periodically the land supports hydrophytes, 2) the substrate is predominantly undrained hydric soil, or 3) the substrate is non-soil and is saturated with water or is covered with shallow water at some time during the growing season of each year. This means that lands flooded at least a week at a time, with supporting aquatic vegetation, are considered wetlands.

Wetlands enhance water quality by acting as a filter in trapping and holding nutrients and microbes which come from upland runoff. Aquatic plants in wetlands change inorganic nutrients into organic material, storing it in their leaves or in the peat soil composed of their remains. Vegetation slows down and traps sediment, thus acting as a settling basin, keeping downstream water clean by holding back silt and other insoluble material. Toxic chemicals and other pollutants which are washed in with sediment can be caught by this filtering process as well.

Wetlands also act as a sponge by slowing down fast-moving erosive water through absorbing its energy thus contributing to flood control and storm-damage protection, and acting as a buffer against coastal erosion from wave action. Also, water is stored in the highly absorptive soils of wetlands, which serve as reservoirs from which groundwater can be replenished during dry seasons.

Land areas that are swampy, marshy, or frequently flooded play an important role in maintaining the supply and quality of our water resources environment. Section 404 of the Clean Water Act of 1972 first provided protection to these environmentally sensitive areas, but lacked sufficient strength nationally to prevent extensive wetlands eradication and elimination. The Emergency Wetlands Resources Act of 1986 protects the wetland areas identified and delineated in the comprehensive inventory by the U.S. Fish and Wildlife's "Classification of Wetlands and Deepwater Habitats of the United States", completed in 1984. The 1986 Act states that designated wetland areas cannot be drained, filled, or converted to other uses (unless new wetlands are created, equal in land area and storage capacity), and granted jurisdiction for permitting and review by the U.S. Corps of Army Engineers.

The majority of the wetlands in Colonial Heights are found at the northern boundary of the City along Swift Creek, at the eastern boundary of the City along the Appomattox River, and through the middle of the City along Old Town Creek. The designated wetlands areas in the City are indicated on the Environmental Factors Map. These areas are designated as Conservation and Preservation Areas on the Land Use Plan Map and are not recommended for development. They are instead recommended to serve as permanent open spaces to help preserve the unique environmental qualities of wetlands.

Physical Constraints to Development/Development Suitability Analysis

The sensitive environmental features noted above are physical conditions which naturally limit development. An assessment of these physical conditions as they exist in the Colonial Heights is necessary to avoid potential hazards as well as high corrective costs on the part developers and property owners. Examples of environmental and economic problems that result from inappropriate development in areas with physical constraints include cracked building foundations, settling, wet basements, chimney separations, eroded roadways, and failing septic systems. Taking into account both the capacity of the land to accommodate development and the location, intensity, and type of development will result in fiscal and water quality benefits to the City.

The following criteria was used to determine the suitability of development on remaining significant tracts of vacant land in Colonial Heights. Each tract of land rated in the analysis has one or more of the constraints listed below. The Development Suitability Map depicts the results of the development suitability analysis.

Land Suitability Classifications:

Rating Environmental Constraints

Poor Hydric Soils (Probability of Wetlands) Tidal Marsh & Swamp Shrink-Swell Soils Drainageways/Steep Slopes 100-Year Floodplains Made Land (Mined Areas) Seasonal High Water Table Resource Protection Areas

Fair No Wetlands (Prior Conversions/Non-Hydric Soils) Moderate Shrink-Swell Soils Moderately Elevated, Well-Drained Lands Resource Management Areas (RMA's)

Good Level Upland Areas Logical Infill Sites (Existing and Adjacent Development) Previously Cleared of Natural Vegetation No Wetlands (Non-Hydric Soils) Soils Well-Suited for Most Engineering Practices Outside RPA's & RMA's

GENERAL SUITABILITY FOR DEVELOPMENT MAP

C. URBAN DEVELOPMENT AND ENVIRONMENTAL QUALITY

A basic understanding of the relationship between the natural environment of Colonial Heights and potential forms of urban development is important. This account is helpful in making sound environmental planning decisions, as well as assisting on a day-to-day basis with the site plan review process (POD).

In Colonial Heights, as in other Tidewater communities, there is a direct and intimate relationship between land and water. Through the natural forces of wind, rain, and gravity, pollutants will enter the water unless barriers and filters are present. Land uses can generally be divided into two basic categories: those that protect the Bay's waters (forests, permanently vegetated fields, and wetlands); and uses that cause water quality to deteriorate (most forms of human activity, whether urban or rural/agricultural).

Most land use activities involve alteration of the land, such as paving, digging, clearing, or grading. Any one of these will alter the natural water retention characteristics of the land, causing polluted water to reach groundwater, streams, rivers, and eventually the Chesapeake Bay. The extent of degradation depends on a variety of factors, including proximity to water resources, the type of activity and the site-specific characteristics of the disturbed land.

Impacts on Water Quality

Generally, development will strip the land of the absorbing capacity of its vegetative cover and replace it with impermeable surfaces such as asphalt or concrete which prevent water from seeping into the soil. This prevents the pollutants found in the runoff from being filtered out before they enter the waterway. Impermeable surfaces increase stormwater flow and velocity into storm sewers and streams. The higher velocity scours the surface of the landscape, increases stream bank erosion, and carries soils and other pollutants for direct deposit into water courses. Large volumes of stormwater in the drainage system can increase the load on treatment facilities because of infiltration, causing stormwater to combine with sewage and overflow directly into the waterways.

All development projects, whether for residential, commercial, or public use, alter the natural vegetation, slope, and water retention characteristics of the land. Three major types of pollutants can result from development: sediments, nutrients, and toxins.

Sediments

Sediments are eroded soils and other solid materials that are transported into waterways or which are subsequently resuspended from river beds or the Bay bottom. The presence of sediments give water an unclear (turbid) appearance. Turbid water blocks sunlight which is critical to many forms of aquatic life and can clog the gills of small fish and invertebrates. Turbidity can also cause water temperature to rise to the point where it is no longer sufficient to support habitats, and species of plant and animal life.

Nutrients

Nutrients such as nitrogen and phosphorous are essential for plant growth. However, in excess, they can degrade water quality and destroy aquatic habitats. Excessive phosphorous levels present in local packing plant discharges are an example of nutrient overloading. Too many nutrients spur the growth of algae which interfere with light penetration, contributing to low oxygen levels, and altering the food and resources available to other organisms. Disruptions to the food chain in turn impact fish, waterfowl, and other plant and animal life dependent on the Bay's ecological system.

Toxins

Toxic substances, such as chemicals and heavy metals, that are released into the Bay and its tributaries can severely damage life forms, especially in their early stages of growth. Shellfish and finfish are especially susceptible to toxic contamination, which can accumulate in the higher orders of the food chain and can pose a potential health threat with their consumption. Common toxins in everyday use include fertilizers, pesticides, automotive batteries, and other industrial and agricultural products employing the use of chemicals.

Point and Non-Point Source Pollution

Point sources of pollution are those which reach state waters through a single source such as a pipe outlet. The outfall structures of sewage treatment plants, industrial plants, or other facilities are examples of point sources of pollution. All legal point source discharges to surface water are regulated by the State Water Control Board through its Virginia Pollution Discharge Elimination System (VPDES) permit program. Each permittee is monitored to ensure discharges meet certain quantity and quality parameters. These parameters include flow, BOD (biochemical oxygen demand), suspended solids, settleable solids, chlorine residual, fecal coliform, pH, oil and grease, and temperature.

Point Source Pollution is not a significant problem in the City of Colonial Heights. According to the Department of Environmental Quality, Piedmont Regional Office, there are currently no VPDES permits issued in Colonial Heights. In the past, a VPDES permit was issued for two (2) overflowing pump stations. However, these problems were corrected and the permit was allowed to expire in December, 1991.

Historically, regulatory programs have focused on point sources of pollution, such as effluent outfalls from factories and sewage treatment plants. These sources of pollution were easily recognized and regulated with modern engineering methods available to reduce discharge pollutants. In spite of the progress in reducing point source pollution, water quality problems have persisted.

Non-point Source (NPS) pollution has been found to have a far greater impact on water quality. Non-point Sources of Pollution are those sources that cannot be traced to a single point of discharge. It is difficult to monitor and identify non-point source pollution, but information can be collected and analyzed to provide qualitative indicators. NPS pollution is defined as contaminants introduced into waters from diffuse activities and locations. Studies show that stormwater runoff from urban and agricultural areas contain a substantial amount of pollutants that exceeds the amounts from regulated point sources. Common non-point pollutants include fertilizers (nitrogen/phosphorous), pesticides, animal wastes, heavy metals, motor oil, sediment, and other organic material.

Stormwater runoff is a principle transporter of NPS pollution and probably the only significant source of water pollution in the City of Colonial Heights. Predominant impacts on water quality originate from water running off paved surfaces. Stormwater Management practices can be applied towards the goals of the Chesapeake Bay Act by describing ways to improve and reduce the runoff from the places where we live and work. In 1989 the General Assembly passed the State Stormwater Management Act that provides localities optional authority to adopt local stormwater management ordinances consistent with minimum state regulations.

The stormwater conditions in the City of Colonial Heights are described in the Land Use Plan section of this document. The need to adopt a Stormwater Management Ordinance to regulate new development and re-development is also addressed. This is especially important since future new development will mostly occur at the fringes of the City near the Appomattox River and Swift Creek.

Land Development Activities Contributing to Pollution

Various activities associated with development have a direct impact on water quality. The principle contributing actions are summarized below:

Clearing Land

Improper conversion of land to a more intensive use can cause changes in soil stability and slopes, vegetative cover, and site hydrology. Soil erosion is often experienced on cleared land. Inappropriate soil compaction (frequently caused by construction equipment) compounds this problem by leaving the soil too dense for adequate water and oxygen supplies to support the growth of soil-stabilizing plants.

Recontouring or filling land also contributes to poor water quality. Altering wetlands or marshes by filling or restructuring adversely affects vital breeding grounds and habitats. Since tidal wetlands and marshes also serve as buffers to wave action against the shoreline, the practice of creating a "neat edge" between land and water with bulkheads and retention walls effectively replaces the natural wetlands transition zone and tends to magnify problems associated with shoreline erosion.

Non-contiguous wetlands play an important role when located below areas of upland disturbance by slowing stormwater and permitting sediments and runoff to filter and drain before reaching main water courses. However, wetlands are limited in their capacity to absorb excessive amounts of sedimentation and nutrients from poor land clearing practices, and can become ineffective in their natural cleansing abilities.

The process of erosion and the inadequate filtration of sediments and nutrients is directly related to the removal of vegetation. This is especially true for forested cover, which is of extreme importance in handling the movement of nutrients from the landscape into streams. Furthermore, as natural vegetation is replaced, new vegetation such as lawns transplanted trees, and shrubs, are treated with fertilizers and pesticides.

Construction of Impervious Surfaces

An increase in the amount of impervious surfaces is a natural consequence of land development. Surfaces such as roofs, sidewalks, roads, and parking lots collect water and speed its movement instead of allowing the water to filter through vegetated soil. Roads and parking areas, in particular, accumulate nutrients and toxic materials such as lead, copper, zinc, asbestos, de-icing chemicals, oil and grease from motor vehicles, and decaying vegetation and animal wastes.

Discharges of Toxic Materials

In addition to automotive-related pollution, development provides many other opportunities for toxic contamination. Toxic materials can originate from pesticide use, detergents, accidental chemical spills, as well as paints, solvents and fuel which are often disposed of in storm sewers. Construction and maintenance activities associated with lower density land uses are a source of pesticides because of the use of weed and insect controls. Such substances can impact local ground and surface water, ultimately limiting local water supply and recreational water uses.

Inadequate Wastewater Treatment

Inadequate treatment of sewage represents a major problem in water quality. On-site systems (septic tanks) can release nutrients into groundwater if improperly installed or maintained. Failing septic systems, which may go unnoticed for extended periods of time, can constitute a serious health problem. While preferable to on-site treatment, off-site sewage treatment facilities may not remove all nutrients prior to discharge. Many treatment plants require additional techniques (tertiary) to remove certain types of pollutants.

D. ENVIRONMENTAL LEGISLATIVE CONTROL MEASURES

Various legislative control measures have been enacted by federal, state, and local governments to stabilize and improve environmental quality. The intent of the following discussion is to highlight the major legislative acts and programs that pertain specifically to the improvement of water quality, both locally and in the greater context of the Chesapeake Bay.

1. Wetlands Regulations

Two major legislative acts protect wetlands from alteration, destruction, or potential misuse: The Clean Water Act of 1972, as amended; and the Emergency Wetlands Resources Act of 1986.

Federal

Section 404 of the Clean Water Act is the major federal regulatory tool governing activities in wetlands. Jointly administered by the U.S. Army Corps of Engineers (COE) and the Environmental Protection Agency (EPA), Section 404 establishes a permit program to regulate "discharges or dredged or fill material" into waters of the United States, including most wetlands (tidal and non-tidal). The U.S. Fish and Wildlife Service (FWS) and the National Marine Fisheries Service (NMFS) have important advisory roles in the permit review process.

It should be noted that Section 404 is not a comprehensive mechanism for wetlands protection. Activities such as drainage and groundwater pumping are often conducted without discharging dredged or fill material, and thus are not regulated under Section 404. Moreover, some Corps districts do not address interstate commerce. As a result, a broad range of supplementary and complementary programs have been enacted at the federal, state, and local level to further protect wetland resources.

One such federal statute is the "Swampbuster" provision of the Food Security Act of 1985. This legislation reverses federal policy that once encouraged agricultural draining of wetlands for conversion into farmland. The "Swampbuster" provision also enabled the USDA Soil Conservation Service (SCS) to participate more fully in making federal wetland determinations.

In order to merge wetland definitions and identification methods, the four chief federal agencies (COE, DEQ, FWS, SCS) adopted a single manual in 1989 entitled "The Federal Manual for Identifying and Delineating Jurisdictional Wetlands". This manual is used to identify jurisdictional wetlands subject to Section 404 and the "Swampbuster" provision of the Flood Security Act. The manual recognizes that all federal wetland definitions are conceptually the same and that they include three basic elements:

1) Hydrophytic Vegetation 2) Hydric Soils 3) Wetland Hydrology

While specific criteria related to these three characteristics are currently under federal review, they will continue to be the overall determinants of a jurisdictional wetland.

The U.S. Fish and Wildlife Service has produced National Wetland Inventory (NWI) Maps which identify the size, shape, and type of wetlands in accordance with NWI specifications. These maps are presently available for most of the continental United States. NWI maps are particularly useful because they utilize standard 1:24,000 topographic maps (USGS) as base maps to depict wetland data. NWI maps can generally be used to delineate wetland boundaries on particular parcels; however, in urbanized areas where smaller lot sizes and higher land values are present, more detailed mapping or individual field inspections may be needed to resolve wetland boundary disputes. Also, isolated non-tidal wetlands of less than one acre may not be mapped on NWI maps given the scale and resolution limitations of aerial photography sources. Because of these limitations, some localities have undertaken more detailed inventory mapping of their wetland resources.

State and Local

Unlike a number of other states, the Commonwealth of Virginia has not enacted a comprehensive wetland regulatory program. The Virginia Wetlands Act of 1972 extends protection only to tidal wetlands. Non-tidal wetlands in Virginia remain under federal jurisdiction as provided for in Section 404 of the Clean Water Act. All states including Virginia, however, have been given review and certification authority by Section 401 of the Clean Water Act over "any federal license or permit that may result in a discharge to waters". Section 401 is an important provision that allows states to deny or condition the issue of federal permits in order to protect state water quality.

Development control to protect tidal wetlands in Virginia is a joint responsibility of the Commonwealth and its local governments. The Virginia Marine Resources Commission (VMRC) is the lead agency for the program. Other state agencies participate in the review of wetland permits: the State Water Control Board (SWCB), the Department of Transportation (VDOT), the Institute of Marine Science (VIMS), and the Department of Conservation and Historic Resources (C&HR).

Local governments are allowed to establish and administer their own regulatory programs through local Wetlands Boards and ordinances which conform to the model state legislation. The Wetlands Board may help develop mitigation measures that minimize damage to wetland resources. Decisions by the local board are subject to final review by VMRC which may accept or overturn the local decision.

Wetlands Permitting and Enforcement

Because a variety of federal, state, and local agencies are involved in wetlands regulation, a joint permitting process has been established to improve interagency coordination and reduce the time involved in obtaining a permit. VMRC assigns a processing number to the proposed project, which is used by all of the regulatory agencies. Copies of the application are then forwarded to the Corps of Engineers and to the local Wetlands Board for processing. Site inspections are usually required by each of the reviewing agencies prior to issuance of a permit. The permitting process includes procedures for public hearings and appeals.

Both VMRC and the local Wetlands Boards are empowered to issue stop work orders to enforce the Virginia Wetlands Act. The state courts, through an injunction, may also direct that the wetland be restored to its natural condition, in addition to imposing a fine. Under federal law, similar enforcement actions may be taken administratively by either the COE or DEQ to prevent illegal discharges in wetlands. DEQ has final veto power over any Corps-issued permit and makes the final determination.

2. The Chesapeake Bay Preservation Act

The Chesapeake Bay has long been recognized as a vital resource to residents of Virginia, providing numerous economic and social benefits Virginia residents as well as important ecological benefits for a wide variety of plant and animal species. The Chesapeake is the nations's largest (2,500 square miles) and most productive estuarine bay, accounting for over 20 percent of the oysters and 50 percent of the blue and soft-shelled crabs caught in the United States. It is surpassed only by the Atlantic and Pacific Oceans in terms of U.S. seafood production each year.

An explanation of the Bay's productivity lies in the fact that it is an estuary - "a semi- enclosed coastal body of water that has a measurable salinity gradient from its freshwater drainage to its ocean entrance". While the Bay's salty environment is stressful to many plant and animal communities, those that do survive flourish. The constant inflow of freshwater and the tidal circulation of organic materials contribute greatly to the Bay's productivity, and the marshlands and shoreline wetlands provide a critical foothold for a variety of aquatic life.

It has been universally recognized that water and water-borne pollutants drain to the Bay from a very wide area. Eight (8) major drainage basins empty into the Chesapeake; the three largest being the Susquehanna (NY, PA), the Potomac (MD, VA), and the James (VA). Pollutants entering the 150 tributaries of the Bay have negative impacts on local water quality, as well as cumulative impacts on water quality in the Bay. As a result, local governments, as well as state and regional agencies, must play a cooperative role in reducing further degradation of Bay water quality and the threats to its future health and vitality.

Overview of the Chesapeake Bay Preservation Act

The Commonwealth of Virginia adopted the Chesapeake Bay Preservation Act in September 1989 to fulfill provisions of an interstate regional agreement made in 1987 between the states of Virginia, Maryland, Pennsylvania, and Washington D.C. The Bay Act mandates all Tidewater Virginia localities to establish programs, plans, and ordinances to protect and improve Bay water quality. Colonial Heights is one of the 89 jurisdictions (46 cities and counties, 43 towns) affected by the Bay Act. All of these communities border tidal waters, such as the James River, Chesapeake Bay or their tributaries, and have a considerable, cumulative impact on water quality.

The Chesapeake Bay Preservation Act comprehensively addresses the chief sources of pollution to the Chesapeake Bay and the protection of state water quality. The Bay Act mandated that localities identify and designate environmentally sensitive areas in their jurisdictions for protection on the basis of their essential function of slowing and filtering run-off, recharging groundwater, and protecting the aquifers. The Chesapeake Bay Preservation Act also requires localities to adopt development performance criteria to guide development in their respective communities to limit impermeable surfaces and control runoff; and to establish set-backs and buffer areas to minimize disturbance to shorelines, designated wetlands, and vegetated areas.

The Chesapeake Bay Preservation Area Ordinance

Bay Act legislation requires localities to establish local programs to ensure compliance with the established goals set forth in the Bay Act. Local program development involves two phases. Phase I consists of the designation of Chesapeake Bay Preservation Areas and adoption of an ordinance to implement performance criteria (SS 2.2 A and B of the Regulations) established by the Chesapeake Bay Local Assistance Department (CBLAD). Phase I involves a comprehensive inventory of the natural and environmental characteristics of the locality, and the identification of environmentally sensitive districts and their designation as such in an officially adopted overlay district (comprised of Resource Protection Areas, Resource Management Areas, and Intensely Developed Areas). This work, performed for the City of Colonial Heights in 1990, is the basis of the Environmental Features section above. Phase II consists of the incorporation of water quality protection criteria into the local comprehensive plan consistent with the guidance in SS 5.6 of the Regulations.

The environmental inventories performed in 1990 as a part of the Chesapeake Bay Preservation Act First Year Program were based on National Wetland Inventory (NWI) maps, USGS topographic quad sheets, FEMA floodplain maps, U.S. Department of Agriculture color infra-red aerial photography, field surveys, and other sources. These sources were the basis for the designation of the Chesapeake Bay Preservation Area districts which are summarized below and graphically displayed on the following Environmental Factors Map:

Resource Protection Areas, or RPAs, consist of sensitive lands at or near the shoreline that have an intrinsic water quality value due to the ecological and biological processes they perform or are sensitive to impacts which may cause significant degradation to the quality of state waters. In their natural condition, these lands provide for the removal, reduction, or assimilation of sediments, nutrients, and potentially harmful or toxic substances in runoff entering the Bay and its tributaries, and minimize the adverse effects of human activities on state waters and aquatic resources. Resource Protection Areas include: tidal wetlands; nontidal wetlands connected by surface flow and contiguous to tidal wetlands or tributary streams; tidal shores; and a buffer area not less than 100 feet in width adjacent to and landward of tidal wetlands, nontidal wetlands, tidal shores, and other lands necessary to the protection of state water quality.

Resource Management Areas, or RMAs, include land types that, if improperly used or developed, have a potential for causing significant water quality degradation or for diminishing the functional value of the Resource Protection Area. A Resource Management Area is provided contiguous to the entire boundary of the Resource Protection Area. The following land categories shall be considered for inclusion in the Resource Management Area: floodplains; highly erodible soils, including steep slopes; and nontidal wetlands not included in the Resource Protection Area.

Intensely Developed Areas, or IDAs, are redevelopment areas in which development is concentrated as of the local program adoption date. Areas of existing development and infill sites where little of the natural environment remains may be designated as Intensely Developed Areas provided at least one of the following conditions exists: development has severely altered the natural state of the area such that it has more than 50% impervious surface; public sewer and water is constructed and currently serves the area by the effective date; and housing density is equal to or greater than four (4) dwelling units per acre.

The City's Planning Commission has approved designation of the Chesapeake Bay Preservation Act districts. The Resource Management Areas were delineated according to the criteria described above, and generally vary in width in areas according to the topography, slope, and erodibility estimates. Essentially, the Resource Management Areas range in width from 100 to 300 feet. The RPA and RMA designations and delineation are indicated on the Environmental Factors Map. There are no designated IDA's in the City.

ENVIRONMENTAL FACTORS (MAP)

Land Use and Development Performance Criteria

For the preparation of the Land Use and Development Performance Criteria component of the First Year program, the City evaluated, analyzed, and modified the model ordinance provided by the Chesapeake Bay Local Assistance Department. The City adopted the Bay Act criteria for development guidelines in the RMAs and broadened and strengthened their application to govern development in the RPAs. Sections of the ordinance govern site plan review, lot size requirements and exemptions, and water quality relative to non-point source pollution control and best management practices. Site plan review evaluates development siting and set backs, buildable areas, impermeable surfaces, buffer vegetation and landscaping, and shoreline and wetlands protection. Water quality impact assessments are required for major developments.

The ordinance establishes the legal precedent for the preservation areas as overlay zone districts and the legal and environmental basis for the Development Performance Criteria. The ordinance also identifies the procedural and administrative processes, options for appeals, and exemptions.

Adoption

The City adopted the Chesapeake Bay Preservation Ordinance on September 4, 1990. The City's program was found to be consistent with Sections 10.1-2109 of the Chesapeake Bay Preservation Act and 2.2C of the Regulations by the Chesapeake Bay Local Assistance Department.

3. Other Water Quality Issues

Groundwater

Identification of existing and potential pollution sources and pollution incidents is important for evaluating existing and potential groundwater pollution problems. Groundwater is vulnerable to a variety of pollution sources. In 1987, Virginia's Groundwater Protection Steering Committee identified 32 potential sources of groundwater contamination from which five primary statewide threats were identified: 1) underground storage tanks/hazardous waste facilities, 2) landfills, 3) waste lagoons, 4) septic tanks, and 5) pesticides and fertilizers. Following is a brief discussion of each as it applies to the City of Colonial Heights.

1. Underground Storage Tanks/Hazardous Waste Facilities - In recent years, it has become apparent that some underground storage tanks (UST's) are deteriorating, allowing contaminants to reach the groundwater. The most common contaminants include petroleum products, principally gasoline, diesel fuel, and heating oil which are very also very potent and extremely difficult to remove. Once petroleum is mixed with groundwater, for example, it moves with the groundwater and contaminates wells, streams, and lakes. One gallon of petroleum can contaminate a million gallons of water rendering the water toxic and unusable. Recent EPA studies reveal that as many as 35% of all UST's eventually leak.

The State Water Control Board (SWCB), in response to concerns regarding leaking underground storage tanks, has developed regulations for the installation of new tanks. Requirements include materials that resist fracture and corrosion, cathodic corrosion prevention, and leak sensors. Requirements for residential and small tanks are not as elaborate, but normal commercial quantities must be stored in the more expensive new tanks. The SWCB requirements have been incorporated in the State Building Code so that they will routinely be included in construction plans for new or expanded systems.

The following data is summarized from the Virginia UST-DMS Facility and Tank Data Listing by County, which identifies both regulated and unmarked USTs throughout the state. As of February 1994, there were approximately 75 UST facilities listed for the Colonial Heights area (zip code 23843). Of these, 45 UST facilities are found within Colonial Heights proper, the remaining number (30) are just north of the City.

Most UST locations within the City are dispersed along the strip commercial area of Boulevard. Other USTs are found on Temple Avenue and in Rosyln Industrial Park, which lies just opposite Southpark Mall on I-95. The primary types of local businesses using USTs are gas stations, oil companies, service stations and a few miscellaneous manufacturers. Stored products typically include gasoline, kerosene, diesel and heating oil. Three local UST's involve storage of haxerdous materials; all such facilities are located within Roslyn Industrial Park.

Most UST systems in Colonial Heights are constructed of either steel of fiberglass. Capacity of local UST's range from 500-20,000 gallons. A majority of City UST's (85%) are relatively new in age (under 30 years). Older facilities are generally found in the 600-1600 blocks of Boulevard or at two of the local school sites (North Elementary and Colonial Heights Junior High School). While aging, none of these facilities are known to be leaking or in deteriorated condition at this time. Except for a few unmarked facilities, all UST's in the Colonial Heights area are regulated by existing federal and state law. Most local service stations have recently replaced underground tanks and pump systems in compliance with the federal Clean Air and Water Act.

There are no large scale hazardous waste facilities located in Colonial Heights nor any sites designated as Emergency and Remedial Response Investigation Sites (ERRIS). The only hazardous waste sites in Colonial Heights have generators (11 permitted) and there are no known problems associated with any of these sites.

2. Landfills - The only known potential groundwater pollution problem related to disposal sites in Colonial Heights is the old municipal landfill site located in the southeastern section of the City near the Appomattox River. This is an 80 acre, non- permitted site that the City has been working on for the past 15 years. The site was used only for the disposal of residential garbage on 20 acres of the original 80 acres. About four (4) years ago a Closure Plan was developed to cap the 20 acres actually used as a landfill. The City is now working on a Monitoring Plan which involves the periodic sampling of groundwater and surface water through the use of seven (7) monitoring wells at or near the site. To date, this monitoring of groundwater and surface water has not shown any water quality problems associated with the landfill.

3. Waste Lagoons - The State Water Control Board issues Virginia Pollution Abatement (VPA) permits to regulate activities that do not discharge to surface water such as land application of nonhazardous waste pits, ponds, and lagoons for waste storage, treatment, or recycling. All VPA permitted activities are considered potential sources of groundwater contamination. Currently, there are no VPA permits issued for activities in Colonial Heights.

EXISTING/ POTENTIAL POLLUTION SOURCES (MAP)

4. Septic Tanks - Septic tanks in particular have been identified by the EPA as the most frequently reported source of groundwater contamination in the United States. However, a properly designed, installed, maintained, and utilized septic system should function well for many years.

In Colonial Heights, the vast majority of residences, businesses, and industries are connected to the public sewer system. Only a half a dozen or so residences currently use septic systems. These particular residences are located in the northwestern part of the City on Swift Creek Lane and Pondola Lane where public sewer service is not readily available. According to the local health sanitarian, these homes cannot be served with gravity sewers because of low topography and installation of a pump station is cost-prohibitive. However, based on the sanitarian's assessment, the existing septic systems are in good working order and serve well-maintained, quality homes. The only other facility of note is a large drainfield serving the restrooms at White Bank Park. Based on the low amount of use and the satisfactory condition of the drainfield, this facility is not being considered for sewer hook-up at this time.

5. Pesticides and Fertilizers - As indicated on the General Land Use Plan Map, there are no areas devoted to agricultural crop production in the City of Colonial Heights. Thus, the use of pesticides and fertilizers, except for the residential use of such chemicals, probably do not impact the water quality in significant amounts.

Since groundwater is difficult or impossible to purify once it becomes contaminated, and groundwater protection is more cost effective than remediation, groundwater protection is very important. To protect groundwater supplies, the City should continue to remove and/or replace underground storage tanks in the City consistent with the State Underground Storage Program. Also, the City should maintain an inventory of sites with the potential to contaminate groundwater, such as leaking underground storage tanks, hazardous sites, and abandoned wells, and examine the possibility of adopting a local program to monitor such threats to groundwater and recommend remediation strategies. The City should also explore the possibility of carrying out its groundwater protection efforts as part of a regional cooperative effort to address groundwater protection on a regional basis.

4. Local Approaches to Water Quality Protection

The City of Colonial Heights employs a number of different approaches to eliminate conflicts between water quality protection and land uses, both existing and proposed, in Colonial Heights. General guidance is provided by the City's environmental goals, objectives, and strategies, as well as by the specific land use designations shown on the Future Land Use Plan Map. The City also complies with state and federal guidelines concerning wetland protection and management, a vital aspect of water quality. Specific performance criteria and implementation mechanisms for protection of water quality have been adopted in the City's local CBPA, Floodplain, Subdivision and Zoning Ordinances. To ensure the protection of water quality under the local CBPA, the City has also drafted and passed: an ordinance regulating development of delineated and mapped Resource Protection Areas and Resource Management Areas with whole lot coverage of Resource Management Areas, a site plan ordinance, and an ordinance requiring a ten (10) foot green space along front property lines in commercial areas fronting any right of way. Whole lot coverage of Resource Management Areas requires that any lot partially within a designated Resource Management Area be considered wholly subject to the provisions and performance criteria established for RMA lands.

To further eliminate conflicts between water quality protection and land use in Colonial Heights, the Planning Commission is anticipating requesting a change of zoning districts for several key land parcels adjacent to waterways with some parcels being considered to allow less intense uses and coverage, and the City is currently in the process of developing revisions to the Erosion and Sediment Control Ordinance. In the "Land Use" section of the Comprehensive Plan portion of this document, the recommendation to encourage planned unit development and cluster development would also result in minimizing conflicts between land use and water quality. Both of these approaches to development recognize and incorporate the natural features of a site into the overall design of a project and minimize land disturbance.

In the near future, the City will also consider adopting additional landscaping and tree ordinances. Landscaping ordinances require developers and property owners to develop landscaping plans for their projects, and establish standards for location, quantity, sizing, spacing, buffering, and screening. Landscaping ordinances can enhance water quality protection by limiting ornamentals and other exotic species that require greater maintenance and water. Landscaping ordinances also prevent land clearance which compounds problems with erosion, sedimentation, stormwater management, and nonpoint source pollution.

The following general concepts and approaches to water quality protection are utilized throughout the City's various land use control ordinances and Comprehensive Plan implementation strategies:

Performance Standards: Requirements established to minimize erosion and sedimentation potential, reduce land application of nutrients and toxins, and maximize rainwater infiltration. The purpose and intent of these requirements are also to implement the following objectives: prevent a net increase in nonpoint source pollution from new development; achieve a 10% reduction in nonpoint source pollution from redevelopment; and achieve a 40% reduction in nonpoint source pollution from agricultural uses.

Buffer Areas: An area of natural or established vegetation managed to protect other components of a Resource Protection Area and state waters from significant degradation due to land disturbances.

Setbacks: A prescribed line delineating those portions of a lot into which no development or building shall project.

Density Requirements: Requirements that govern the average number of families, persons, or housing units on a parcel of land. Density requirements can be flexible, and when combined with cluster development, can help maintain open space by permitting higher densities and open space in other areas. Density limits for water quality protection tend to encourage large lot zoning, although cluster development could also result.

Stormwater Management: The management of runoff from land development projects to address pollution, groundwater resource depletion, stormwater runoff, stream channel erosion, and localized flooding.

Best Management Practices (BMP's): A practice, or combination of practices, that is determined by the state or designated area-wide planning agency to be the most effective, practical means of preventing or reducing the amount of pollution generated by nonpoint sources to a level compatible with water quality goals.

Water Quality Impact Assessments: A water quality assessment is required for any proposed development within an RPA and any development in an RMA as deemed necessary by the Director of Planning and Community Development due to the unique characteristics of the site or intensity of the proposed development in order to: identify the impacts of proposed development on water quality and lands within RPA's and other environmentally sensitive lands; ensure that if development does take place, it will be located on those portions of a site and in a manner that will be least disruptive to the natural funds of RPA's and other sensitive lands; protect individuals from investing funds for improvements proposed for location on lands unsuited for such development because of high ground water, erosion, or vulnerability to flood and storm damage; and to specify mitigation measures which will address water quality protection.

A minor water quality assessment pertains only to development within Chesapeake Bay Preservation Areas which causes no more than 5,000 square feet of land disturbance and requires any modification or reduction of the landward 50 feet to the 100 foot buffer area. Such an assessment must demonstrate through acceptable calculations that the remaining buffer area and necessary best management practices will result in removal of no less than 75% of sediments and 40% of nutrients from post-development stormwater runoff.

A major water quality assessment is required for any development which exceeds 5,000 square feet of land disturbance within Chesapeake Bay Preservation Areas and requires any modification or reduction of the landward 50 feet of the 100 foot buffer area; disturbs any other component of an RPA or disturbs any portion of the buffer area within 50 feet of any other component of an RPA; or is located in an RMA and is deemed necessary by the Director of Planning and Community Development.

Plan of Development Process: A requirement for any development or redevelopment exceeding 2,500 square feet of land disturbance prior to any clearing or grading of the site or issuance of any building permit; includes a site plan, environmental assessment, landscape plan, stormwater management plan, and an erosion and sediment control plan.

E. ACCESS TO WATERFRONT AREAS

One of the major initiatives of the Chesapeake Bay Agreement entered into by the Bay States, the Environmental Protection Agency, and the Chesapeake Bay Commission involves the improvement of public access to the tidal waters of the Bay. Increased Bay access opportunities are expected to increase public awareness which in turn is expected to increase public support and commitment for the preservation of the Chesapeake Bay.

Public access includes both water-dependent and water related facilities. Water-dependent activities include marinas, canoes or boat launch ramps, beaches, and public water-oriented recreation areas. Picnicking, facilities for education, camping, hiking, hunting, wildlife observation, and other passive recreational uses are considered water-related activities.

Within the boundaries of Colonial Heights, the Appomattox River and its tributaries, Swift Creek and Old Town Creek provide waterfront access. The Appomattox River is a major tributary of the James River; it flows in an easterly direction across the piedmont and coastal plain of south central Virginia between Appomattox Courthouse and its confluence with the James River in Hopewell. The portion of the River in the Crater Planning District meanders through six jurisdictions, including the City of Colonial Heights. As more growth occurs, more pressure is being placed on the Appomattox River and its adjacent lands. Competing uses must find ways to survive compatibly, without significantly depleting the available resources.

The 1990 Coastal Zone Management Act encourages coastal communities to identify opportunities for public access. This study responds to this concern. An inventory of all locations for public access to the Appomattox River was conducted in the Crater region. Provision of public access is an important part of the region's overall objective for better stewardship of this important natural resource, since it is believed that citizens will be more likely to develop a sense of ownership and appreciation for the area's waterfront environment if they are able to experience these resources personally.

According to the Corridor Study, there are four (4) public access locations in the City of Colonial Heights. Existing and proposed public access locations in Colonial Heights are shown on the Public Water Access Sites Map. A brief description of the access points identified in the Corridor Study and their potential facilities follows.

1. Public Access #8 is a potential access site located in the southeastern part of the City on the left bank of the Appomattox at the site of the Colonial Height's animal shelter. The City's police department also conducts firearms practices at this location. Previously it was an old city sanitary landfill site. The area along the edge of the river is in a floodplain. It is a potential site for boat ramps and fishing.

2. Public Access #1, Fort Clifton Park, is located in the northeastern part of the City and consists of 24 acres overlooking the Appomattox River. This park features one (1) picnic pavilions and three (3) individual picnic shelters, a playground/ballfield, a fishing pier, hiking trails, and historic earthworks.

3. Public Access #2, White Bank, consists of 22 acres overlooking Swift Creek and is located in the northern part of the City. White Bank includes picnic areas (2 picnic pavilions and 8 individual picnic shelters), nature trails, multi-purpose play areas, and a fee-free boat launching area. Bank fishing is also possible at White Bank.

4. Public Access #3, Lakeview Park, is located at the western end of the City off the south shore of Swift Creek Lake and consists of 2.7 acres. It includes a fee-free boat/canoe launching site, one (1) picnic pavilion and individual picnic tables, playground equipment and a fishing dock.

Waterfront Access and Water Quality

In addition to the public access points noted above, private access to the City's waterfront areas is provided by various slips and piers. Access, both public and private, to waterfront areas should seek to balance public and private interests with water quality protection goals. Water access can be categorized as follows: boat-related access, swimming access, fishing access, and natural area access.

Of the four types of access, boat-related facilities and activities potentially have a greater impact on water quality. The clearing of shoreline vegetation for access structures and adjacent parking areas generates additional runoff which carries pollutants and eroded sediments, and destroys marine wildlife habitats. The on-shore storage of fuel, oil, and sewage waste at such facilities can pose a threat to water quality if these substances are carelessly managed. Bottom paints have varying degrees of toxicity depending on their active ingredients, and the level of these pollutants naturally will increase as the number of boats and boat service areas increase. In addition, dredging and channel widening, often essential to the functioning of boat-related facilities, releases settled pollutants and increases turbidity in the water, disrupting shellfish populations.

Boat traffic creates or exacerbates turbidity by increasing the physical energy in a waterway. Propeller wash and wakes suspend sediments and keep them in suspension for longer durations. This turbidity impacts the ecology of shallow marsh areas by reducing sunlight necessary to growth of submerged grasses, disturbing larval settlement, and affecting food supplies of marsh organisms. Pollutants resulting from the operation of the vessels themselves include spilled petroleum products, non-biodegradable litter, and sanitary waste. Consequently, boating is generally recognized as a nonpoint source of pollution. While the impact from individual boats may be negligible, the cumulative impact in many cases may generate significant localized water quality problems.

PUBLIC WATERFRONT ACCESS SITES MAP

Existing water quality may not be affected by beach access and swimming if appropriate sanitary facilities are incorporated in the development of beach and swimming access areas. Beaches should be located only where there is adequate water circulation to maintain acceptable water quality. Adequate circulation frees the water of bacteria and pollutants which occur when a large number of swimmers use the beach. Well-circulated water and periodic tidal flows normally remove surface debris, such as weeds or other floating objects that would normally tend to be deposited on the beach.

If a beach is located near a major boat ramp, marina, industrial site, or other potential pollutant, it should be located to minimize or avoid the potential effects of fuel spills and other potential pollutants. Beaches should not be sited near or adjacent to other areas used as roosting or nesting sites by waterfowl, since land and water contamination is likely due to droppings deposited in these areas.

With regards to public fishing piers, existing water quality may not be affected if appropriate sanitary facilities and fish cleaning areas are incorporated in the development of pier and bank fishing access areas. Existing water quality should be assessed based on its desirability for fishing prior to the development of the fishing access site.

Strict erosion and sedimentation measures should be implemented as part of the Best Management Practices to avoid degradation of water quality during the development of natural area access sites. Existing and projected water quality conditions within the vicinity of the access site should be assessed to determine the potential for adverse changes being caused by access related factors.

Future Water Access Sites

The City owns a large parcel of property adjacent to the Appomattox, between Temple Avenue and Interstate I-95, which was used as a landfill site until the past decade. Interest is growing in the City to redevelop this area and several smaller sites owned by the City for recreation, water access, and other public uses. There is the potential for public access to water at the following City locations:

1. Public Access Site #6: Route 301/1 bridge site (with relocation of bridge). 2. Public Access Site #7: Dunlop Farms (i.e canoe launch). 3. Public Access Site #9: A portion of the Appomattox currently serving as a diversion channel (currently access is limited to a primary channel because of Corps dredging activities).

Two additional proposed public access locations include one park overlooking the Appomattox River and one park overlooking Old Town Creek. The Cedarwood Park Recreation Area, Public Access Site #4, on the Appomattox River is proposed to be located in the general area bounded by Covington Road-Cedarwood Avenue-Yacht Basin Drive. The Ellerslie-Bent Oaks Recreation Area, Public Access Site #5, is proposed to be located overlooking Swift Creek in the general area behind White Oak and Pin Oak Courts.

As indicated on the schematic drawings, each of the proposed sites would provide walking/jogging trails and picnic facilities. In addition, a playing field, tot lot, and basketball court are proposed for the Ellerslie-Bent Oaks Recreation Area; and youth fields and a tot lot play area are proposed for the Cedarwood Park Recreation Area.

To promote the protection of water quality at the proposed recreation areas, the use of impervious surface materials such as gravel or crushed stones is recommended for the parking areas. Additionally, at both sites, adequate vegetation should be promoted through the use of native plant materials. At the Cedarwood Park Recreation Area, the parking facilities, youth fields, concessions area, restrooms, and picnic area are designed to be located away from the environmentally sensitive areas along the Appomattox River to minimize the potential impact of access on water quality. Also, the proposed location of the walking/jogging trail at the proposed Cedarwood Park site permits maximum observation opportunities without the destruction of protected areas. The trail at the Ellerslie -Bent Oaks Recreation Area is similarly designed. In order to minimize the impact of public access, the Ellerslie - Bent Oaks Recreation Area is deliberately designed on a smaller scale than the Cedarwood Park Recreation Area because of the proximity of Old Town Creek.

Noted below are design standards that should be considered by City officials as water access recreation areas are planned and developed. These standards were obtained from the Chesapeake Bay Area Public Access Technical Assistance Report (October 1990) design criteria for natural area access.

Design Standards for Proposed Recreation Areas

1. Site Plan Layout

A natural access site should be designed to produce minimum disturbance to the environment, considering the safety and enjoyment of the users, the volume and type of traffic, the protection of adjacent resources, and the aesthetic quality of an area. The site plan layout should also incorporate features to minimize adverse impacts on the environment while providing passive recreation, educational opportunities, and interpretive features. Such an access site should exhibit a quality environment with low maintenance requirement.

CEDARWOOD PARK RECREATION AREA (MAP)

ELLERSLIE - BENT OAKS RECREATION AREA (MAP)

2. Essential Elements and Desired Relationships

Essential elements and their locations within natural areas include convenient access to the site, designated trails, adequate parking, picnicking areas, play areas, restroom facilities, utilities, interpretive centers, and maintenance facilities.

3. Land Requirements

Specific site conditions, including habitat requirements, land availability, environmental factors, regulations, and proposed degree of use, must be assessed to determine the land requirements and potential user capacity for a particular access site. The land requirement for the development of natural access areas are entirely resource dependent. The size and site conditions of a designated natural area determines the visitor capacity of the site. The determined visitor capacity relates directly to the size and type of support facilities required for the site.

(a) Area Requirements

Typical area requirements for natural area facilities will vary according to other passive recreational facilities and amenities planned for the site. A natural area access may include facilities such as raised boardwalks and trails; observation platforms and blinds along water resource areas for viewing unique natural features, vegetation, and/or wildlife; access roads; parking; an interpretive center; and restroom facilities. Additional amenities such as picnicking areas, camping areas, and other recreation-related facilities may be desired at certain sites and may require additional land.

(b) Water Depth and Subsurface Conditions

The water depth, subsurface conditions, and wetlands within a designated natural area should be left undisturbed. Water depth and subsurface conditions are not a consideration for determining the suitability of a site to function as a natural area.

If roads and parking areas are needed, these areas should be designed to have minimum impact on the natural resource. The use of any type of motorized vehicles in areas other than on designated access roads should be prohibited in natural areas. The destructive effects of vehicles and soil compaction related to vehicular use in these areas have proven to harm wildlife. Proposed access into a natural area should only be developed where vehicle entrances are feasible and where the roadway does not interfere with other uses, create safety hazards, or adversely impact the area. External access roads to the site should meet secondary road standards with road widths of at least 20 feet and shoulders or berms at least 4 feet wide. Guardrails or posts should be provided on 6 foot enters for embankments over 6 feet high on all internal and external access roads. Proper traffic signs should be posted.

Parking

Parking areas should be located within convenient walking distance of the pedestrian access facilities, trailheads, interpretive centers, and observation areas. Parking areas serving natural area access should be located in areas which cause the least direct and indirect disturbance to significant habitats. The amount of parking should be determined from the carrying capacity of the access site. In general, one parking space should be provided for every three visitors. Additional parking may be required where multiple use activities are provided. The layout of the parking area should minimize pedestrian conflict with vehicular areas and circulations.

The standard parking layout for compact and conventional types of automobiles is 150 cars per acre. The parking spaces should be 9 feet by 18 feet with a 25 foot turning strip between the two parking lanes for a total of 65 feet from end of car to end of car. Bumper blocks and guardrails or posts should also be installed where necessary. In natural areas, gravel and crushed stone surfaces are preferable to asphalt or concrete paving. Slope and drainage factors should be considered during the design of these facilities. An adequate number of parking spaces should be provided for the physically handicapped. These spaces should be connected to a walkway suitable for handicapped access which leads to the site's support facilities and trails.

(d) Pedestrian Considerations

Designated pedestrian access should provide safe connections to site facilities including maintenance areas, parking lots, restrooms, interpretive centers, and trails. These areas receiving high level of pedestrian use should be physically separated from vehicular traffic as a safety precaution. These heavily used areas should also be surfaced with a hard material, while trails and passive areas may be constructed using more natural materials. Access walkways should be designed for handicapped accessibility with well-defined edges and should be a minimum of 4 feet in width.

Raised boardwalks are generally appropriate for access into natural areas where trails at grade are not feasible or appropriate. The boardwalks should be a minimum of 4 feet wide with railings constructed of treated wood with a slope of 5 percent or less. When on-site grade change is greater than 5%, handicap ramps should be provided to enhance accessibility to the site facilities. Crosswalks should be constructed with curb ramps on each side whenever they cross vehicular roads.

(e) Special Development Requirements

(1) Unique Requirements

Each access site requires a different combination of development features which relate to the activities planned and the anticipated level of use for the specific use. The following elements should be considered during site development.

Trails

Factors to consider when designing a trail are alignment, topography, vegetative cover, aesthetic value, points of interest, road crossings or other potential dangers, and final destination. Trails should allow users to enjoy passive activities such as nature photography, birdwatching, and natural history interpretation. The trail should begin and end near the interpretive building. The entrances should be clearly marked with a sign which includes a trail map that marks the highlights of the area. An interpretive trail could deal with the history of an area, the natural resources, and the different habitats found on the land.

Trails can be designed for the visitor to travel alongside, through, or over resource protected areas. This can be done by a raised boardwalk or footbridge which permits maximum observation without destruction to the protected areas. It is recommended that trails lead to points of interest via routes carefully chosen to minimize erosion, soil compaction, and disturbance to wildlife.

Foot trails should be designed for hiking only. Motorized vehicles are not compatible with non-motor uses. Barriers such as logs, stairways, and narrow stream crossings can be utilized to discourage non-pedestrian users. However, some trails should be handicapped accessible.

Trail Construction

Trail dimensions should be based on the type and volume of use anticipated, on the stability of native soil, and on the type of terrain along the proposed route. Generally, a pedestrian trail tread width should not be less than 2 feet wide for foot trails. Main trails should be approximately 6 feet wide and fire trails a minimum of 8 feet wide. Additional width could be considered to reduce impacts from heavy traffic.

As a rule of thumb, the width of the trail varies according to its use. Short trails within heavily used recreation areas will normally be considerably wider than the trails designed for an area that will not be used as often. Bushes and trees that are in the route of the trail should be cut flush with the ground. Trees and stumps should be removed if the tree roots will interfere with grading. Overhead limbs should be removed to a height of 8 feet above the finish grade of the trail.

Tread width - 2 feet minimum Clearing width - 4 feet Height of clearing - 8 feet minimum Maximum sustained trail grades - 8-10%

Trail Layout

In general, the layout of the trail should be inconspicuous. The trail should have a variety of experiences taking advantage of views, open spaces and forested areas, and whenever possible, it should run along water bodies and habitat areas of interest.

Trail Base Preparation

In preparing the base for a trail, the subsurface material and slope of the land should be considered. If the site is wet, the trail should be raised six inches above the surrounding area. This is done through the use of board walls or grading, if environmentally acceptable. In some situations, trails may run alongside where cuts must be made in order to achieve level treads.

The following characteristics should be incorporated in trail surfacing:

* Use of compacted materials.

* Resistance to anticipated foot traffic and erosive factors.

* Usability when wet, and minimal dust when dry.

Grade

Trails should be built to follow the contour of the land if at all possible. A grade of 10 percent or less is recommended for ease of hiking and to prevent erosion.

Length

Trails should be of a loop design returning to their point of beginning. Options to terminate a hike or extend a hike for a greater distance along the trail are desirable for day users.

Drainage

Drainage is one of the most important items in trail construction. Water must be kept within manageable limits to prevent erosion and maintain a trail throughout the year. To facilitate surface runoff, the tread of the trail should be graded so that the outside is three inches lower than the inside edge along a hillside. This is referred to as outsloping. To prevent excess water from accumulating along a trail, water breaks or bars and grade dips may also be used.

Surfacing

Surfacing is a costly item in trail construction and natural materials should be used wherever feasible. Hard surface materials may be used on walkways located at an interpretive center or at points of concentrated use. Otherwise, surfacing material that is durable and blends with the environment should be used.

Signage

Adequate signage is essential at the beginning of a trail, at intersections, and at locations on the trail where the direction is not readily discernible. Trail signs should include distances to various points of interest along the way. Frequent mileage markers along the trail are helpful to the hiker and useful in the operations and maintenance of the park. Interpretive markers and information are desirable features on any type of trail. Trail signs should conform with the standards of the natural area.

Revegetation

During the design and construction process, adequate vegetation using native plant materials should be planned for areas where existing vegetation had to be removed.

(2) Electricity

Public telephones should be placed where they are easily found, generally at comfort stations, visitor information buildings, or near the parking lot. All lines should be placed underground, unless special conditions make such an installation possible.

Adequate lighting around the parking area should be considered for safety if the natural area will remain open after dusk. In order to reduce the impacts of night lighting on adjacent land uses, low-height lighting fixtures are recommended. Lighting should be directed toward the facility use areas, shielded from adjacent properties and vandal proof.

(3) Water Supply and Distribution System

An adequate water supply and distribution system may be desirable to provide public drinking water and fire protection, and for the maintenance and operation of the access facility. It is recommended that the water supply, treatment, and distribution be planned to complement the wastewater collection, treatment, and disposal system.

Natural areas at remote sites which are open as access sites on a limited basis would not require restroom facilities. In high use areas, however, restroom facilities should be connected to an approved external public water system or an on-site well.

The water supply and distribution system should be planned under the direction of a sanitary engineer and should meet local planning and health department requirements.

(4) Sewage Disposal/Restrooms

If use of a natural area is such that disposal and/or treatment of waste is necessary, all designs for sewage disposal shall be in compliance with state and local requirements.

The most desirable method for sewage disposal is to tie into an existing system. If an existing system is not available, on-site treatment is required. Prior to the design of an on-site treatment system, the proposed area for treatment should be evaluated according to local regulations. The design and specifications for sewage disposal systems is site-specific.

Permanent restroom facilities should be a priority at larger heavily used natural area access sites. The facilities should be sited conveniently to the access trailhead and other support facilities. The restroom facilities must meet the public health requirements of local, state, and federal agencies within whose jurisdiction they are to be built. A minimum of one toilet fixture and lavatory per sex for every 30 parking spaces is recommended. Restrooms should be designed to meet all requirements for access to and use by the handicapped. Waste-water from these facilities may be (1) tied into the local sewer system; (2) processed in an on-site septic tank; or (3) collected on site in a holding tank and disposed off-site. (5) Stormwater Management

Parking areas may create potential environmental impact related to increase runoff on-site. Best management practices should be implemented during site development and after construction is completed to avoid or mitigate these potential impacts. The following design measures may be incorporated into the site design for natural area access facilities to avoid or alleviate site runoff.

* Installation of catch basins and filters to trap pollutants. In natural areas stormwater management devices should be constructed of stone or made to blend with the surrounding environment.

* Avoidance of direct channeling of runoff water onto tidal wetlands or other sensitive resource areas.

* Use of porous gravel or a perforated paving block surfacing for parking areas and pedestrian walkways.

IV. ANALYSIS OF EXISTING CONDITIONS

A. LAND USE

Introduction

Determining existing land uses is essential to developing a Land Use Plan for a community. Without a clear picture of the existing land use pattern, any future land use plan lacks a sound basis for decision-making.

Historical growth show how land use patterns in the City of Colonial Heights developed. In 1968, Colonial Heights adopted its first Zoning Ordinance, following development patterns that had been irrevocably established from the linear growth along U.S. Route 1 which bisected the City. The Zoning Map continued to support the growth patterns of past development. Since that time, the Zoning Map has undergone various modifications however, it remains generally similar to the 1968 Zoning Map.

Land use, not surprisingly, is directly related to the City's current Zoning Ordinance and Map. For example, the majority of land in the City is zoned for residential use which currently accounts for the largest amount of developed land in the City. The current trend of development in Colonial Heights is, as in most localities throughout the country, the continuation of residential land use consumption. Housing for the most part has been the fastest growing land use category in the City. Single-family residences represent a large part of the City's taxable real estate, the protection of these properties is one of the objectives of this Plan.

Existing Land Use Features

Land Use acreage shown on Table (12), 1997 Existing Land Use, is delineated by specific category (residential, commercial, etc.). 1997 Existing Land Use can be compared to Table (13), 1974 Existing Land Use, to see the changes that have occurred since that time. This data provides an interesting perspective on land use in Colonial Heights. Each land use category is described by the actual number of developed acres, percent of the total City area, and percent of the total developed area of the City.

Some of the results are presented herein:

1. Residential development consumes over 1,600 acres of City land, representing almost half of the developed land in Colonial Heights. Residential development is the only land use category which has decreased as a percent of developed area since the 1974 Comprehensive Plan.

2. Nearly all residential development is in the form of single-family detached housing. Multi-family dwellings consist of only 3.7 percent of the residential market. This percentage is below that of comparable sized cities and reflects a decrease of 1.0 percent since the 1974 Comprehensive Plan.

3. Commercial and Business acreage has tripled since the 1974 Comprehensive Plan. This increase has been due mostly to the development of the Southpark Mall Regional Shopping Center. In 1997 there were 387.8 acres of commercial and business properties in the City of Colonial Heights; this reflects a 6.3 percent increase since the 1974 Comprehensive Plan.

4. Industrial land uses have primarily not changed since the 1974 Comprehensive Plan, representing 2.2 percent of developed area. Industrial activity continues to be light industrial and is located primarily in the Industrial Park.

5. Public and semi-public land has almost doubled in acreage since the 1974 Comprehensive Plan. The City of Colonial Heights has over 400 acres of public and semi-public land. This land use category includes: churches, schools, community facilities, parks, and recreational facilities. Public and semi-public land consumes 11.8 percent of developed land in the City.

6. Acreage use for transportation, streets, and rights-of-way has also almost doubled since the 1974 Comprehensive Plan. This land use category represents 895 acres of developed land in the City making the category of transportation, streets, and rights- of-way the second largest user of land in Colonial Heights.

7. The remaining 1,625 acres in the City consists of vacant, agricultural, and forestal land and bodies of water. Of this 1,625 acres, 983 of these acres are undevelopable because they are water, wetlands, steep slopes, or other undesirable development areas. Most of the remaining 642 acres available for development will likely be developed over the next several years. The majority of the developable acres are zoned for residential development with a small portion zoned for business and manufacturing.

TABLE 12

Existing Land Use City of Colonial Heights, VA (February 1997)

Percent Percent of Acreage of City Developed Land Use Category Used Area Area

Residential Single-Family 1,507.5 30.0 44.4 Multi-Family & Duplex 126.7 2.5 3.7 Subtotal 1,634.2 32.5 48.1

Commercial General Commercial 192.8 3.8 5.7 Shopping Centers 195.0 3.9 5.8 Subtotal 387.8 7.7 11.5

Industrial Light Industrial 74.2 1.5 2.2

Public & Semi-Public Parks & Recreation 137.3 2.7 4.0 Public 265.4 5.3 7.8 Subtotal 402.7 8.0 11.8

Transportation, Streets, Railroads & Right-of-ways 895.0 17.9 26.4

TOTAL DEVELOPED AREA 3,393.9 67.6 100.0

Vacant lots, Agriculture, & Forest 1,454.0 29.0

Water 170.5 3.4

TOTAL 5,018.4 100.0

Source: Field Surveys, K.W. Poore & Associates, Inc., Planimeter Readings, September 1991; Updated, February 1997.

TABLE 13 1974 Estimate Of Existing Land Use City of Colonial Heights, VA

Percent Percent of Acreage of City Developed Land Use Category Used Area Area Residential Single-Family 1,363.4 26.1 59.4 Multi-Family & Duplex 67.3 1.3 4.7 Group Quarters 0.1 ------Subtotal 1,430.8 27.4 62.3

Commercial General Commercial 112.0 2.1 4.8 Shopping Centers 9.0 0.2 0.4 Subtotal 121.0 2.3 5.2

Industrial Limited 37.3 0.7 1.6 Light & Heavy Industry 17.5 0.3 0.7 Subtotal 54.8 1.0 2.3

Public & Semi-Public Parks & Recreation 63.0 1.3 2.8 Schools 122.6 2.3 5.3 Public and Semi-Public 33.7 0.6 1.5 Subtotal 219.3 4.2 9.6

Transportation, Streets, Rights-of-way, Parking Lots & Garages 473.2 9.0 20.5

TOTAL DEVELOPED AREA 2,299.1 44.0 100.0

Vacant lots, Agriculture, & Forest (Woodlands) 2,759.6 52.8 (1,946.2 developable acreage)

Water 170.5 3.2 (37.3% of developable vacant lands) TOTAL 5,216.0 100.0

Source: Tri-Cities Transportation Study, 1974; updated and revised by the Crater Planning

TABLE 14 Land Use Changes City of Colonial Heights (1975 - 1997)

Acres Acreage Percent Use Category 1974 1997 Change Change

Residential 1,430.8 1,634.2 203.4 14.2 Commercial 121.0 387.8 266.8 220.5 Public & Semi Public 219.3 402.7 183.4 83.6 Transportation 473.2 895.0 421.8 89.1 Industrial 54.8 74.2 19.4 35.4

TOTAL DEVELOPED LAND 2,299.1 3,393.9 1094.8 47.6

Source: Tri-Cities Transportation Study, 1974; updated and revised by the Crater Planning District Commission, 1975. Field Surveys, K.W. Poore & Associates, Inc., Sept. 1991, planimeter readings, updated and revised February 1997. District Commission, 1975.

Summary of Land Use Acreage

As shown on the previous tables, the City's overall land mass is dominated by two major uses: residential (1634.2 acres or 32.5% of City area), and vacant land (1,625 acres, including water, or 32.4% of City land area). Of the developed land mass, the City is dominated by residential (1,634.2 acres or 48.1% of developed area) and then by Transportation, Streets, Railroads, and Rights-of Way (895 acres or 26.4% of developed area). Public and semi-public uses contribute the next largest use (402.7 acres or 11.8% of developed area), followed by commercial (387.8 acres or 11.5% of developed area), and lastly, industrial uses (74.2 acres or 2.2% of developed land).

Commercial development in Colonial Heights has shown the greatest percentage increase in developed land, increasing from 121 acres or 5.2% of developed land in 1974 to 387.8 acres or 11.5% of developed land in 1997. This increase has been in large part due to the rapid growth of the Southpark Mall Regional Shopping Center in the southeast portion of the City (south of Temple Avenue and east of Roslyn Road). Historically, the growth of the business community was primarily suited for highway traffic along U.S. Route 1 and 301 (the Boulevard). However, after 1958, when the Richmond-Petersburg Toll Road was developed and opened, a majority of the Route 1 and 301 traffic was diverted. The remaining businesses either conformed to the commercial needs of the rapidly growing residential community or moved elsewhere.

Today, the business/commercial community has grown from providing for the basic needs of a small city to providing for the needs of the region. Business/commercial zoning and growth has expanded to include not only the frontage along U.S. Route 1/301 (from the northern incorporated boundary, Swift Creek, to the southern boundary, the Appomattox River), but also an area at the intersection of Ellerslie Avenue and Interstate 95, as well as a large area at the intersection of Interstate 95 and Temple Avenue.

In the past 20 years, industrial land has only grown from 54.8 acres (or 2.3% of developed land) to 74.2 acres (or 2.2% of developed land). With the available transportation corridors along Interstates 95 and 85, Virginia Route 460, and potential railroad service, industrial expansion should be encouraged. The present industrial area is developing with an industrial park concept and only allowing "clean" industries to locate in the City. This type of industrial expansion is recommended and established in policy by the local officials with the result of a slow industrial growth rate.

The majority of housing starts in the City of Colonial Heights occurred during the 30 year period from 1950 to 1980. During this time, 4,465 building permits, or 69% of the total building permits issued over the years, were issued. This was a time of great residential growth. Since 1980, this growth has slowed considerably, in part due to the reduction of vacant land available to residential development. The table below shows the number of building permits issued since 1939 (or earlier).

TABLE 15

Housing Starts City of Colonial Heights, VA (1939 to 1992)

Number of Year Structure Built Building Permits Average per Year 1939 or earlier 642 --- 1940 - 1949 663 66.3 1950 - 1959 1,429 142.9 1960 - 1969 1,675 167.5 1970 - 1979 1,361 136.1 1980 - 1984 345 69.0 1985 - 1989 250 50.0 1990 - 1992 114 38.0 Total: 6,479

Source: Office of the Building Inspector, City of Colonial Heights.

The total number of business licenses issued over the five (5) year period of 1988-1992 in Colonial Heights is shown below. The largest number of business licenses have been issued for the categories of "contractor", "retail", and "other". This growth is directly related to the success and growth of the Southpark Mall area. The table below shows the number and types of business licenses issued over five years. TABLE 16

Business Licenses City of Colonial Heights, VA (1988 - 1992)

Year Contractor Wholesale Retail Service Professional Other Total 1988 183 7 220 59 51 213 733 1989* 241 11 294 77 72 290 985 1990 260 11 312 83 73 302 1,041 1991 235 9 281 75 66 272 938 1992 259 10 311 83 73 301 1,037 Total 1,178 48 1,418 377 335 1,378 4,734

*Categories represent actual numbers from Commissioner of Revenue Office; other years based on percentages developed from 1989 data.

Source: Commissioner of Revenue Office, City of Colonial Heights.

Based on current land use trends in Colonial Heights, the following observations can be made that may be useful in future land use planning for the City:

. As less developable land becomes available, increases in residential densities may occur. This may be in the form of duplex or multi-family dwellings, townhouses, apartments, or infill between existing structures.

. With the removal of the tolls at the Temple Avenue/I-95 Interchange, commercial activity has increased. Due to environmentally sensitive areas along Old Town Creek and Temple Avenue, future development in this area will concentrate along the southern side of Temple Avenue. Some development may occur north of Temple Avenue, but this will most likely be confined along Conduit Road.

. The Southpark Mall area has developed into a regional commercial and business center. Five (5) of the City's 13 major employers are related to the Mall.

. The most recent residential growth has occurred in the northern Conduit Road area and in the Dunlop Farms area. These areas are designated as "Planned Unit Developments" or PUDs.

. The fears of business vacancies occurring along the Boulevard because of the growth of Southpark Mall have not been realized. Although some businesses have closed, new businesses have followed. The Boulevard has not experienced numerous vacancies; rather the evolution of new businesses replacing old businesses is occurring.

. A new type of development occurring along the Boulevard is the office complex. These clusters of business offices share a common building and parking lot. . Abandonment of the rail lines in the City of Colonial Heights has created an opportunity for increased recreation facilities. These railroad tracks can be converted into trails for bicycle and/or equestrian use. A strip park along the Appomattox River and a bikeway along Lakeview Road will provide a loop in the western half of the City for citizens to enjoy.

B. HIGHWAYS AND TRANSPORTATION

Introduction

Transportation plays a crucial role in urban areas. Today's society depends upon an efficient and reliable transportation system at all levels for movement of people, goods, and services. An inadequate transportation system can stifle growth, cause economic shortages, and threaten the safety of its citizens. Colonial Heights is a community that developed over the years as a result of an adequate highway system acting as an artery and mainstream for the eventual growth along U.S. Routes 1 and 301.

Through the years, the City has grown and developed from the transient community during its conception as a highway town to a fully independent municipality. However, the current transportation system still exists within the larger framework of the Tri-Cities (Petersburg, Hopewell, and Colonial Heights, and portions of Chesterfield, Prince George, and Dinwiddie counties) area. Colonial Heights residents depend a great deal upon the employment industries throughout the metropolitan region and rely upon a safe and adequate road system to carry them to their destinations.

Background

Colonial Heights actively works with the Tri-Cities area Metropolitan Planning Organization (MPO) to address the transportation planning needs of the City. The MPO is comprised of representatives from each of the six (6) local jurisdictions, the Virginia Department of Transportation (VDOT), Crater Planning District Commission (CPDC), Petersburg Area Transit (PAT), and the U.S. Department of Transportation (Federal Highway Administration). The MPO is responsible for conducting the continuing, cooperative, and comprehensive transportation planning process as required by the Federal Highway Act of 1962. The MPO is technically assisted by the Technical Committee, which is comprised of representatives from the public works, engineering, zoning, planning, and traffic engineering staffs of the six (6) local jurisdictions, VDOT, and the CPDC.

In the early 1970's, the Tri-Cities Area Thoroughfare Plan was developed by VDOT in conjunction with the six (6) local jurisdictions and CPDC. Home interviews were conducted to establish base year (1972) socio-economic and origin-destination data. This data, along with existing and projected land use and traffic counts, was used to develop the Year 2000 Transportation Plan. The most current plan, The Tri-Cities Year 2010 Transportation Plan Update, was initiated in November 1988. Its objective is to develop a Year 2010 Transportation Plan to guide the Tri-Cities Urban Area in the continued development of a transportation network that will accommodate future travel demands.

The Tri-Cities Year 2010 Transportation Plan Update is based on existing socio-economic characteristics, travel patterns, and projected growth in the study area for the 20-year planning period. This approach addresses the long-range transportation needs of the Tri-Cities area consistent with the resources of the local and state jurisdictions. The 2010 Plan is used to

determine the most cost-effective highway system to serve projected development. Corridors that require or will require transportation solutions are identified which will assist local policy makers in developing a program that more equitably allocates scarce dollars to needed highway and transit projects.

Existing Transportation System

Highways - The principle north-south route through Colonial Heights is Interstate 95, a major highway along the eastern seaboard. Interstate 95 has been completed through Virginia and upgraded to six lanes in most locations. Locally known as the Richmond- Petersburg Turnpike because of its tolls, recently, tolls on this length of road between Richmond and Petersburg have been removed. The removal of the tolls, as well as an increase in the speed limit (from 55 mph to 65 mph), has made Interstate 95 an increasingly popular road for north-south travel. Currently, there are two Interstate 95 interchanges that serves the Colonial Heights area. U.S. Routes 1 and 301 (locally known as the Boulevard) are also principle highways that run through Colonial Heights. Access to Interstate 64, east- west, is possible through Richmond, approximately 20 miles north of Colonial Heights.

To determine existing highway accident locations and/or areas of congestion, a variety of methods were undertaken. Meetings were held with Planning District personnel, City Police, and City Engineering to solicit their comments. Accident data was obtained from City Police and reviewed to identify high accident locations. Travel-time/delay studies were conducted to identify congested intersections and links. Average daily traffic volumes were calculated and projected into the year 2010.

In a conventional sense, there is no serious traffic problem in Colonial Heights because there is no serious traffic congestion along any of the thoroughfares. However, as indicated by the 1990 Tri-Cities traffic volume study, the traffic generation is becoming greater. Thus, problems will arise unless a specific amount of highway improvements are undertaken. The Tri-Cities Area Year 2010 Transportation Plan Update recommends several improvements in Colonial Heights to better provide adequate, safe, and efficient travel throughout the City.

Railroads - While CSX Railroad lines passes through Colonial Heights, the City has no railway facilities. However, rail service does serve the Tri-Cities area and consists of freight as well as passenger service. Freight service is provided by CSX Transportation and Norfolk and Western railroads. The Interstate Commerce Commission, the federal regulatory agency responsible for classifying railroad carriers according to annual operating revenues, has classified CSX Transportation and Norfolk and Western as Class I carriers. In addition, the rail lines in the Tri-Cities area are further classified as density 7, or carrying 300 or more million gross ton-miles per mile of line per year. This is the highest freight traffic density classification of all rail lines in the Commonwealth. Revenue freight originating or terminating in Virginia increased 5.5 percent between 1986 and 1987.

Rail passenger service in the Tri-Cities area is provided by the National Railroad Passenger Corporation (Amtrak). Of the seven (7) intercity trains serving the Commonwealth, the Palmetto, the Silver Meteor, and the Silver Star use the Petersburg station located in Ettrick as regular stops.

Air Transportation - Air service is available to Colonial Heights residents in either Petersburg or in Richmond. The Petersburg Municipal Airport, a public facility, is located southwest of Petersburg in Dinwiddie County. Ground access is provided to this facility by Interstate-85, Route 1, or Route 460. Petersburg Municipal has a 5,000-foot runway and a 3,060-foot paved runway and is classified as a "basic transport" airport by the Federal Aviation Administration, capable of accommodating aircraft with approach speeds greater than 121 knots and aircraft with maximum takeoff weights greater than 50,000 pounds. In addition to fixed-based operations, the services offered by this facility also include charter, air freight, maintenance, and flight instruction.

Scheduled air carrier services for the Tri-Cities area are generally provided by Richmond International Airport located in Henrico County approximately 45 minutes northeast of Petersburg via I-95 and I-64. Richmond International Airport is served by several major airlines with scheduled numerous flights daily and world-wide connections through other lines. Richmond International Airport has recently completed expansion and modernization of all its facilities. Charter flights, air express, and freight services are provided at Richmond, as are all major airport services - food, rental automobiles, and convenient lodging facilities.

Waterways - The Appomattox River forms the southern boundary of Colonial Heights. From this river, Colonial Heights obtains much of its water. A stream gauging station on the Appomattox River is located near Colonial Heights in Matoaca.

The James River flows along the eastern and northern boundaries of Chesterfield County and is navigable as far as the City of Richmond, where there are two (2) shipping terminals. The larger of these, Deepwater Terminal, is located on the Chesterfield side of the river just inside Richmond's city limits. The upper terminal is on the north bank of the river. Both accommodate ocean-going vessels and have turning basins, wharves, modern extensive warehousing, and shipping equipment. Anchorage is available in the James River just below the harbor.

The City of Hopewell, approximately ten (10) miles northeast of Colonial Heights, is also a port to ocean-going vessels. The City Point Port in Hopewell is located just east of Water Street. Docks located here are near the confluence of the Appomattox and James Rivers. The Port facility at City Point serves ocean-going ships and has a 25-foot channel. This facility is owned by Delta Materials Company, Allied Corporation, City Point Oil Terminal, and Stone Container Corporation. In addition, this facility serves as a dock area for private tug boats used for the movement of barge traffic.

Public Transportation - Daily local and long distance passenger service is available to Colonial Heights residents on Trailways Lines. The Petersburg Area Transit (PAT) provides public transportation service within the City of Petersburg and the Ettrick portion of Chesterfield County. PAT has been owned and operated by the City of Petersburg since June 1977. In 1988, the PAT service area covered approximately 6.7 square miles and was available to approximately 30,000 persons, or 70 percent of the population within the City of Petersburg.

Transportation Service for the Elderly and Handicapped - Several private-nonprofit agencies provide specialized transportation services for elderly and handicapped persons in the Tri- Cities area. In addition, PAT provides the resources for a demand response service for qualified persons. This service consists of two wheelchair-equipped vans which provide transportation for medical, shopping, nutritional, and other trip purposes.

Highway Standards

The Virginia Department of Highways and Transportation has developed guidelines for rights-of-way of major streets and highways (see the following table). In general, these rights-of- way vary from 60-350 feet for local and interstate thoroughfares, depending on their level of service and location of the road.

TABLE 17

Roadway Geometric Standards

Road Shoulder Width Minimum Width Designation Lane Width Fill Cut Rights-of-Way Major Arterial Six Lane 12 feet 13 ft 10 ft 160 ft (if applicable) Four Lane 12 feet 13 ft 10 ft 120 ft Minor Arterial 12 feet 10 ft 6 ft 100 ft* Major Collector 12 feet 8 ft 8 ft 100 ft* Minor Collector 12 feet 6 ft 6 ft 60 ft Local Road 12 feet 4 ft 4 ft 50 ft

(Paved or stabilized shoulder width should be 6 feet on the right of traffic and 3 feet on the left of traffic.) *In certain instances, an 80 foot rights-of-way may be considered instead of a 100 foot rights- of- way. Source: Virginia Department of Transportation, Roadway Geometric Standards.

Road Classifications

Roads are classified based on the transportation function they serve. Different classes of roads must meet different standards of design. In Colonial Heights, the urban classification of roads is summarized as follows:

Freeway/Interstate: These facilities are intended to carry heavy traffic volumes and their design includes such features as grade separations, interchanges, access control, and high standards for horizontal and vertical alignments. They primarily serve high speed traffic for longer trips. Interstate 95 through Colonial Heights is an example of this type of thoroughfare.

Major and Minor Arterial: These roadways are primarily limited access facilities having at- grade intersections with left-turn and right-turn slots where traffic warrants. These roads would be expected to carry large volumes of vehicular traffic (autos, buses, trucks, etc.) from one part of the City to another in a direct and continuous manner. Median strips are not necessary, but are useful in controlling and limiting traffic congestion. The Boulevard is an example of a major arterial.

Collector: The collector street system is designed primarily to collect and distribute traffic between local roadways and the arterials and freeways. As such, collector streets may carry both short and intermediate range trips. An example would be Ellerslie and Lynchburg Avenues.

Local: Local streets are minor roadways whose chief function is to provide access to land (mainly residential land). These streets feed traffic into collector and arterial thoroughfares. The local streets carry light volumes - rarely more than 1,000 vehicles per day - and should be laid out so as to discourage through traffic.

There are 80.53 miles of local thoroughfares in the City of Colonial Heights. A summary of the local thoroughfare mileage is found below:

TABLE 18 Local Thoroughfare Mileage Summary City of Colonial Heights, VA (1994)

State Functional Classification Length (mi.) Principle Arterial (ARP) 5.09 Minor Arterial (ARM) 3.02 Collectors (COS) 7.77 Locals (LOS) 64.65 TOTAL: 80.53 ------State Arterials 8.11

COS + LOS 72.42 Total: 80.53

Socio-Economic Characteristics and Growth

The growth of travel demands in the Tri-Cities area is related to the projected increase in its residential, employment, and industrial activities. Trips are produced in residential areas based on population, dwelling units, or registered vehicles. The trip growth parameters used in developing future travel for Tri-Cities include the following four primary variables:

- dwelling units - population - autos - total employment: retail, military and shopping center employment

The variables were developed by the Crater Planning District Commission staff for each traffic zone for the years 1987 and 2010. Growth comparisons among these variables for years 1972, 1987, 2000 (forecast), and 2010 (forecast) are shown in the table below:

TABLE 19 Socio Economic Growth Tri-Cities Planning Area

Year Annual Growth Rate % Variable 1972 1987 2000 2010 '72-00 '87-10 '72-10 Population 125,244 141,351 159,400 178,109 0.9 1.0 0.9 Dwelling Units 37,243 50,299 56,105 72,392 1.5 1.6 1.8 Autos 48,265 103,136 83,928 141,557 2.0 1.4 1.3 Total Employment 51,105 47,771 65,354 56,926 0.9 0.8 0.3

Source: Crater Planning District Commission Staff, May 1990.

Traffic Volumes

The following information on traffic volumes in Colonial Heights is a synopsis of the 1990 Tri-Cities Area Year 2010 Transportation Plan Update. The volumes represent an average daily estimate of the existing traffic movement; this data is a useful tool in studying the serviceability of each thoroughfare. The Virginia Department of Transportation no longer provides individual community thoroughfare plan studies, as in 1970, but instead produces a metropolitan thoroughfare plan incorporating the needs of the surrounding jurisdictions in one large study, including traffic count. The traffic volume data is collected periodically on major thoroughfares in the study area and on highways leading into the region. Following is a table of the 1990 traffic volumes in Colonial Heights.

TABLE 20 Traffic Volumes - City of Colonial Heights, Va.

1990 Average Daily Street/Thoroughfare Number of Vehicles A. Interstate 95 Appomattox River to Conduit Rd. 60,500 Conduit Rd. to northern city limit 58,800 Total: 119,300 B. Conduit Road Boulevard to Ivey Ave. 1,000 Ivey Ave. to I-95 8,600 I-95 to northern city limit 11,000 Total: 20,600 C. Temple Avenue Boulevard to I-95 27,160 I-95 to eastern city limit 23,300 Total: 50,460 D. Boulevard/U.S. 1-301 Appomattox River to Dupuy Ave. 13,300 Dupuy Ave. to Brander's Bridge Rd. 24,700 Brander's Bridge Rd. to Ellerslie Ave. 27,500 Ellerslie Ave. to northern city limit 24,800 Total: 90,000 E. Ellerslie Avenue Boulevard to Seaboard System Railway 9,900 Seaboard System Railway to Conduit Road 15,200 Total: 25,100

Source: Tri-Cities Area Year 2010 Transportation Plan Update, prepared by Kimley-Horn and Associates for the Virginia Department of Transportation with the Crater Planning District Commission, 1990.

C. COMMUNITY SERVICES AND FACILITIES

Introduction

The number of persons estimated to reside in the City of Colonial Heights in the future is a fundamental consideration in the update of the Comprehensive Plan. The projected population serves as a partial basis for the allocation of funds and land for the provision of community facilities and services.

While growth is projected to occur in Colonial Heights to the year 2020, that growth is expected to occur at a slower rate than in the past. With a population of 16,064 in 1990, the City's population is only expected to grow to 16,718 by year 2000 (a .4% annual rate of growth). By the year 2020, the population is expected to grow to 18,110, representing only a 12.7 percent increase over the 1990 population. This population growth will ultimately affect the demand for community services and facilities. An important step in meeting the City's demands for these services is to plan for the future.

The City of Colonial Heights provides government service functions for education, recreation, water, sewers, public buildings, solid waste disposal, safety protection, libraries, and other critical public services. This section of the Comprehensive Plan outlines the existing community services and facilities in the City.

Public Utilities

Sanitary Sewer System

A regional wastewater treatment facility, situated on Pocahontas Island between Colonial Heights, Petersburg, southern Chesterfield County and sections of Prince George and Dinwiddie Counties adjoining Petersburg. The plant is owned and operated by the South Central Wastewater Authority, which is responsible for all maintenance and repair. Operational costs are prorated among the Authority members according to the flow metered from each locality.

All of the pump stations have adequately sized pumps and connecting trunk lines, and are in reasonably good mechanical condition. Auxiliary power and control upgrade projects are being included in the annual budget and CIP programs for Hillcrest, Hrouda, and Appomattox Court Pump Stations, along with the repair/replacement of old deteriorated lines. The City does not have any undersized lines that overflow, and the City's ongoing correctional program has replaced those lines along the Appomattox River, Swift Creek, and Westover Avenue that werethe greatest known sources of infiltration. The City's long term goal is to ultimately replace and/or line (Insituform) all old or terra cotta lines within the City.

The entire City is connected to the sewer system except for houses along Pondola and Swift Creek Lanes at the western end of the City.

Storm Drainage System

The City's storm drainage system is generally in good condition and adequate for the areas served, except for portions of the central and southern sections of the City. A project to improve the drainage in the area west of the Boulevard including Battery Place and Wright Avenue to Meridian Avenue and Branders Bridge Road has been included in the Five-Year Capital Improvement Program. Also, incidental drainage structures and improvements are being completed each year as part of the ongoing curb and gutter construction/replacement program.

The drainage system for an older area generally lying between the Boulevard, Westover, Lafayette, and Lyons Avenues is undersized and significant rain events cause minor flooding. A project to upgrade this drainage system will be included in a future year Capital Improvement Program.

Water Supply

The Appomattox River Water Authority (ARWA) operates the regional water treatment plant supplying water to Petersburg, Colonial Heights, southern Chesterfield County, Dinwiddie County, and Prince George County. Distribution lines from the treatment plant, situated on the Appomattox River below Brasfield Dam at Lake Chesdin, connect each political subdivision.

The safe yield from the river is 84 million gallons per day (MGD) and the plant capacity is 46 MGD. Currently, the average use is 25 MGD and the peak demand is 40 MGD. ARWA estimates that the existing plant will be adequate through the year 2005. A privately owned hydroelectric plant generates power for purchase by Virginia Power Company

The City of Colonial Heights has three (3) elevated water storage tanks located strategically throughout the City. These tanks are adequate for the City today and for the foreseeable future since Colonial Heights is hemmed in by Chesterfield County and Petersburg. Generally, the water pressure and supply are adequate throughout the City with fire hydrants spaced approximately 600 feet apart at intersections and the midpoint of long blocks. The ISO rating is 6, with commercial properties tested at 5.

Recommended improvements include the continued replacement of galvanized waterlines and the application of a cement lining in distribution mains in the older sections of the City.

Solid Waste Disposal

Browning-Ferris Industries (BFI) is under contract to pickup and dispose of solid waste. Currently, BFI is using the Old Dominion Landfill, Charles City Road, Henrico County. The capacity of this landfill is not known, but BFI advises it will be good for at least ten (10) years. The average per person tonnage is 9,000. Residents may also transport brush, trees, grass clippings, metal, etc., excluding wet refuse, to a trash collection center located at the site of the City's former landfill.

Recycling is handled under a regional contract by Central Virginia Waste Management. Residents deposit curb side containers of glass, aluminum, plastics, several types of paper, and other metals.

Public Buildings

Public buildings operated by the City of Colonial Heights are located throughout the community and are used for a variety of purposes. These buildings represent a large capital investment and must be carefully located since on most sites, the location and use of such buildings is usually permanent. The major shortcoming of most site locations for municipal buildings is the lack of room for later expansions.

The City now operates and maintains various public buildings, including the Municipal Building and Fire Department, school structures, stadium, community building, various sewerage pump stations, library, maintenance departments, and the Courts Building (which includes the Police Department). The following is a list of the City's public buildings and their locations.

Public Buildings: -Animal Shelter Old City Landfill Area -City Garage Lakeview Park -Community Building Roanoke and Meridian Avenues -Courts & Justice Building Temple Avenue -Fire Station #1 Boulevard and James Avenue -Fire Station #2 Dunlop Boulevard -Health Department Highland Avenue -Library Yacht Basin Drive and Conduit Road -Main Pump Station Conduit Road and Temple Avenues -Municipal Building and Annex Boulevard and James Avenues -Police Temple Avenue -Street Operations Office Lakeview Park -Utility Operations Office Conduit Road and Temple Avenues -Violet Bank Museum Virginia and Arlington Avenues

Schools: -North Elementary School Orange and Ross Avenues -Lakeview Elementary School Taswell Avenue -Tussing Elementary School Brockwell Lane and Conduit Road -Colonial Heights Jr. High School Lynchburg Avenue -Colonial Heights High School Conduit and Yorkshire Roads -School Board Boulevard and Hamilton Avenue -Vocational Tech School Conduit Road

Education

Public schools are an important element of the community services and facilities provided by the local government. Maintenance and projection of school plant needs are an integral part of the growth and development of a community. However, the planning of educational needs is a complicated process; most of the difficulty lies in projecting and estimating the growth potential of a city, as well as estimating the school-aged children population.

Existing school facilities consisting of three elementary schools, one middle school, and a community high school/technical center and enrollment at each individual school are shown in the table below. No major changes in enrollment are projected for the next ten year period. School plant information is provided in the next table.

TABLE 21

Current Enrollment in Local Schools Colonial Heights, Virginia

School Enrollment

North Elementary School 309 (Grades K-5) Lakeview Elementary School 369 (Grades K-5) Tussing Elementary School 567 (Grades K-5) Colonial Heights Middle School 689 (Grades 6-8) Colonial Heights High School/ Technical Center 846 (Grades 9-12)

TABLE 22

School Plant Data Colonial Heights, Virginia

Year Auxiliary No. Acres Sq. Feet Constructed Spaces in Site Bldg. Space

North Elementary 1958; C,G,MP,L 17 51,450 addition: 1962

Lakeview Elementary 1969 C,G,MP,L 15 48,982

Tussing Elementary 1975 C,G,MP,L 19 64,638

Colonial Heights Middle School 1953; A,C,L,G 24.5 106,447 addition: 1956

Colonial Heights High School 1964 A,G,C,L 23 136,532 addition: 1970

Colonial Heights Technical Center (Part of High School) 1978 16 57,845

Another important use of school facilities is to meet citizen demand for open space elements, recreational outlets, and community cultural facilities. The following table provides information regarding existing school recreation facilities.

TABLE 23

Existing School Recreation Facilities Colonial Heights, Virginia

Base Basket- Sports Tennis Play- ball ball Fields Courts Gym ground

North Elementary X X X

Lakeview Elementary X X X X

Tussing Elementary X X X X X

Middle School X X X

High School X X X X

Library Services

With an expanded population, growth in leisure time, and higher educational goals, the public library is an important community facility.

In the process of planning for the continued growth of municipal library facilities, it is important to know some of the essential services the library provides. Additionally, the short and long-range objectives of the library are additional considerations. These may involve the decisions relating to the public being served and the level of service to be achieved throughout the community.

To determine if an expanded library program is needed, an analysis of current library operations is required. To this end, a set of recognized standards projecting the necessary needs and requirements for library service in a community the size of Colonial Heights is developed in this section as a primary step. Local library needs are then forecasted consistent with population size.

The primary objective of a community-wide evaluation of a library system is to assure access and expansion of all library materials and services for the City's residents. The present library facilities in Colonial Heights are shown on the following table.

TABLE 24

Existing Library Facilities City of Colonial Heights, VA.

Name: Colonial Heights Public Library

Location: 1000 Yacht Basin Drive

Employees: 6 full-time; 6 part-time

Building Size: 11,400 square feet

Number of Books: 46,466 (includes audio and videocassettes)

Number of Cardholders: 12,528 (increases an average of 10 per day)

Yearly Attendance: average 625 residents per day last count (counts taken quarterly)

Seating Capacity: 30 adults; 16 children. Meeting room seats 60 in theatre arrangement.

Number of Items Circulated Last Year: 220,523

Audio Visual Equipment: Television/VCR, opaque, overhead, and 16mm projectors provided to groups using the meeting room.

Computer Work Stations: 3

Hours Open: Mon., Tues., Wed. 10:00 a.m. - 8:00 p.m. Thurs., Fri., Sat. 10:00 a.m. - 6:00 p.m.

Source: Colonial Heights Public Library.

The recommended minimum standards for Virginia Public Libraries are adopted and approved by the State Library Board. These standards call for needs of a library service area to be formally surveyed at regular intervals based on standards governing staffing, salaries and benefits, buildings, outlets, collections, etc. The following table summarizes the primary standards.

TABLE 25

State Library and Archives Board Summary Standards, 1987

Standard for Existing Service Criteria(1) Colonial Heights Conditions

1. Collections 2-4 books 32,128 - 64,256 46,466 per capita

2. Buildings .6 sq. feet 9,638 11,400 per capita

Source: Virginia State Library and Archives, 1987.

The Virginia State Library Board recommends a criteria of 2-4 books per capita and .6 square feet of building per capita. Current library holdings and facilities meet these standards. The State Library Board also recommends that the library be located where patrons will have a maximum travel time of 10-15 minutes in urban areas, be located within a block or two of a main business and shopping center, be convenient to main traffic and transportation arteries, and be accessible to handicapped persons.

Medical and Health Services

The residents of Colonial Heights are served by two local hospitals; John Randolph Hospital, located at 411 West Randolph Road, Hopewell with 150 beds and Southside Regional Medical Center located at 801 South Adam Street, Petersburg with 468 beds.

John Randolph Hospital services include Women’s Center with Family - Centered Care, Senior Wellspring, Ambulatory Services, 24-Hour Emergency Care, Psychiatric Center, Recovery Center, Work Evaluation, Occupational Medicine - Health FORCE, Comprehensive Outpatient Diagnostic Services, Lifeline System, Inpatient Pediatric, Surgical, Medical, Intensive and Coronary Care Services, Physical, Speech and Occupational Therapy.

Southside Regional Medical Center services include Cancer Treatment Center, Cardiovascular Services, Emergency Services, Eye Care, Health Care Plus, Home Health, Occupational Therapy, Physical Therapy, Radiology, School of Nursing, School of Radiology, Speech Therapy, Support Groups, TDD, and Women’s Services.

In addition, other providers of health services located in Colonial Heights include Colonial Heights Convalescent Center located at 831 East Ellerslie Avenue, Colonial Heights, with 196 beds, and the Colonial Heights Health Department.

The Colonial Heights Health Department provides the following basic public health services to the citizens of Colonial Heights: communicable disease services, child health services, maternal health services, and family planning services. Specific medical care services consist of the following:

Communicable Disease Services:

o Childhood Immunizations.

o Sexually transmitted disease screening, diagnosis, treatment and surveillance.

o Surveillance of reportable communicable diseases, food borne disease outbreaks, and other unusual disease outbreaks.

o Tuberculosis control screening, diagnosis, treatment, and surveillance.

Child Health Services:

o Children specialty services; diagnosis, treatment, follow-up, and parent teaching.

o Screening for genetic traits and inborn errors of metabolism, and provision of dietary supplements.

o Well child care up to age 5.

o WIC.

o EPSDT (Medicaid).

o Babycare services.

o Blood lead level testing.

Maternal Health Services:

o Prenatal and postpartum care for low risk and intermediate risk women.

o Babycare Services.

o WIC.

o Diagnosis, treatment, and referral for gynecological problems.

Family Planning Services:

o Clinic services including drugs and contraceptive supplies.

o Pregnancy testing and counseling.

General Medical Services:

o Hypertension screening, referral, and counseling.

Specialty Clinic Services:

o Flu clinic.

o Hepatitis B.

o Placement physicals.

The Health Department also performs environmental health services related to the following: on-site sewage disposal, sanitary surveys, water supply sanitation, rabies control, restaurants, day care centers, and homes for adults. In addition, the Health Department performs the following services under local ordinance: general environmental, rodent control, solid waste, weeds, and school bus driver physicals.

Safety Services

Fire Protection & Rescue Services

The Colonial Heights Fire & Emergency Medical Services (EMS) offers the following services to the community: prevention and safety classes in the elementary schools; home fire inspections on request; pre-occupancy inspections for commercial, public, and industrial buildings; community CPR classes five times a year; emergency medical technician (EMT) classes at least once a year; assistance to residents with home smoke detector installation and maintenance; and enhanced 911 public access. The City presently has a variety of fire and safety equipment and vehicles including:

(2) Pierce Telesqurts, 1500 GPM, with elevated master stream capabilities (1) Maxim Pumper, 1500 GPM, used as a reserve truck (1) Hahn Heavy Duty Squad/Crash Truck with Hurst Tool (Jaws of Life) (1) Hazardous Materials Vehicle, Containment Capabilities Only (1) Brush Truck (1) Utility Van (1) Advanced Life Support (ALS) Quick Response Vehicle (4) Advanced Life Support (ALS) Ambulances (1) Wave Runner for Water Rescue (Seasonal)

The locations of fire stations in the community is an important factor in fire protection. Currently, the City has two stations. Fire Station #1 is located behind City Hall at 1507 Boulevard, and Fire Station #2 is located on Dunlop Boulevard behind Southside Regional Health Care Plus and across from Dunlop Shopping Village. Water supply for fire fighting is another important factor in fire protection. The water supply is adequate in most sections of the City. There are a few places, however, where water supply is marginal. The City of Colonial Heights has an ISO rating of 6 on a scale of 1 to 10, with 1 being the best and 10 being the worst. IN 1996, the ISO rating for commercial properties was lowered to 5.

The Colonial Heights Fire & EMS operates a "single-tiered" ALS system city wide. The department has four ALS ambulances in service and one ALS quick response vehicle. There is at least one ALS (paramedic) provider on duty 24 hours a day. The ALS providers operate under very aggressive and sophisticated protocols and are evaluated by the departments operational medical director.

Police Protection

The Colonial Heights Police Department staff consists of 56 full-time employees and 1 part- time employee: 1 Chief, 1 Deputy Chief, 3 Captains, 2 Lieutenants, 5 Sergeants, 3 Corporals, 3 Investigators, 22 Police Officers, 2 Animal Control Officers, 10 Dispatchers, 2 Record Clerks, 1 Administrative Secretary, 1 Secretary, and 1 receptionist (part-time).

The nationally recognized standard for metropolitan police employees is set at 1 policeman per 500 residents. The current ratio of police per capita in Colonial Heights is 1 per 400. However, taking into account the number of persons who are in Colonial Heights on a daily basis due to the Southpark Shopping Mall, the ratio falls to 1:1097.

Parks, Recreation, and Open Spaces

The City, through the Department of Recreation and Parks, provides recreational, cultural, and historical facilities, activities, programs, and trips for citizens of all ages. The following is a detailed outline of the recreational opportunities in Colonial Heights.

(1) WHITE BANK PARK (22 Acres overlooking Swift Creek) Location: Across from Tussing School in White Bank Park Road.

2 Picnic Pavilions (Accommodates 200-300 people each)

2 Horseshoe Pits 2 Volleyball Courts Boat Ramp/Canoe Launch Multi-Purpose Play Areas 2 Playground Areas Scenic Overlook Restrooms 8 Individual Picnic Fishing Pier Shelters

(2) BERBERICH PARK/FORT CLIFTON (24 Acres overlooking the Appomattox River) Location: Behind Tussing School on Brockwell Lane.

1 Picnic Pavilion (accommodates 60 people)

Fishing Pier Water/Electricity Amphitheatre 3 Individual Picnic Band Shell Shelters Restroom Scenic Overlook Playground/Ballfield Hiking Trails

(3) Lakeview Park (2.7 Acres on Swift Creek Lake) Location: Swift Creek Lake on Lake Avenue Off the Boulevard.

1 Picnic Pavilion (accommodates 60 people) Boat Ramp/Canoe Launch Playground Equipment Fishing Dock Water/Electricity Tennis Courts Individual Picnic Tables (seat 6-8 people)

(4) Floral Avenue Park (.3 Acres) Location: At the coroner of E. Westover and Floral Avenue.

Tot Lot Playground Equipment Basketball Goal

(5) Wakefield Park (.4 Acres) Location: Wakefield Avenue between E Street and F Street.

Tot Lot Playground Equipment

(6) Edinborough Park (2.5 Acres) Location: Edinborough Subdivision off Conduit Road.

Tot Lot Basketball Goal Playground Picnic Shelter

(7) War Memorial (.50 Acres) Location: On the Boulevard between Lee Avenue and Lafayette Avenue.

A Memorial Tribute to the Military Personnel who passed away serving their Country courageously and with Honor. Services are held each Memorial Day and Veterans Day by the Veterans of Foreign War and American Legion.

(8) Senior Citizen Center/Community Building (1.4 Acres) Location: 157 Roanoke Avenue.

Community Building is opened to the public for reservations for club meetings, senior citizen activities, wedding receptions, birthday parties, anniversaries, and candidate forum nights. For a fee of $35.00, residents of the City of Colonial Heights can rent the building.

Senior Citizen Center is opened Monday through Friday 8:30 a.m. to 4:30 p.m. The Center is opened to adults 55 years of age and older who are City residents. Activities provided include a nutrition program (for residents 60 years of age and older who meet qualifications), bowling, arts & crafts, trips, exercise classes, yoga, bridge, card playing, golf, and transportation.

(9) Violet Bank Museum (1.1 Acres) Location: Virginia Avenue -one block off Boulevard at South end of Colonial Heights.

General Robert E. Lee's Headquarters June 8, 1864 to November 1, 1864. Museum is opened to the public all year round with numerous historic artifacts. Also, the "Cucumber Tree" (magnolia acuminata), one of the largest in the world, is located outside of the Violet Bank Museum.

(10) Skating Rink (.3 Acres) Location: Behind Vocational School on Conduit Road.

Facility for ice skating and skateboards.

(11) Shepherd Stadium (.5 Acres) Location: On the corner of Roanoke Avenue and Meridian Avenue.

1,300 seat baseball stadium which is home to the Colonial Heights High School baseball team, American Legion Post 294 "Bucs", and the Optimist Club Boy's Invitational Baseball Tournament.

(12) Baseball Fields/Softball Fields Located at the sites listed below.

Civic Football Field: Meridian Avenue "A" Field: Behind Optimist Building on Meridian Avenue. "B" Field: On Meridian Avenue between Wright and Roanoke Avenues. Lakeview #1 & #2 Softball Fields: Located at Lakeview Avenue School on Taswell Avenue. High School Baseball Field: Located behind Colonial Heights High School on Conduit Road. Instructional Baseball Field: Located behind Colonial Heights High School on Conduit Road.

(13) Tennis Courts 2 Courts located at Lakeview Park on Lake Avenue. 3 Courts located at Middle School on Conduit Road. 4 Courts located at High School on Conduit Road.

(14) Basketball Courts 1 Full Court located at Middle School on Conduit Road. 2 Full Courts located at Lakeview Elementary on Taswell Avenue. 2 Full Courts located at High School on Conduit Road. 1 Basketball Goal at Shepherd Stadium. 1 Basketball Goal at Floral Avenue Playground.

(15) Soccer Fields Located behind the Vocational School on Conduit Road.

D. SUMMARY OF PLANNING FACTORS

The future land use pattern in the City of Colonial Heights will be influenced by several physical and economic factors. The following is a summary of each planning factor and a brief review of the related background data by which the Plan goals and objectives for the City have been established.

1. Regional Setting

As part of the Richmond Tri-Cities Metropolitan Statistical Area, the City of Colonial Heights is favorably situated to access a dynamic business complex. Richmond is a center for manufacturing, distribution, and trade, and is the financial center of the Mid-Atlantic region. Numerous corporate headquarters and federal and state government offices are also located in Richmond. In the immediate Tri-Cities area, government is a major employer through such facilities as Central State Hospital, the Southside Virginia Training Center, Richmond Bland College, the United States Army Quartermaster Center, and Fort Lee. Also, the City of Colonial Heights is the site of Southpark, a regional shopping mall that has significantly increased the City's taxable retail sales.

2. Population

During the decade of 1980 to 1990, the population of Colonial Heights decreased approximately three (3) percent from the previous decade, despite a twelve (12) percent growth in housing from 1970 to 1990. The population decline may be attributed, in part, to the decline in average family size which is a nationwide trend. This stabilization of the City's population is expected to continue because of the limited availability of developable land for residential use. Another noteworthy trend is the aging of the population. In 1990, persons over 65 years of age comprised 13.7% of the population in Colonial Heights. This trend is expected to continue given the downward trend in fertility rates.

3. Economy

The examination of employment growth as an indicator of economic strength and growth potential in Colonial Heights showed lower unemployment levels in the City relative to State-wide unemployment levels. Several employment categories also showed increases in the total number of persons employed, and the categories where decreases occurred were among the largest categories where slight decreases could be more readily afforded. The slightly higher median income of the City compared to the State's is also another positive indicator of the City's economic condition as well as the tremendous growth in the City's taxable sales resulting from the opening of Southpark Mall. To maintain and further strengthen its economic position, and provide the necessary services, employment opportunities, and public revenues for its residents, the City must continue to promote a range of commercial, business, and industrial activities.

4. Housing

The majority (77.2%) of housing units in Colonial Heights are owner-occupied, and consequently, housing in the City consists of predominantly one unit detached/attached structures. However, to meet the demands indicated by demographic trends, additional multi-family housing should be encouraged to offer a wide variety of dwelling types and housing opportunities for all segments of the population in a manner that will not overburden current community services & facilities. Because the quality of housing is an important element of the community, the preservation of residential neighborhoods, the promotion of ownership opportunities, and ensuring decent and affordable housing are important issues for the City.

5. Environmental Inventory

In order for human habitation to be sustained in the greater natural environment without destroying the beauty of the natural environment and upsetting the balance of natural systems, various state and federal programs have been enacted to protect environmental resources. The Chesapeake Bay Protection Act of 1989 addresses the chief sources of pollution to the Chesapeake Bay and the protection of state water quality through mandating all Virginia Tidewater localities to establish programs, plans, and ordinances to protect and improve Bay water quality. Colonial Heights is one of the jurisdictions affected by the Bay Act. Sensitive environmental features in the City have been identified and strategies for their protection recommended.

6. Land Use

The majority of land in Colonial Heights is zoned for residential use which currently accounts for the largest amount of developed land in the City. Nearly all residential development is in the form of single family detached housing which represents a large part of the City's taxable real estate. As in most localities throughout the Country, the continuation of residential land use consumption is the current trend of development in Colonial Heights. As less developable land becomes available, pressure to increase residential density may occur. The greatest percentage increase in developed land has occurred in commercial development which increased from 121 acres, or 5.2% of developed land in 1974 to 387.8 acres, or 11.5% of developed land in 1997. Vacant lots, agriculture, and forest account for 29.0% of City area. When environmental constraints to development are taken into consideration, however, the amount of land that is actually available for development is less.

7. Transportation

Since the City's current transportation system exists within the larger framework of the Tri- Cities area, with the residents of Colonial Heights heavily dependent on the employment industries throughout the metropolitan region and thus reliant upon a safe and adequate road system to carry them to their destinations, the City actively works with the Tri-Cities area MPO to address local transportation needs. The Tri-Cities Area Year 2010 Transportation Plan was developed based on socio-economic characteristics, travel patterns, and projected growth in the Tri-Cities area. While

there are no serious existing traffic problems in Colonial Heights, increases in traffic generation were identified and if highway improvements are not undertaken, problems will develop in the future.

8. Community Services and Facilities

The City of Colonial Heights provides government service functions for education, recreation, water, sewers, public buildings, solid waste disposal, safety protection, libraries, and other critical public services. Since demand for community facilities and services is directly related to population growth, the slow rate of population growth projected until the year 2020 in Colonial Heights should not overburden the local government provision of services and facilities.

V. GOALS AND OBJECTIVES

The long-range goals and related short-range objectives presented below serve as a primary focal point for this planning document. The goals and objectives build upon opportunities and problems identified through analysis of the background materials and provide guidance for the adoption of specific policies to implement plan recommendations. Further, these goals and objectives represent the aspirations of City leaders as to the future direction of the City of Colonial Heights and are intended to serve as a guide for decision-making that will affect the welfare of the citizens and their relationship to their surroundings.

The following narrative outlines goals and objectives for each functional area of this Plan. A more detailed, measurable program of goals, objectives, and strategies are provided for the Plan's Environmental Element, which is found at the end of this section. In general, a goal is defined as a broad statement of decisions and ultimate ideals indicating general social, economical, or physical needs which the city intends to accomplish. An objective is a statement of a limited and precise aim or purpose to guide the City development programs, as well as to provide a basis for continual progress evaluation. The goals and objectives for the City of Colonial Heights are as follows:

A. GENERAL COMMUNITY

Goal: Maintain and improve the quality of life in the City of Colonial Heights through efficiently operating municipal services, community involvement, and long-range comprehensive planning and programming efforts.

Objective 1: Encourage and promote citizen and community involvement in the comprehensive planning development process through the use of public hearings and work sessions to improve the quality of life in Colonial Heights.

Objective 2: Preserve the unique and traditional local qualities of Colonial Heights and continue to enhance the image of the City through planned and improved community services.

Objective 3: Encourage urban development that will enhance and preserve the aesthetic qualities of the community by improving the appearance of business areas, highways, residential neighborhoods, and community facilities.

100

B. POPULATION AND GROWTH

Goal: Encourage and promote a planned population growth increase for the City of Colonial Heights.

Objective 1: Encourage increased population growth only at a rate in which the City can continue to maintain quality of community facilities and services.

Objective 2: Guide and direct future growth and development into desirable forms and patterns, rather than inefficient sprawl throughout the City.

C. ECONOMIC DEVELOPMENT

Goal: Enhance the economic base of the City by encouraging a range of commercial, business, and industrial activities to provide the residents of Colonial Heights and surrounding areas necessary services, employment opportunities, and public revenues.

Commercial and Business

Objective 1: Support and encourage the development of planned business and commercial growth in the Southpark area.

Objective 2: Discourage the development of "strip" linear businesses and commercial growth along major thoroughfares.

Objective 3: Encourage the development of a planned business/civic center at the heart of the City involving shopping, entertainment, and cultural activities.

Objective 4: Strengthen the appearance of the entire community through the use of general urban design guidelines for shopping centers, business establishments, and office parks.

101

Industrial

Objective 1: Continue to provide adequate and suitable land for new and expanding industries where water and sanitary sewer are available and where the effects of the development will not burden surrounding areas.

Objective 2: Promote the development of "light" industrial uses, such as warehousing and distribution, especially in low traffic areas.

Objective 3: Encourage additional industries to locate in industrial zoned districts.

Objective 4: Provide adequate highway access, railroads, utilities, and other municipal services to new industrial sites.

D. HOUSING

Goal: Provide for a housing supply of sufficient size, diversity, and quality to assure every resident of Colonial Heights has an affordable, safe, sound, and sanitary place in which to live.

Objective 1: Establish residential development density pattern that will produce desirable concentrations and not overburden existing community facilities, utilities, and safety requirements.

Objective 2: Promote wide variety of dwelling types and housing opportunities for all of the population.

Objective 3: Ensure proper design standards and safety regulations for the protection of the entire residential community.

Objective 4: Promote the use of new residential growth that will conserve the open spaces and provide aesthetically pleasing housing units.

Objective 5: Promote future residential development only in areas of the City where water and sanitary sewer are provided.

Objective 6: Encourage use of Planned Unit Development (PUD) zoning and control the location of multi-unit housing (such as townhouses, garden apartments, and condominiums).

Objective 7: Promote the rehabilitation of older single family housing units in need of repair.

102

Objective 8: Increase homeownership opportunities available to low- and moderate-income Colonial Heights residents.

Objective 9: Promote neighborhood revitalization efforts to stabilize older residential areas prior to their serious decline.

E. LAND USE

Goal: Achieve a balanced and harmonious pattern of land uses that meets the needs of Colonial Heights residents; stimulates planned physical, social, and economic development; and protects the ecological integrity of the land.

Objective 1: Identify and plan for adequate and suitable residential, commercial, and industrial development patterns and densities to ensure the safe orderly, and efficient growth of Colonial Heights.

Objective 2: Update and monitor the local zoning ordinance, zoning map, subdivision regulations, and Comprehensive Plan for effective planned land development.

Objective 3: Plan and provide for the social, cultural, recreational, and educational facilities for the entire community.

Objective 4: Prevent the intrusion of inappropriate land uses in stable land use areas.

Objective 5: Maintain the integrity of existing residential areas and plan appropriate locations for all types of residences (single-family, multi-family).

Objective 6: Concentrate development in appropriate locations by encouraging more efficient site design, sharing of access, parking, and utility services.

Objective 7: Plan for the location of shopping and employment centers, offices, required service facilities, and industries in a manner compatible with other land uses in the City.

Objective 8: Plan, provide, and maintain a transportation network for the safety and travel needs of the community.

103

F. TRANSPORTATION

Goal: Promote a coordinated transportation system which will adequately accommodate the total travel needs of the community and ensure the efficient movement of goods and services.

Objective 1: Continue to review the traffic and road needs of Colonial Heights and keep the Virginia Department of Transportation informed of these required changes and needs.

Objective 2: Acquire adequate rights-of-way for future roadways.

Objective 3: Provide for an adequate street network that will facilitate the flow of traffic to and from the residential, commercial, and industrial areas while minimizing non-local traffic flow through residential areas.

Objective 4: Provide for adequate highway service to maintain and improve communications with areas outside of town and to accommodate through traffic with minimum impact on the City's street network.

Objective 5: Upgrade existing roads to accommodate increased traffic volumes.

Objective 6: Promote the utilization of a wider range of transportation modes throughout the City.

G. COMMUNITY SERVICES AND FACILITIES

Goal: Continue to provide municipal facilities and services necessary to promote a safe, healthy, and desirable community in which to live.

Objective 1: Encourage the growth and expansion of municipal services and facilities to meet the existing and the projected population needs.

Objective 2: Develop a system of community and municipal coordination, such as the sharing of school and park/recreation/cultural facilities.

Objective 3: Provide and maintain a safe, reliable water supply, treatment, and distribution system for town residents.

Objective 4: Provide and maintain a safe, reliable, and environmentally sound sewage disposal system for City residents .

104

Objective 5: Provide appropriate economical, reliable, and environmentally sound solid waste collection services for City residents.

Objective 6: Provide appropriate levels of school, library, health, police, fire, rescue, and government services to serve the needs of City residents.

H. PARKS AND RECREATION

Goal: Plan for attractively designed and easily accessible parks, recreation areas, and facilities to provide a stimulating and enriching experience consistent with citizen needs and desires.

Objective 1: Plan for the development of local parks and recreational facilities consistent with citizens' needs and desires.

Objective 2: Provide for a series of parks and recreational standards for the development and projection of recreational needs.

Objective 3: Promote the development of attractively designed, functional, and easily accessible parks, recreational, and cultural facilities.

Objective 4: Plan for the establishment of a bicycle trail system for non- motorized vehicles in connection with planned recreation areas.

Objective 5: Provide park, recreational, and cultural facilities to meet the needs of senior citizens.

Objective 6: Foster an understanding of the need to protect and conserve our natural and scenic resources as well as encourage their proper management, development, and reuse for the enjoyment and use of existing and future generations.

Objective 7: Encourage the protection and preservation of the City's unique historical landmarks, including the continuation of an inventory of present and potential historical locations and unique archaeological sites.

105

I. IMPLEMENTATION

Goal: Carry out the goals and objectives of the City and maintain a process for incorporating needed changes through civic and citizen interest.

Objective 1: Adopt and use a capital improvement program as a major tool for the accomplishment of the Comprehensive Plan.

Objective 2: Implement the land use plan through zoning policies, subdivision regulations, Chesapeake Bay ordinance, and urban renewal activities which are consistent with this plan.

Objective 3: Rigidly enforce zoning, subdivision, Chesapeake Bay, and other development and construction codes throughout the City.

Objective 4: Continue to review the goals and objectives of the Plan and encourage a civic and citizen reviewing process as a means of determining local needs.

106

J. ENVIRONMENTAL ELEMENT

GOALS, OBJECTIVES & STRATEGIES

The following section establishes local goals, objectives and strategies in compliance with Section 5.6.A. of the Chesapeake Bay Preservation Act (CBPA) Regulations. For purposes of this Plan, goals are defined as an overall policy or desired direction which the City should pursue over a long-term timeframe. Objectives are the more immediate benchmarks of progress that will lead to achievement of a long-term goal. Finally, a strategies re the specific programmatic means or actions that should be considered if Colonial Heights is to realistically accomplish its environmental aims and purposes.

All of the objectives and strategies below have been coded to one of four generalized timeframes: Short-term [S-T] priority (0-5 years); Mid-term [M-T] priority (5-10 years); Long- term [L-T] priority (10-20 years) and; Ongoing [O-G]) priority (0-20 years, requiring continuous expenditures or efforts over time).

A majority of the strategies listed below reflect existing, on-going efforts now being undertaken by the City. This reflects the fact that Colonial Heights presently enacts and enforces a well- developed set of environmental programs and regulations, many of which directly pertain to water quality protection. Fulfillment of other proposed strategies will depend largely on the priorities of neighboring jurisdictions, state resource agencies, as well as local funding and staff resources.

OVERALL GOAL: Enhance and protect the natural setting of Colonial Heights; promote greater local awareness and appreciation of the City's diverse landforms, waterways and physical resources; and preserve the environmentally sensitive areas in and around the City.

GOAL (PHYSICAL CONSTRAINTS TO DEVELOPMENT):

Promote land use patterns which protect and enhance local water quality and which reflect the physical limitations to development.

Objectives:

1) Direct future growth and development away from all identified wetlands, floodplains, drainageway and creek embankments, steep topography, highly erodible soils, Chesapeake Bay Resource Protection Areas (RPAs) and other environmentally sensitive areas of the City [O-G].

2) Amend, as appropriate, the Zoning Ordinance and Zoning District Map to support the recommended development patterns and physical constraints identified in the Comprehensive Plan [S-T].

107

3) Encourage efficient patterns of development and redevelopment that minimize consumption of land and help preserve the City's remaining open space and natural areas [O-G].

Strategies:

1) Establish a Resource Conservation District in the City Zoning Ordinance, consistent with CBPA and Floodplain district definitions. Limit future development within the Resource Conservation Area to passive park and recreation uses, resource-related research and activities, and other water dependent uses [S-T].

2) Apply fairly and consistently the adopted Colonial Heights Chesapeake Bay Preservation Area Ordinance to all new development and redevelopment occuring in the City [O-G].

3) Require all new commercial development and redevelopment to set aside a minimum 10- wide "greenspace" along the principal street or roadway frontage [O-G].

4) Incorporate a "greenways element" in the next update of the City's Recreation and Open Space Master Plan (1974) [M-T].

5) Promote clustering and planned unit development (PUD) in areas which can accomodate higher density development, while retaining on-site open space and natural features. Encourage local developers to more fully utilize PUD and clustering concepts, both in currently zoned PUD districts and other sites amenable to such forms of development [O-G].

6) Carefully review and scrutinize all development plans in the Southpark Mall area and northernmost part of the City, where prime development parcels are proximate to sensitive natural areas [O-G].

7) In accordance with CBPA and E&S provisions, conserve, protect or provide tree cover on developed or developing sites. Promote, where practicable, the use of pervious materials in land development [O-G].

8) Encourage the donation of permanent open spaces, wooded areas and parks and environmentally sensitive areas to the City or non-profit organizations for tax credits or other development benefits [O-G].

9) Encourage stronger cooperation between the City, Chesterfield County and other nearby jurisdictions in sharing environmental information and staff expertise, and in coordinating environmental review of projects and proposals that impact multiple jurisdictions [0-G].

10) At zoning/site plan review hearings and other public forums, educate the citizenry and local officials on the interrelationship of land use, water quality and sustainable economic development [O-G].

108

GOAL (PROTECTION OF POTABLE WATER SUPPLY):

Conserve and protect the surface and ground water resources found in Colonial Heights and the surrounding region.

Objectives:

1) Ensure potable water supplies are reasonably protected from both natural and man-made contaminants [O-G].

2) Promote conservation of regional water resources and make efforts to reduce or minimize local water demand [O-G].

3) Encourage public awareness of the impacts on water resources from unnecessary, wasteful, or outmoded practices [S-T].

4) In cooperation with agencies having regulatory oversight over point and non-point source pollution, manage such sources to minimize and reduce, where possible, existing sources of pollution [O-G].

Strategies:

1) As a follow-up to recent completion of the City's Inflow & Infiltration (I&I) Correctional Program, repair and replace any remaining or newly identifed sewer lines experiencing inflow/infiltration problems [S-T].

2) Maintain and upgrade, as needed, all elevated water storage tanks found within the City [O-G].

3) In cooperation with the Department of Health and the Appomattox River Water Authority (ARWA), work to ensure that the City's regional water system at Lake Chesdin fully complies with the appropriate drinking water standards [O-G].

4) Replace galvanized waterlines and install insituform linings in distribution mains serving older sections of the City [M-T].

5) Apply the City's Bay Act performance criteria and best management practices to all development and redevelopment proposals within Resource Protection Areas (RPAs) and Resource Management Areas (RMAs) [O-G].

109

6) Through local zoning enforcement and site plan reviews, manage land use and monitor development practices in or proximate to surface water features, such as creeks, lakes, drainageways and wetlands [O-G].

7) Utilize the services of consulting engineers and independent technicians to assure developer compliance with CBPA-related site plan and stormwater management requirements [0-G].

8) Monitor the Department of Environmental Quality Water Division's Notice(s) of Violations, when such activities may involve sites in or near the City [O-G].

9) Regularly inspect and replace, as deemed necessary, the aging underground storage tanks (USTs) located at North Elementary School and Colonial Heights Junior High School. that privately owned USTs are maintained and replaced in accordance with state and federal requirements [O-G].

10) Consider developing a local inventory of potential groundwater contamination sites including leaking underground storage tanks (LUSTs), industrial sites utilizing hazardous materials or products, and improperly abandoned wells. As a follow-up, consider instituting a local program to monitor such potential pollution sources, and with DEQ's technical assistance, establish a set of workable remediation strategies [S-T].

11) Forward all applicable site plans and land use applications which may impact surface or ground water resources to the appropriate County, State and Federal regulatory agencies for review and comment [O-G].

12) In cooperation with the Department of Environmental Quality (DEQ) and the Crater Planning District Commission (PDC), participate in the ongoing study, planning and management of regional groundwater resources [O-G].

13) Working with Chesterfield County and the PDC, develop a public education program which promotes water conservation practices, through use of native, low-maintenance landscaping, low-flow toilet and showerhead fixtures, and other methods to reduce domestic water consumption [M-T].

110

GOAL (SHORELINE/STREAMBANK EROSION CONTROL/STORMWATER MANAGEMENT:

Identify and monitor any erosion-prone areas throughout the City and develop feasible methods and programs to mitigate erosion problems.

Establish a comprehensive approach to controlling non-point source (NPS) pollution from existing and future land uses, including the stormwater runoff generated by thse developments.

Objectives:

1) Prohibit urban development in areas with critically eroding streambanks. In more stable streambank areas, mitigate potential erosion problems through best management practices, including the effective use of silt fences, landscape fabrics, hydroseeding and other soil stabilization measures [O-G].

2) Ensure adequate enforcement of the City's Erosion and Sediment (E&S) Control Ordinance and monitor enforcement procedures as new technology and practices become available [O-G].

3) Consider adoption of a model stormwater ordinance [S-T} and implementation of a local stormwater utilities program [M-T].

Strategies:

1) Establish a Resource Conservation District in the City Zoning Ordinance along all river, creek, and lake shorelines as a consistency measure with CBPA and Floodplain district definitions. Limit future development and redevelopment within the Resource Conservation Area to passive park and recreation uses, resource-related research and activities, and other water dependent uses [S-T].

2) Review local zoning provisions pertaining to non-conforming, discontinued, and "grandfathered" uses. Amend and strengthen restrictions, as deemed necessary, on expansion and rebuilding of such uses in the RPA and proposed Conservation zone [S-T].

3) Discourage any extensive water-related development along the City's Appomattox River shoreline, and direct such development to more suitable locations in adjoining jurisdictions O-G].

4) To the greatest degree possible, retain the City's naturally vegetated river, creek and lake embankments. Discourage any shoreline hardening or structural solutions to correct erosion problems, unless such methods can be clearly justified from an environmental and engineering perspective [O-G].

111

5) In coordination with Chesterfield County, continue to monitor and mitigate, as feasible, upstream siltation problems associated with Swift Creek and Swift Creek Lake [O-G].

6) Closely review E&S Plans for all major construction projects occuring within the City, and monitor compliance with those plans throughout the duration of construction activity [O-G].

7) In any erosion-prone area undergoing development, promote the use of deep-rooted plant species that can become quickly established and help anchor the soil. In such applications, use plant varieties (grasses, groundcovers and shrubs) recommended in the Vegetative Practices Guide, produced by the Hampton Roads PDC.

8) Consider adoption of the Division of Soil and Water Conservation (DCR) model Stormwater Management Ordinance to assist the City in developing a comprehensive approach to stormwater management issues [S-T].

9) Consider by referendum the implementation of Stormwater Utilities Program to assist the City in the planning, development, construction, operation and funding of a municipal stormwater management system [S-T].

10) Require all redevelopment projects with over 150' street frontage to retain all stormwater on-site. In addition, require such projects to submit detailed site plans that clearly describe existing stormwater management facilities and proposed methods to retrofit newly installed infrastructure [0-G}.

112

GOAL (WATER QUALITY & REDEVELOPMENT ISSUES):

Ensure that water quality concerns will be considered and addressed as public and private redevelopment efforts occur within the Town.

Objectives:

1) Encourage the reduction of impervious surfaces, reintroduction of landscaping and water quality BMPs, and set aside of open space upon site redevelopment [O-G].

2) Provide incentives to reduce lot coverage, particularly in commercial districts, by amending provisions in the City zoning ordinance [S-T].

3) Identify and legally dispose of all hazardous waste materials found at redevelopment sites prior to demolition/site clearance [O-G].

Strategies:

1) Re-evaluate density, height/setback, and parking standards in commercial zoning districts of the City. Eliminate or amend provisions which work at cross-purposes with water quality. Where appropriate, add incentives to reduce lot coverage, further encourage landscaped setbacks, and limit surface parking to actual day-to-day needs [S-T].

2) Require all redevelopment projects with over 150' street frontage to retain all stormwater on-site. In addition, require such projects to submit detailed site plans that clearly describe existing stormwater management facilities and proposed methods to retrofit newly installed infrastructure [0-G}.

3) Monitor all demolition activity occuring within the City and notify appropriate officials as to any hazardous waste observed at unpermitted sites (e.g underground storage tanks, aboveground oil tanks and barrels, asbestos materials, lead paint, other potential hazards) [O-G].

4) Ensure that all publicly-financed redevelopment projects fully comply with existing state and federal laws governing asbestos inspections and removal, solid waste disposal, landfill regulations, and hazardous waste disposal [O-G].

5) Encourage, where practical and feasible, the retrofitting of water quality BMPs, into sites where major building alterations, additions or substantial reconstruction is planned [O- G].

113

6) Through use of local or available grant funds, institute a incentive program aimed at reintroducing on-site landscaping, water quality BMPs, and open space, particularly in commercial and semi-public areas undergoing revitalization or redevelopment [M-T].

7) Require landscaped islands and tree plantings in all surface parking lots, by amending City zoning ordinance [S-T].

8) Where practical and cost effective, expand public (municipal/county) ownership of open spaces, greenways, and parkland within the City [O-G].

114

VI. COMPREHENSIVE PLAN

A. LAND USE

Introduction

The development of the land use plan and map has resulted from the study and analyses of past trends, existing conditions, projections of future growth, and the development of a consensus of local policies. From these items, recommended courses of action were developed which were reviewed by the planning commissioners, policy-making bodies, public administration, and private citizens before they were presented to the local government for adoption in the form of this plan. The items indicated within this text and map are the accumulation of recommendations by the aforementioned bodies; the items may change over the next years, or may be altered due to an unforeseen development or change in the political thinking of the City policy-makers. Nevertheless, this plan is a recommended guide for future growth and administrative decisions pertaining to the use of the land. The sites chosen for specific municipal facilities are a reflection of needs, and an indication of approximate recommended locations; the suggested location and/or scale of the facilities are, of course, subject to change as needed.

One of the most significant land use problems facing the City of Colonial Heights is the decreasing supply of available developable land. Many of the undevelopable areas are governed by the local Chesapeake Bay Ordinance and development within the Resource Management Areas must comply with established preservation guidelines. Thus, because of a dwindling supply of developable land, higher density development will be demanded. Careful planning of limited land resources must be employed to ensure an adequate supply of open space and quality residential, commercial, and industrial development.

In summary, the plan calls for a modification of existing development trends, insofar as residential, commercial, public, and industrial classifications may be altered. The basic concentrations of land uses today are characteristically shaped by the influence of the zoning map, as well as previously established patterns of development. The general land use proposed in this plan reflects the need for an increased supply of open space and recreation facilities, the introduction of new commercial land use classifications, and the distinction between low and medium density residential land use classifications. New single-family growth is planned to continue in prospective neighborhoods along Conduit Road where the last remaining undeveloped residential property exists, as well as infill areas of established residential neighborhood areas.

Highway improvements are limited to the "fine-tuning" of the existing highway system to improve access and speed mobility. Major improvements include: 1) the widening of Ellerslie Avenue form the Seaboard Coast Railroad to Conduit road. 2) a new extension of U.S. Route 301 over the Appomattox River in the southern portion of the City, 3) improvements to the Boulevard/Dupry Avenue intersection, and 4) widening of the Boulevard to allow a turning lane throughout. A series of public facilities improvements, outlined in the end of this chapter, complete the plan's recommendations.

115

Residential Planning

The proposed plan for residential land use is based upon the findings of previous studies dealing with the future economy, population, and general growth potential of Colonial Heights. Research has found that regardless of the anticipated demand for residential dwelling units, certain areas would be unacceptable for development. These areas include land near heavy or undesirable industry, flood plains, marsh lands, areas of potential community facility use, and highly developed commercial areas.

However, according to the present land use review, residential uses permeate practically all developed areas of the City, while other land uses are more confined to specific areas due to zoning designations. The Comprehensive Plan's goals and objectives indicate the need for promoting efficient and functional residential developments by establishing a density pattern that will not overburden the present community services and facilities, yet will offer a wide variety of dwelling types and opportunities for all of the population. This becomes especially important as the stock of developable land dwindles and the City reaches its capacity for growth.

The most recent residential growth has occurred in the northern Conduit Road area and in the Dunlop Farms area. These areas are Planned Unit Developments or PUDs. A PUD is a planned community which includes a variety of residential categories plus supporting business and commercial land use categories. Future residential land use will mainly take place in already established developments. Not only will there be less land available for new homes in the future, but existing homes may face demolition pressures from expanding businesses.

The Land Use Plan illustrates the opportunity for three (3) types of residential land use: 1) low density, 2) medium density, and 3) multi-family high density. New developing areas of single- family, low density development will occur in the northeastern quadrant of the community, notably along Conduit Road and above the high school. The remaining low density residential growth will most likely be infill on vacant lots or small tracts of land in older neighborhoods. Residential property is the City's largest land development resource, and if neighborhoods are to prosper as livable areas of the City, preservation and protection of the neighborhood must continue as a policy of the City. Unwanted and undesirable development converging upon sound residential neighborhoods should be discouraged by use of proper zoning controls.

It has been indicated that Colonial Heights is largely a single-family, low density "bedroom community". In the past, multi-family dwelling units have been regarded as a necessary evil that should be planned for, but only permitted on a limited basis. However, it is more widely accepted that multi-family housing units provide an alternate living arrangement to low density single-family housing units. Because demographic trends are changing, so must the housing needs of the population. Both nationally and locally, the population is showing an increase in the percentage of people over 65, a decrease in family size, and an increase in single person households. All of these changes necessitate a change in residential living. The land use plan provides for an increase in multi-family, high density residential areas, especially along Dunlop Farms Boulevard.

116

Multi-family dwellings are usually available as rental properties. Since the City of Colonial Heights has a low inventory of apartments to meet the demand for rental properties, multi-family dwellings may prosper. For example, property owners may divide single-family homes into separate living areas in order to profit from the demand for rental properties. However, dividing single family homes in some neighborhoods may be undesirable. This may lead to increased traffic congestion and noise. Thus, identifying appropriate locations for development of apartments will lessen the impact on single-family home neighborhoods.

High density residential areas consisting of multi-family housing are generally located near existing multi-family dwellings and around major commercial business areas to act as a buffer to low density residential areas. Strict requirements for open space provisions should be developed and used in all new multi-family projects to accommodate recreation needs. High density residential areas comprised of townhouses and apartments will help to meet the housing needs of the City's increasing elderly population. Low maintenance residences located near shopping will provide elderly residents continued independent living opportunities. Traffic considerations and parking requirements are additional considerations that need to be addressed in the approval of multi-family, high density residential projects.

The introduction of a new land use category, medium density residential, will provide additional residential units to the City as well as areas of transition from commercial to low density residential housing areas. These medium density residential areas are primarily located adjacent to areas of commercial activities along the Boulevard (Route 301/1). Other areas are located along I- 95 and in the northeastern portion of the City. This category allows for another alternative in the City's housing opportunities.

Through organizing into defined neighborhoods, residential areas in the City of Colonial Heights could be improved. In such an arrangement, each neighborhood could be organized with a civic association that would communicate the needs of the neighborhood to the City. As development of vacant land becomes complete, the City should shift future planning efforts toward revitalizing older neighborhoods.

117

PUDs and Cluster Development

The encouragement of a planned residential community is an effective measure to promote a mixture of residential densities, types of dwelling units, and styles of living. Cluster developments are becoming more popular nationwide as land and construction costs rise and the retention of open space and environmentally sensitive features becomes more important.

Planned Unit Developments (PUDs):

Planned unit developments should be considered on the remaining vacant tracts of land in Colonial Heights as a viable and desirable method of development. The development of PUDs can provide a number of advantages to a community in terms of flexibility and unity of design. PUDs can offer a variety of housing types and densities, as well as local commercial convenience services. PUDs are mixed-use developments, bringing together conventional land use activities in concentrated, complimentary arrangements. Service, recreation, entertainment, and water-related development are oriented around open areas held in common. Also, the transportation system can be planned and integrated to include roadways, bicycle paths, sidewalks, walkways, and possible mass transit facilities.

After a thorough analysis of the natural features of a selected site and the capacity of areas within the site to sustain development, PUDs can be designed to have a minimal impact on the natural environment by the strategic location of structures only on suitable sites and the incorporation of open space and recreational facilities as resident amenities. Development that recognizes a site's natural features and incorporates the features into the overall design minimize land disturbance. Potentially, this type of development can enhance resource protection and access routes, increase the value of projects, attract visitors and residents, and become an economic development catalyst in the community.

Residential Cluster Development:

Residential cluster development, also referred to as open space subdivision development, is another development option that should be considered by the City. Like PUDs, cluster development can offer variety in housing types as well as densities, setbacks, and design. In exchange for creating permanent open space on a portion of the land, increased densities are permitted on less sensitive portions of a site where lot sizes are reduced and structures are grouped closer together. Cluster development encourages the protection of environmentally sensitive features by retaining such features as open space and incorporating this open space into the design of the development.

This type of residential development reduces site development and construction costs by reducing utility and infrastructure requirements (clustering development reduces the area needed for roads and utilities), promoting shared access, and conserving land and energy. Studies have demonstrated that developer costs saved in streets, utilities, grading and stormwater facilities can reduce the final costs of development by at least 5-10 percent. Clustering also reduces the area of impervious surface thus contributing to water quality protection.

118

Commercial Planning

Commercial land use is one of the most visible and critical among all types of land uses. It mainly provides retail trade uses, as well as office space and other business uses. In 1997 there were approximately 387.8 acres or 11.5 percent of the developed land devoted to commercial uses for Colonial Heights. This is up from 121 acres or 5.3 percent of the developed land in 1974. Thus, commercial land use has grown as a land use category and has become an even more important land use component to the City. Although comprising a relatively small amount of the total developed land, commercial land use requires a high degree of accessibility and is among the top competitors for prime locations in the community.

The purpose of studying commercial land use is to examine the existing conditions of commercial development within the City, determine trends in future development, forecast commercial land use requirements for the future, identify major problems and issues to be resolved in commercial development, and make recommendations concerning policies and standards that should be adopted regarding commercial development and redevelopment.

The adopted goal and objectives for commercial land development in Colonial Heights are concerned with enhancing the economic strength of the business community by planning for the needed growth of the commercial base. The Plan supports and encourages the development of planned business and commercial growth in the Southpark area while discouraging the development of "strip" linear business and commercial growth along major thoroughfares. Additionally, the City wishes to encourage the development of a planned business/civic center at the heart of the City and desires to strengthen the appearance of the entire community through the use of general urban design guidelines.

The Plan shows three (3) categories of commercial land use: 1) general commercial and shopping centers, 2) limited business, and 3) professional office. "Professional Office" is a new commercial land use category that has been introduced as a means of responding to current business interests, as well as to promote cluster development of business districts rather than encourage the less desirable linear developments seen today. The introduction of additional street landscaping and general urban design guidelines are other means of minimizing the negative aspects of the existing business strip. The Plan shows a small area of "Professional Office" development in the Boulevard/Temple Avenue vicinity, immediately adjacent to the general commercial area along the Boulevard. The "Professional Office" zoning classification consists of a list of low intensity business uses with lower traffic volumes and day-time office hours, calling for smaller, less significant signs. Doctors, lawyers, real estate, and insurance offices are classifications of uses that could be considered in these zones.

By far the largest commercial land use is "General Commercial and Shopping Centers" found primarily along the Boulevard and in the Southpark area. These are the major growth areas for general commercial and shopping centers. The Boulevard has developed in a linear fashion without a major central business and commerce district. The continuation of this type of growth along the City's major thoroughfare perpetuates the problems associated with this type of development, such as traffic control, an excessive amount of curb cuts, parking limitations, fire and

119

police protection, the visual effect of business sign clutter, and the alienation of residential neighborhoods. The dispersal of commercial shopping activities denies shoppers the conveniences and advantages found in grouping business establishments.

To discourage strip development, future development along the Boulevard should concentrate commercial activities into districts or centers in which commercial activities are concentrated. Through limiting ingresses and egresses, and through innovative landscaping, strip commercial development may be transformed into pockets of commercial districts. Customers would benefit from the convenience of being able to park in one place and walk to patronize more than one business per stop. These commercial districts could become "centers" for the residential neighborhoods surrounding the commercial areas. The City should also consider some new commercial districts near neighborhoods that are presently not within walking distance to existing commercial areas.

The fear of businesses abandoning the Boulevard because of Southpark Mall has not materialized. Although some businesses have closed along the Boulevard, new businesses have taken their place. The Boulevard is not plagued with numerous vacancies, rather, the evolution of old to new businesses is occurring. A new type of development that is taking place along the Boulevard is the office condominium, or cluster of business offices that share a common building and parking lot.

(...add city policy for development of remaining land at Southpark (closure plan)...)

Industrial Planning

Industry is vital to local and regional growth and development. The attraction and retention of industry broadens the City's economic base by creating employment opportunities, as well as increases the tax base necessary for community services and facilities.

It is also recognized that the successful attraction of new industry or retention of certain existing industries is not always without problems. It should be the objective of the City to ensure that the opportunities and problems involved in industrial development are identified and addressed. Industry does attract additional population; and additional population creates new demands on the existing school system as well as law enforcement, fire protection, and other community services. Industrial development may also create increased traffic congestion, seriously taxing existing streets and highways. In addition, industrial development may place an unreasonable burden on existing utility systems or produce environmental problems, such as water or air pollution.

The basic community goal for industrial land development is to expand desirable industrial uses so as to broaden the tax base and increase local employment opportunities. The "planned industrial park" concept, improved highway access, and municipal services are all expressed objectives attempting to reach this goal.

120

The Land Use Plan Map indicates one (1) industrial land use designation - light industry and warehousing. A change from the 1975 Comprehensive Plan is the amount of land available for industrial use. The 1975 Plan designated most of the southeastern quadrant of the City "industrial park". The 2010 Plan designates most of this area (Southpark Mall area) general commercial and shopping centers with a smaller portion along I-95 and the Appomattox River devoted to light industry and warehousing. A small section of warehouse industry remains adjacent to active railroad tracks along Ellerslie Avenue. Heavy industry is not a land use classification that the City wishes to promote. Unlike the growth in residential and commercial land uses (as a percent of developed area) over the past twenty years, industrial land use has not shown significant growth. There has been only a slight increase in industrial acreage since 1975, from 54.8 to 74.2 in 1997. The amount of industrial land as a percent of developed area has remained unchanged since 1975, representing only 2.2 percent (see the table below on land use comparisons).

The Plan encourages the growth and development of industrial land uses in appropriate designated areas in order to limit expansion in non-industrial regions of the City and reduce the detrimental effects to adjoining property values and community appearance. The industrial park concept provides a means of accomplishing this by requiring adherence to stricter standards of landscaping and buffering.

121

Public and Semi-Public Planning

Public and semi-public lands in this study include those used by churches, schools, colleges, recreation clubs, municipal buildings, parks, and recreation areas. The Community Facilities and Services section of this Plan discusses the details of each public use facility and the projected needs and demands of future growth. The General Land Use Map has incorporated all of these ideas as part of its overall concept. It is next to impossible to project the future growth and development of semi-public properties such as churches, recreation, clubs, and social organization buildings. The City can anticipate, though, that as the residential population increases, so will the demand to enlarge and expand semi-public facilities. In most cases, this type of development is acceptable in any area, but buildings used for a lodge or social club should be located in carefully selected areas so as not to overburden the traffic and increase noise levels in the area.

Open Space Planning

Parks, recreation, and open space are essential to the health, general welfare, comfort, and well being of all segments of the public; and their provision is a public necessity and in the public interest. To satisfy current demand for outdoor recreation opportunities, the multiple use of existing resources along with private/public partnerships is imperative. Well-planned open space provides recreation opportunities to the leisure-seeking population on weekends and holidays and creates (outside of the existing developmental complexes) a new type of living space.

In addition to providing recreational opportunities, open space and parks can serve to protect the sensitive and vital environmental features of our communities. The protection of environmental resources is a public necessity which can be incorporated into the concept of open space planning. Encouraging proper public use of open spaces, protected for their natural resource values, is an essential part of long-term stewardship. The fragility of various areas within a preserve should be determined so that procedures can be established to ensure that the most important and vulnerable areas receive special protection. Open space planning can be achieved in a variety of ways, several of which are discussed below.

Conservation and Preservation Areas

A Conservation and Preservation Area, like a natural area, is land which has scientific or educational value. A designated Conservation and Preservation Area is managed to ensure continued preservation of the natural resources it supports. Conservation and Preservation Areas can provide the public with quality passive recreational and educational opportunities while protecting and preserving the natural resources. Conservation and Preservation Areas are not public parks or areas managed for their harvestable resources. Access to Preservation and Conservation Areas is recommended for passive recreational uses such as nature study, birdwatching, hiking, and nature photography. Encouraging the proper public use of such natural areas is an essential part of long- term stewardship.

The areas designated as Preservation and Conservation Areas in Colonial Heights are shown on the Land Use Plan Map. These areas represent a new land use designation under the category of Permanent Open Space. Preservation and Conservation Areas generally follow the designation of

123

Chesapeake Bay Resource Protection Areas which include 100 Year Flood Plain and Contiguous Wetland Areas as well as some portions of the Resource Management Areas. The designation of these areas as Preservation and Conservation Areas encourages the protection of these environmentally sensitive areas of the City while providing the City with an inventory of permanent open space.

Greenways and Parks

A greenway can be established to protect, preserve, and maintain existing natural and cultural corridors; to link population centers with recreation areas as well as other population centers; and to provide recreation opportunities along these corridors by utilizing watercourses (streams, rivers, canals, etc.), utility rights-of-way, roads, and abandoned railroad rights-of-way. Depending on the location, a greenway can range from rugged terrain with scenic views and extensive vegetation to open, level meadows. The greenway can be a separate entity or a portion of another park category. Potential facilities include: camping, picnic facilities, trails, natural area, boating and facilities, fishing, access points, canoeing, winter sports, and parking areas. The size can be any length, preferably longer than one mile.

Currently, there are no greenways located in the City of Colonial Heights. However, some of the land features necessary for establishing a greenway, such as rivers, railroad rights-of-way, etc., exist in Colonial Heights. A study on the need and feasibility of providing a greenway or series of greenways should be conducted. This study could be accomplished in conjunction with an update to the Recreation and Open Space Master Plan which was prepared in 1974.

Locational Standards for Functional Land Use Categories

More specific standards are listed below for the different land uses. The development of separate standards for each land use, however, is not meant to suggest that mixed land uses are necessarily undesirable. The planned mixture of land uses can be a positive force in providing diversity, vitality, and convenience within an urban area. The opportunity to live, work, and shop within a small and conveniently arranged geographical area is not available to most residents of sizable urban areas. Innovative and flexible planning techniques, such as Planned Unit Development, should be utilized to encourage mixed land use developments. Such techniques also incorporate adequate planning control to prevent land use conflicts.

Suggested Residential Locational Standards

1. Soils - Residential areas should be located on soils that do not have severe or very severe limitations for residential development based upon Soil Conservation Service criteria or other appropriate criteria, i.e. steep slopes.

2. Provision of Utilities - Residential areas should be located where they can be served by existing utility systems or planned extensions of existing utility systems without excessive cost or duplication of lines.

124

3. Access and Circulation - Residential neighborhoods should be located in proximity to, but not penetrated by, minor arterial or collector streets. The minor arterial streets should also have direct access to existing and potential transit service, and provide street linkages between future adjacent developments.

4. Relationship to Commercial and Public Facilities - Residential areas should be located where access to shopping, employment, and community facilities can be provided in a manner that is safe, convenient, and economical.

Suggested Locational Standards for Multiple-Family Housing

The residential locational standards listed above apply equally to multiple-family housing. The following standards, however, apply more specifically to multiple-family housing complexes and take precedence over the general residential standards where the two are not in agreement.

1. Access - Multiple-family housing complexes should be located where access can be provided from collector or arterial streets. Apartment traffic should not be channeled past single-family homes on local streets.

2. Desirable Locations - Multiple-family housing sites should be chosen on the basis of their potential for providing a safe, attractive, and convenient living environment for residents. In general, multiple-family housing should be encouraged in proximity to: a) intensive development areas which afford immediate access to shopping, employment, and entertainment facilities; b) open space and recreational resources; and c) existing or planned public transit corridors.

3. Undesirable Locations - Local streets in the middle of established single-family neighborhoods are not appropriate locations for multiple-family housing complexes.

4. Housing Mix - The harmonious mixture of housing types, including single-family townhouses, and apartments, should be encouraged within planned development areas.

5. Recreation Areas - The preservation of open space for recreation facilities should be encouraged on and within the site itself; where this is not possible, appropriate costs should be suggested for the development of a neighboring recreation site.

Suggested Commercial Locational Standards

There are four basic types of commercial centers: convenience centers, community shopping centers, regional shopping centers, and highway service centers. Convenience Centers serve urban neighborhoods with daily consumer goods such as groceries and drugs, and may also include a limited number of commercial services such as barbers, dry cleaners, and banks. Community Shopping Centers serve a larger sector of an urban area or all of a small city with some convenience goods plus shopping goods such as clothing and a range of commercial services.

125

Regional Shopping Centers serve all or a major part of a region with a wide variety of comparison and specialty shopping goods. Highway Service Centers serve the commercial needs of the highway motorist with travel-related services such as automotive services, food, lodging, and other similar supportive uses.

1. Natural Conditions - Commercial areas should be located on level land (less than 5% slope) with soils that do not have severe or very severe limitations for commercial development based upon Soil Conservation Service criteria or other appropriate criteria.

2. Clustering of Development - For new commercial areas, establishments should be encouraged to develop in clusters or integrated shopping centers and should not be allowed to diffuse along thoroughfares. This principle applies to highway-oriented commerce, as well as to retail and commercial services.

3. Relationship to Highway Corridors - Commercial centers should be located in relation to transportation corridors.

4. Public Transit Connections - Planned shopping centers (community and regional) should have direct access to the public transit system. Future regional centers should be located on existing or planned public transit corridors.

5. Transition Uses - Areas surrounding shopping centers are appropriate for office uses of a professional nature or medium density residential uses which can serve as transition uses buffering lower density land uses from the retail center.

6. Interchange Development - Commercial development at freeway interchanges should be governed by the following guidelines:

a) Permit designation of some, but not all, quadrants of the interchange area for highway oriented commercial services at interchanges where there is need for such services.

b) Restrict community oriented retail businesses, including shopping centers, to a single quadrant of the interchange so that store to store movement can be accommodated with little disruption to through traffic. Lower intensity professional businesses may be developed in other quadrants, possibly in multi-story buildings.

c) Relate development to the natural setting and preserve outstanding scenic values, where present, by limiting or prohibiting development.

d) Discourage premature development which would limit the options for coordinated development of the interchange area at a later date.

126

Suggested Industrial Locational Standards

1. Natural Conditions - Industries should be located on level land (less than 5% slope) with soils that do not have severe or very severe limitations for industrial development based upon Soil Conservation Service criteria or other appropriate criteria.

2. Clustering of Development - Industries should be encouraged to locate in planned industrial parks and in, or adjacent to, existing centers of development, in order to prevent sprawling development, to provide convenient employment opportunities, and to provide efficient connection to municipal utility systems.

3. Regional Transportation Connections - Industrial areas shall have direct access to regional ground transportation systems including highway and/or rail.

4 Relationship to Residential Areas - Industries that may have a negative impact on the residential living environment (due to pollution, traffic generation, visual appearance, etc.) should not be located near residential neighborhoods.

5. Buffering and Landscaping - Development of an industrial nature should provide a well-landscaped site to enhance the visual effect surrounding development and continue to promote good urban design.

Floodplain Management

Floods are by far the most destructive of the natural disaster hazards faced by mankind. Even in spectacular storms, such as hurricanes and typhoons, it is the excessive water and not the wind alone that does the greatest amount of damage.

Virginia has suffered heavily and repeatedly from flood damages. In the three-year period from 1969 to 1972 , Virginia experienced sizable losses in both lives and property damages. In 1969, Hurricane Camille was responsible for the loss of 114 lives and inflicted property damage estimated at $113 million. Three years later, Hurricane Agnes hit the state, taking only 22 lives but inflicting $330 million in property losses. In the following years, other hurricanes have devastated various areas of the state.

Flooding in Colonial Heights is a frequent occurrence. A constant rainfall for a short period of time causes the Appomattox River, Swift Creek, and Old Town Creek to overflow as they run their course through the City. Most of the damage is from water invading structures standing in the floodplain.

Old Town Creek is the waterway that predominately spills over and causes the most problems. The intersection of Temple Avenue and Conduit Road is frequently impassable during the slightest downpour. Another highly flood-prone area, farther up Old Town Creek, is along Newcastle Drive in a residential subdivision and multiple-family development area.

127

Until recently, Colonial Heights provided little or no relief to provide land owners who live in the flood-prone areas. Occasional sand bagging assistance for those highly critical areas, including the city's own sewage treatment facilities, has been the extent of the City's assistance. Today, however, one relief method available to Colonial Heights residents is the National Flood Insurance Program through which flood insurance may be obtained. This program provides insurance coverage to private homes and other structures used for residential, business, religious, or agricultural purposes, as well as those of non-profit organizations or those owned by state and local governments. The premiums are moderate due to a federal subsidy though coverage is underwritten by private insurance companies. Governmental bodies in the communities that are covered by the program are required to plan and adopt land use measures that will reduce the losses from future floods.

The Virginia Water Resources Research Center has published and distributed a brochure titled, "Flood Insurance of Virginia" which includes the minimum land use standards necessary for local compliance to the insurance program. For acceptance of a community's application for either the Regular or the Emergency Programs, the Federal Insurance Administrator requires minimum compliance with certain land-management criteria. The specific minimums required of a particular community depend on the amount of technical data formally provided to the community by the Federal Insurance Administrator. Minimum standards for all communities include:

1. Building permits for all construction and improvements in the community are required as well as a review of all building-permit applications to determine whether building sites are reasonably safe from flooding. Applications are approved only if the construction is designed and anchored to prevent flotation, collapse, or lateral movement during flooding, uses materials resistant to flood damage; and uses construction methods and practices which minimize the possibility of damage from flooding.

2. The review of all new subdivision and other developments to assure that they minimize possible flood damaged, that public utilities serving them are located and constructed to minimize flood damage, and that adequate drainage is provided is required.

3. All new or replacement water-supply systems, sanitary sewage systems, and on-site waste disposal systems must be constructed so as to minimize the possibility of their infiltration by flood waters or their discharging into flood waters.

As more technical data is assembled by the Federal Insurance Administrator and is formally provided to a community in the program, additional standards must be met as minimums. These may require the adoption of other land use and control measures after a community is in the program. For example, a community may be required to permit new construction only when the lowest floor of that construction (including the basement) is elevated to or above the level of the 100-year flood, which means a flood of a magnitude is likely to happen, on the average, only once every century. And the community may be required to designate a floodway (the channel or a river or other watercourse plus adjacent lands) and to prohibit

128

any encroachments on that floodway which would impede its ability to carry off waters from a 100-year flood."

In addition to these standards, the City of Colonial Heights has adopted the national BOCA Code for additional requirements to build in floodable areas. In 100-year floodplain areas, local floodplain regulations prohibit residential construction in these areas, but generally allow non- residential structures to be constructed on raised platforms. The Chesapeake Bay Preservation Act restricts new construction in 100-year floodplains if they are included in the designated Resource Protection Areas to water-dependent facilities, and limits redevelopment to reconstruction.

129

B. STORMWATER MANAGEMENT

Overview

Virginia is placing a much stronger emphasis on protecting state water resources and their quality by supporting a number of initiatives specifically addressing non-point source pollution and stormwater management. State mandates requiring localities to adopt and implement regulations pertaining to these concerns include the Chesapeake Bay Preservation Act (performance criteria for site development and buffer areas protection) and Soil Erosion and Sediment Control regulations (which regulates pre-development and post-development run-off water quantity.)

Enacted legislation as of December 1990 enables localities to establish Stormwater Management programs to address pollution, groundwater resource depletion, stormwater runoff, stream channel erosion and localized flooding areas in localities. Additionally, in 1991, the legislature approved a program to allow localities to establish stormwater utility and stormwater control programs which essentially allow a locality to develop a comprehensive program for stormwater management, funding, and revenue sources. Upon local referendum approval, the locality could assess residential and non-residential properties within the jurisdiction a pro-rated fee which would be used for the overall improvement to the stormwater management system. This would include planning, engineering, facility acquisition and maintenance, and bond issuing capacity. The development of a locality's stormwater management program should depend on actual needs as indicated by the current impacts of developed areas, the status of development trends, and the long-term operation and maintenance of the system.

Current Status of Storm Drainage

The basic storm drainage system for Colonial Heights operates well in most areas of the City. Its design is generally curb and gutters to the natural drainage patterns that are associated with "fall line" topography. The natural drainage is directed to the Appomattox River which forms the eastern and southern boundaries of the City and the two tributary creeks that flow from west to east into the river.

Swift Creek is the larger of the two tributaries and its center line forms most of the City's northern corporate limit. There are two impoundments on Swift Creek, neither of which is currently serving its original purpose. The Swift Creek Mill dam, located just east of the Boulevard (U.S. Routes 1 and 301), originally powered a grist mill which is now the site of a dinner theater. The Swift Creek Lake, or Reservoir Dam, is located within the corporate limits near the junction of Lake and Springdale Avenues. This reservoir, which originally served as a raw water supply, now provides power to a small generating plant. It is noted that siltation has almost reduced the capacity of the lake to a stream passage of water and that the dam is being examined by engineers for possible structural deficiencies.

130

Current Problems

Floods of the one hundred year magnitude create severe stress throughout the City and as such, are generally recognized as "declared disasters" and are treated accordingly. The best protection against this level of "storm drainage" is not to build in the 100 year floodplain.

There is infrequent flooding along Swift Creek in the vicinity of Sherwood Drive and on occasions it has inundated the bridge. Because canalization is not an acceptable remedy under existing Federal and State Law, a detailed engineering study is needed to establish flood elevations and determine if the bridge should be raised and if flood-proofing of certain structures would be appropriate.

Flooding along Old Town Creek, the smaller of the two tributaries, is generally associated with properties that have made structural encroachments into the 100 year floodplain. Areas of special consideration are near Lundy Avenue and Newcastle Drive and the developing areas north of Temple Avenue (Route 144) and Newcastle Drive. Detailed review of any proposed development along or adjacent to the floodplain of this creek is mandatory to protect the developer, the wetlands, floodplains, and the environment. Again, canalization is not permissible because of environmental regulations, thus other methods will have to be used to correct the problems in this area. It should be noted that for Old Town Creek and Swift Creek, flooding problems have been exacerbated in the past by upstream developments that have accelerated the natural runoff.

There is fairly severe street flooding in the vicinity of Pickwick, Danville, and Lee Avenues during locally heavy rains because of undersized storm drains. The original pipe sizes were probably adequate at the time of construction, but accelerated runoff now exceeds capacity. To address the inadequate pipes, new pipes of proper diameter for the drainage load, taking into account proper location and design, should be installed. The responsibility of incorporating the "wetlands" requirements into the engineering package is now an additional concern.

It should be noted that along the Appomattox River and those reaches of Swift and Old Town Creeks that are in the tide zone, there are areas subject to tidal flooding. Flood-proofing is recommended for any structures that exist in this floodplain and new development generally discouraged from occurring.

Potential Problems

The relatively new commercial and industrial developments south of Temple Avenue and east of the abandoned CSX Railroad right-of-way is creating an enormous amount of impervious surface in the area and the resultant storm drainage must be dealt with under the new regulations. Additional development in this area will require very careful scrutiny to insure compliance with the law. Impervious surfaces should be limited in future development in this area.

131

Strategies for Stormwater Management

This section discusses the nature of identified stormwater related problems in the City of Colonial Heights and offers an assessment of whether the problems can be addressed by revisions and/or additions to the City Code, or by expanding police powers to include the implementation of a stormwater utility. This section also identifies the locations of the identified problems; evaluates where only relatively small capital improvement expenditures are needed; whether extensive expenditures and additional measures for implementation solutions are required; and how the problems might ultimately be resolved.

1. Southpark-Temple Avenue: To comply with pre-development level requirements, retention ponds are currently used in this area to hold excessive stormwater runoff. New construction in this rapidly developing area may compete for these set-aside lands. Additionally, unintended and unanticipated runoff may be accumulating as development continues to occur. A micro-regional analysis of stormwater management should be performed for the commercial area to identify system adequacy and determine ultimate needs. Existing and future development should continue to employ performance criteria stipulated in the Bay Act and local erosion control regulations , best management practices and participate equitably in this sub-region's stormwater management system.

2. Swift Creek: Solutions to the existing flooding problems associated with the inundation of the bridge on Sherwood Drive over Swift Creek are very limited. A detailed engineering study to determine appropriate bridge elevation and design, that neither impedes nor accelerates the movement of water in the Creek, is the most logical solution at this time. However, this approach will not contribute to the solution of other downstream flooding.

An alternate solution could be the construction of a flood control impoundment upstream of the problem area. Recognizing both the cost and environmental difficulties associated with such an undertaking, it will still be advantageous to 1) examine the existing Swift Creek Reservoir site as a potential flood control/recreation/water supply/hydro power source (cogeneration plant already in service), or 2) look for other potential sites upstream that might serve multi-purposes that could be joint venture projects with Chesterfield County. This idea has the potential for providing water related recreation, water supply, and flood control downstream. Also, there is the possibility that a reservoir of this nature could serve as a retention site for runoff from a large-scale development. Note, that the existing impoundments on Swift Creek have silted-in to such an extent that their holding capacities have been reduced to channel flows. To be made useful for the purposes stated above, the Swift Creek Lake will require either hydraulic dredging, drag line excavation, or a combination thereof, to restore its holding capacity.

Those properties between the Swift Creek Mill Dam site and the Appomattox River that experience flooding must be protected to at least the one hundred year flood level and any existing structures in the floodplain can be protected by any number of established flood- proofing methods recommended by the Federal Emergency Management Agency (FEMA).

132

3. Old Town Creek: Flooding along the reaches of Old Town Creek, especially to the west of Interstate 95, is associated with the improper uses of the floodplain and accelerated runoff that forces the Creek out of its banks. The remedy to any structural flood damage in this older part of the City is limited to the flood proofing of existing buildings and prohibiting any new construction in the floodplain. An engineering study in the vicinities of Lundy Avenue and Newcastle Drive might indicate that a dike could serve as a flood wall and at the same time serve as a dam to provide a detention pond.

Protection must be provided to the wetlands associated with Old Town Creek with special emphasis on the section between Interstate 95 and the Appomattox River. The steep slopes on the north side that parallel the dedicated right-of-way for Mount Pleasant Drive and the wetlands along the stream are fragile parts of the environment that are subject to abuse because of their location. Any development proposal for this area of the City will require extensive review and very careful environmental planning to ensure compliance with erosion control, wetlands protection, and water quality protection.

4. Pickwick, Danville, and Lee Avenues Street flooding in the vicinity of the intersections of Pickwick, Danville, and Lee Avenues is the result of current runoff exceeding the capacity of the existing storm drainage facilities that were designed and constructed a number of years ago. An engineering field survey, especially to the north of Danville Avenue, may reveal that a portion of this drainage area could be diverted to another drainage system that has available capacity. If this is not feasible, then additional studies will have to be undertaken to determine appropriate size and location of either a new or expanded system in the same area.

Based on the above stormwater problems identified throughout Colonial Heights, the City should consider the adoption of the Division of Soil and Water Conservation (Department of Conservation and Recreation) model Stormwater Management Ordinance available to assist localities in implementing a comprehensive approach to controlling non-point source pollution from existing land uses if development is proposed, future land uses, and the stormwater runoff generated by these developments.

The City should also consider the implementation of a Stormwater Utilities Program. The 1991 Virginia General Assembly session approved a bill allowing localities to operate stormwater utilities and stormwater control programs which would pay for planning and development, construction, monitoring, and the long-term operation of stormwater management facilities and pollution abatement programs. The assessment provides localities with the financial means to implement a comprehensive program. Such a program would allow a local government to charge a fee against local properties, based on projected total program cost, prorated for residential and non- residential properties, as a standard monthly utility assessment. The program offers localities an equitable means of planning and implementing a comprehensive stormwater management program. Adoption of a Stormwater Utility Program would require approval on a local referendum.

133

To further the objective of protecting water quality, it is recommended that the City of Colonial Heights adopt the model Stormwater Management Ordinance and consider the adoption of a Stormwater Utility within the next five years.

134

C. TRANSPORTATION

Introduction

The objective of urban transportation planning is to facilitate the orderly development of an integrated transportation system. As noted in the analysis of existing conditions, since the City's current transportation system exists within the larger framework of the Tri-Cities area, the City's transportation planning needs are addressed primarily through the MPO. The integrated transportation system includes highway, transit, air, rail, and waterway facilities. The Tri-Cities Area Transportation Study Update 2010, initiated in November 1988, is an update of the Tri-Cities Area Year 2000 Transportation Plan. The objective is to develop a Year 2010 Transportation Plan to guide the Tri-Cities Urban Area in the continued development of a transportation network which will accommodate future travel demands. The Tri-Cities Transportation Plan Update study area is comprised of the cities of Petersburg, Colonial Heights, and Hopewell, and portions of Chesterfield, Prince George, and Dinwiddie counties, encompassing an area of approximately 315 square miles.

The plan update is needed because development patterns are constantly changing and placing additional demands on the transportation system. At the same time, public transportation dollars remain insufficient to meet the requirements created by this situation. The Tri-Cities Transportation Plan is used to determine the most cost-effective highway system to serve projected development. Corridors that require or will require transportation solutions are identified. This assists local policy-makers in developing a program that more equitably allocates scarce dollars to needed highway and transit projects.

The Tri-Cities Year 2010 Transportation Plan Update is based on existing socio-economic characteristics, travel patterns, and predicted growth in the study area for the 20-year planning period. This approach addresses meeting the long-range transportation needs of the Tri-Cities area consistent with the resources of the local and state jurisdictions. The recommended transportation plan was developed through testing a series of alternate highway plans. The recommended highway plan makes maximum use of existing and widened facilities coupled with desirable additions on new alignment.

Background

The City of Colonial Heights is located in the north-central portion of the Tri-Cities Transportation Study Area. U.S. 1/301, known as the Boulevard within the City, is the principal north-south highway serving the City. Other major streets through the City are Temple Avenue (Route 144) and I-95.

Colonial Heights is primarily a residential community. Dense, strip-commercial development exists on both sides of the Boulevard through the City. Southpark Shopping Center, a regional mall located on Temple Avenue, recently opened and is anticipated to generate a significant volume of traffic.

135

Year 2010 Plan Transportation Goals and Objectives

The following general statements of transportation goals and objectives were developed under the direction of the Tri-Cities Area Transportation MPO and Technical Committee for the purpose of evaluating area transportation planning alternatives for the Year 2010 Plan. These goals reflect community values and complement local comprehensive and land-development plans. While all of these goals may not be achieved with the implementation of the Year 2010 Tri-Cities Area Transportation Plan, movement towards these desired objectives will be realized.

Goal: To develop an optimal multi-modal, regional transportation plan for the safe, efficient, and convenient movement of people and goods at a reasonable cost to taxpayers.

Objective 1: To reduce travel time and transportation costs.

Objective 2: To assure the future availability of transit service.

Objective 3: To utilize low cost improvements and energy conservation measures to maximize the efficiency of the existing transportation system.

Goal: To assure that transportation improvements are compatible with current local and regional comprehensive plans.

Objective 1: To encourage the implementation of future transportation improvements which complement current land-development plans.

Objective 2: To encourage an area-wide environmental review process to identify significant economic, social, and physical impacts of proposed transportation improvements.

Goal: To improve the urban transportation-planning process by encouraging citizen input and intergovernmental cooperation.

Objective 1: To encourage citizen participation in the urban transportation planning process.

Objective 2: To maximize local government input into the development of area- wide transportation plans through the maintenance of a continuing transportation planning process in the Tri-Cities Urban Area.

Public involvement is an important aspect of the transportation planning process. In the Tri- Cities Area Year 2010 Transportation Study, public input has been achieved through periodic meetings with the MPO and Technical Committee. These meetings have been held to gather information on needs to determine the concerns of the local jurisdictions, and to provide a forum for making comments and achieving understanding of the process.

136

Highway Element

The long-range highway plan or thoroughfare plan is based on projected year 2010 travel demands. The new plan consists of most of the remainder of the Year 2000 Plan projects plus two new freeway facilities. A short-range element has also been prepared and is discussed in a report titled "Area Year 2010 Transportation" which identifies existing operational and safety deficiencies in the Tri-Cities area. The recommended projects for the City of Colonial Heights are described in the following section.

Long-Range Projects:

Below is a list of the recommended long-range transportation projects (widenings of existing roads) for the City of Colonial Heights:

Boulevard (Route 1-301)

This facility, which is located in Chesterfield County and the City of Colonial Heights, is recommended to be reconstructed from Route 620 southward 4.6 miles to the south corporate limits of Colonial Heights. The recommended reconstruction would provide a turning lane on this four-lane travelway that would accommodate the projected 2010 year daily traffic volumes, which range from 22,200 south of Route 628 to 40,900 at Ellerslie Avenue.

Conduit Road

This facility is located in the City of Colonial Heights and is recommended to be reconstructed to provide four lanes between Ellerslie Avenue and Temple Avenue. The forecast 2010 year traffic volume is 20,200 vehicles per day.

Dupuy Avenue, East River Road (Route 1107)

This facility is located in the City of Colonial Heights and Chesterfield County and is recommended to be reconstructed to a four-lane facility between the Boulevard (Route 1- 301) and Chesterfield Avenue (Route 36). The forecast year 2010 traffic volume is 28,900.

Ellerslie Avenue

This facility is located in the City of Colonial Heights and is recommended to be reconstructed to a four-lane facility between Conduit Road and the Boulevard (Route 1-301). The forecast 2010 year traffic volume is 18,800 vehicles per day.

137

Short-Range Projects:

The short-range element of the Tri-Cities Area Transportation Plan Update concentrates on the efficient use of existing transportation facilities. It identifies intersections and links that are capacity and/or safety deficient and recommends improvements to address these deficiencies. The following is a list of recommended short-range transportation improvements for Colonial Heights:

Boulevard (U.S. Route 1/301) - Westover Avenue

Existing Conditions: The intersection of Boulevard and Westover Avenue is in southern Colonial Heights. Boulevard is a four-lane undivided street with a three-phase traffic signal at this intersection. The northbound left turn off of the Boulevard onto Westover Avenue is currently controlled by a protective permissive left-turn phase. No left-turn lane exists for this movement. The adjacent land use consists of commercial development. Right turns on red are restricted off of Westover Avenue onto Boulevard.

Accident Index: Using accident data obtained form the City of Colonial Heights, an accident index of 2.53 was calculated for the intersection. This intersection ranked 37th out of the 39 locations analyzed.

Traffic Count Data: A manual turning movement count was made at the intersection for the hours 7-9 a.m. and 4-6 p.m. The peak hour was found to be from 4-5 p.m. A capacity analysis of the intersection was conducted using highway capacity software. This analysis found that the average delay per vehicle is 11.3 seconds, resulting in a level of service of Ba at this intersection. The intersection volume-to-capacity ratio was calculated to be .697. The travel time/delay studies found that most delay associated with this intersection, results from the absence of left-turn lanes at this location.

Recommendations: It is recommended that the Boulevard be widened to a five-lane urban cross-section with a continuous two-way left-turn lane. This type of facility would provide for left-turn lanes for both north and southbound vehicles on the Boulevard. It is also recommended that the signal phasing at this location be upgraded. It is recommended that the signal display be updated to a house-type design, thus allowing for the display of an amber arrow indication.

Boulevard (U.S. 1/301) - Temple Avenue (Route 144)

Existing Conditions: The intersection of the two major facilities in the City of Colonial Heights is a T-Type of intersection. Both Boulevard and Temple Avenue are four-lane undivided facilities at this intersection. A right-turn lane exists for northbound vehicles on the Boulevard. A left-turn lane exists for southbound vehicles turning left off of the Boulevard. Dual left- and right- turn lanes exist for westbound Temple Avenue vehicles. At present, the intersection is controlled by a three-phase traffic signal. The southbound left-turn phasing is protective-permissive. The adjacent land is commercial.

138

Accident Index: Using accident data obtained from the City of Colonial Heights, an accident index for the intersection was calculated to be 2.89, ranking it 36th out of the 39 locations analyzed.

Traffic Count Data: A manual turning movement count was made at the intersection for the hours 7-9 a.m. and 4-6 p.m. The peak hour was found to be from 5-6 p.m. The capacity analysis found that the average delay is 19.3 seconds per vehicle, resulting in a level of service of C in the peak hour. The intersection volume-to-capacity ratio is .889.

Recommendations: This intersection has the highest volume-to-capacity ratio of any signalized intersection in the City of Colonial Heights. To provide adequate capacity for existing and projected growth, it is recommended that dual left-turn lanes be installed for the southbound Boulevard approach. Installation of dual left-turn lanes would necessitate changing of the existing traffic signal from protective-permissive to protective-only operation.

Boulevard (U.S. 1/301) - Washington Avenue

Existing Conditions: This intersection is located in southern Colonial Heights, just north of the bridge over the Appomattox River. There is no signal at the intersection which is controlled by a stop sign on Washington Avenue. The Boulevard is a four-lane undivided facility at this intersection. Immediately to the south of this location, the facility begins to transition to two lanes to cross the bridge. Sight distance for vehicles southbound on the Boulevard is restricted at this location due to the horizontal alignment of the facility. The adjacent area is vacant except for some strip commercial development on the southeast corner of the intersection.

Accident Index: The accident index for this intersection was calculated to be 5.30. This was the highest ranking location in the City of Colonial Heights; overall, it ranked 24th out of the 39 locations analyzed.

Traffic Count Data: A manual turning movement count was made at the intersection for the hours of 7-9 a.m. and 4-6 p.m. The peak hour was found to be from 4-5 p.m. It was found that existing traffic volumes do not warrant traffic signals.

Recommendations: A review of the accident data indicated that the majority of all accidents occurring at this intersection involved southbound vehicles. Further review indicated that these accidents occurred due to vehicles striking southbound vehicles in the rear. Due to the horizontal alignment of the Boulevard north of this intersection, it is difficult for southbound vehicles to see the stopped queue. It is recommended that advance warning and the possibility of a stopped queue be given to southbound vehicles on the Boulevard. Either a warning sign or a flashing beacon could be used to warn southbound vehicles of the possibility of stopped vehicles.

139

Boulevard (U.S. 1/301) - Ellerslie Avenue

Existing Conditions: This intersection, located in northern Colonial Heights, is controlled by a three-phase traffic signal. The Boulevard is a four-lane undivided facility at this location. Right- and left-turn lanes exist for northbound traffic on the Boulevard, while a left-turn lane exists for southbound traffic. An exclusive right-turn lane exists for vehicles westbound on Ellerslie turning to travel north. No turn lanes exist on the eastbound approach. The southbound left-turn at the intersection is controlled by a protective-permissive traffic signal with a four-section signal head. The amber and green left-turn arrows are contained in the lower twelve-inch signal head. The land adjacent to this intersection consists of commercial development.

Accident Index: Using data obtained from VDOT, the accident index for this intersection was calculated to be 3.35. This intersection ranked 30th out of the 39 locations analyzed.

Traffic Count Data: A manual turning movement count was made at this intersection for the hours of 7-9 a.m. and 4-6 p.m. The capacity analysis of this intersection found that the average delay per vehicle is 10.7 seconds per vehicle, resulting in a level of service of B in the p.m. peak hour. The intersection volume-to-capacity ratio is .735

Recommendations: The current operating conditions of this intersection are good. The accident index is low and the peak-hour level-of-service of B is acceptable. It is recommended that the left-turn signal for the southbound Boulevard traffic be updated to a five-section house-type design. This would bring the signal display into conformance with current design standards.

Boulevard (U.S. 1/301) - Newcastle Drive

Existing Conditions: This is a signalized intersection just south of the railroad overpass in the City of Colonial Heights. The Boulevard is a four-lane undivided facility at this location. A right- and left-turn lane exists for southbound vehicles on the Boulevard, and a left-turn lane exists for northbound vehicles. Nickels Department Store is located on the west side of this intersection, and a small business office is located on the northeast corner. A three- phase traffic signal exists at this location, with the northbound left-turn controlled by a protective-permissive signal. Right turns on red are restricted for the westbound Newcastle approach.

Accident Index: The accident index for this intersection was calculated to be 3.89. This intersection ranked 27th out of the 39 locations analyzed.

Traffic Count Data: A manual turning movement count was made at the intersection for the hours of 7-9 a.m. and 4-6 p.m. The peak hour was found to be from 5-6 p.m. The capacity analysis found that the average delay per vehicle is 13.1 seconds, resulting in a peak-hour level of service of B. The intersection volume-to-capacity ratio at this intersection was calculated to be .636.

140

Recommendation: It is recommended that the signal display for the northbound left-turn lane be upgraded to a house-type design. This would bring the display into conformance with current design standards. In addition, if the City does restrict southbound left turns at Essex Drive, as is currently being considered, it is recommended that consideration be given to installing protective-permissive phasing for the southbound left turn at this intersection.

Temple Avenue (Route 144) - I-95 Ramp

Existing Condition: This is a signalized intersection providing access to I-95. A left-turn lane exists for vehicles westbound on Temple turning to enter I-95. A short right-turn lane exists for vehicles eastbound on Temple turning to enter I-95. Dual left-turn lanes exist for vehicles turning left off of I-95 onto westbound Temple Avenue, and short acceleration lane exists for vehicles turning right off of I-95 eastbound on Temple Avenue. The surrounding land is vacant. The intersection is controlled by a three-phase traffic signal. The westbound left turn is controlled by a protective-permissive traffic signal.

Accident Index: The accident index for this intersection was 4.50, ranking 25th of the 29 locations analyzed.

Traffic Count Data: The peak hour of traffic was found to be from 4-5 p.m. The capacity analysis found that the average delay per vehicle was 12.8 seconds, resulting in peak hour level of service of B. The volume-to-capacity ratio for this intersection was calculated to be .508.

Recommendations: The westbound left turn is very heavy in both the a.m. and p.m. peaks. This movement is currently controlled by a protective-permissive signal. The sight distance is somewhat limited for this movement due to the vertical alignment of Temple Avenue. It is recommended that dual left-turn lanes be installed for the westbound approach. It is also recommended that the existing protective-permissive phasing be changed in conjunction with some improvements to protective-only phasing. This improvement will necessitate some widening on the I-95 ramp to the toll plaza. This would require the widening of the ramp southbound, and may interfere with the eastbound right-turn movement.

Additional Recommendations

There are two additional conditions in the City of Colonial Heights that are worth noting. The Boulevard south of James Avenue is currently a four-lane undivided facility; however, a fifth lane exists from Maple Avenue south. This lane is currently used for parking. There is a missing link of pavement between James Avenue and Maple Avenue. If this missing link were added, and other improvements made to the Boulevard, the entire length of the Boulevard could be striped as a five-lane urban cross section with a continuous two-way left- turn lane. It is recommended that this project be undertaken.

As previously noted, numerous traffic signals along the Boulevard are of a three-phase operation. These signals are primarily protective-permissive and provide left-turns for either

141

the north or southbound approaches. The signal display for these intersections is not of current design standards. It is recommended that they be upgraded.

It should also be noted that there are safety concerns associated with providing left-turn phasing for one approach on a mainline facility, such as the Boulevard, and not the other. If a left-turning vehicle, which is not protected by a signal, is attempting to make a turn, then the signal skips the side street sequence, the left-turning vehicle receives an amber display. This may lead the driver to believe that the on-coming traffic also is receiving an amber display and that he may execute his left turn. In fact, the actual display for the other approach would be a green indication with a left-turn overlap. This can result in a dangerous situation and should be addressed.

Bikeway Element

Realizing the growing usage of bicycles, congested roadways, and energy conservation needs, a Tri-Cities Area Bikeway Plan was prepared by the Crater Planning District Commission in 1975. The study was prepared to provide Colonial Heights, as well as the other Tri-Cities areas, with a series of guidelines and suggested routes to consider in their bikeway planning needs. While the study was prepared 20 years ago, the guidelines and proposals are still pertinent today.

There are currently no existing bikeways in Colonial Heights, however, in the City's adopted Recreation and Open-Space Master Plan (prepared by the Crater Planning District Commission in 1973) specific streets have been planned for a bikeway system. The City is building a diversified recreation system that is aimed at organized programs being planned at specific sites throughout Colonial Heights which may possibly require a bicycle trip.

A number of studies of bicycle routes have been conducted, and in several instances, slightly different interpretations have been made of the type of bicycle facility described. To eliminate the possibility of misinterpretation, the definitions of the terms used herein are as follows:

"Bicycle" - A bicycle is a device upon which any person may ride, propelled by a human powered chain, belt, or gears and having either two or three wheels in a tandem or tricycle arrangement.

"Bikeway" - Any road, street, path, or way which is specifically designated as being open to bicycle travel, regardless of whether such facility is designated for the exclusive use of bicycles or is to be shared with other transportation modes.

"Bicycle Path or Trail" (Class I) - A path or trail physically separated from a roadway and is generally marked by signs. The path or trail is for the exclusive use of bicycles and it may be paved or unpaved.

"Bicycle Lane" (Class II) - A portion of the roadway set aside for exclusive bicycle use. The bicycle lane is usually marked by signs and is distinguished from the portion of the roadway used for motor vehicle traffic by stripes, curbs, parking blocks, or other similar devices. Parking may be allowed in the lane although it is undesirable.

142

"Bicycle Route" (Class III) - A shared roadway officially designated and marked by signs as a bicycle route but is open to motor vehicle travel. Parking may or may not be allowed and there is no provision made for physical separation of travel modes.

Adaptable locations (other than vehicular thoroughfares) which might easily be developed into Class I bicycle trails with alterations, are:

1. Abandoned railroad rights-of-way. 2. Telephone line, powerline, and gas pipeline rights-of-way provide more than adequate clearances for bicycle trails. Grades may or may not be within grade specification. 3. Riverbanks, beach fronts, embankments, and flood control levees usually provide long and gently curved scenic locations for bicycle trails. 4. National, state, regional and local parks, and forest preserves, offer scenic and historic locations for bicycle trails, as well as recreational facilities and terminal parking lots for bicyclists. 5. Abandoned roadways, when their short lengths might provide adequate services. 6. Fire breaks offer sufficient widths and clearances for bicycle trails. 7. Sidewalks or pedestrian walkways, in areas of low pedestrian volumes, may easily be converted to bikeways when permitted by local ordinance.

A desireable bikeway system for the City of Colonial Heights includes the following proposals:

Boulevard (U.S. 301-1): This street is the City's major thoroughfare and carries the largest number of commuter and shopping vehicles per day. Along this street are located the City's business and commercial establishments. A Class II bike lane is suggested along the Boulevard; this street is planned to be widened, at which time location of a bicycle lane should be incorporated. If there is a limited amount of space, a parallel bikeway system could be prepared along side roads, however, this would be less of an effective solution.

Ellerslie Avenue/Temple Avenue/Conduit Road: These streets should be developed for Class II bike lanes connecting residential neighborhoods, schools, and recreation areas to the north-south thoroughfare along Route 301 (the Boulevard).

Sherwood Drive/Forest View Drive/Fairmont Drive/Biltmore Drive: A Class III bike route system should encompass this neighborhood and connect the cyclists to the Boulevard bike lanes.

Lakeview/Springdale/Woodlawn/Seaboard Coastline Railroad Right-of-Way: A continuation of the Class III system from the Sherwood Hills area, connecting the Lakeview Elementary School to the acquired abandoned railroad right-of-way, where a Class I bike path should be encouraged as a north-south connecting bikeway throughout the City.

143

White Bank Park: Plans have been prepared for a three (3) mile Class I bike path and bike trail system throughout the park. Residents would be connected to the park by way of Conduit Road bike lanes.

East Westover Avenue/Lower Conduit/Flora Avenue and Junior High School: This system will include a Class III bike route, encompassing the residents around the junior high school. East Westover Avenue should be classified as a Class II bike lane to safely carry the City's southern bicycle traffic toward the bike lanes on the Boulevard and Conduit Road.

Carroll Avenue/Chesterfield Avenue/Battery Place/Merridian Avenue: A Class II bike route system should be established to connect the City's southwestern neighborhoods with the recreational areas at the stadium.

Proposed Temple Avenue Extension East and West: This new roadway system will carry commuter motorists and cyclists in both an easterly direction to Fort Lee and Hopewell, and a westerly direction to Chesterfield County and Ettrick. Proposed Class II bike lanes should be developed in conjunction with the improvements project.

Proposed Appomattox River Park: Also indicated for future park usage is a linear park along the river encompassing the landfill area. A series of Class I bike trails should be developed here.

144

VII. PLAN IMPLEMENTATION

A. ADMINISTRATION OF THE PLAN

The City of Colonial Heights Comprehensive Plan Update represents the continuation of formal, organized planning for the City. The Plan serves as a foundation for addressing local problems and recognizing future needs and demands of growth. The Plan offers an opportunity to the City leaders to apply appropriate controls and direct both public and private investments in a logical manner to achieve short-term objectives and long-range goals.

However specific the state laws and local ordinances may be, or however carefully planning procedures may be followed, all of the laws and procedures, text, maps, special studies and outside funding programs cannot effectively substitute for the support of the people of Colonial Heights. The awareness of the City's citizens of the advantages of a comprehensive long-range view in dealing with the problems and opportunities of the City is an important tool. Maintaining such a long-range perspective is critical when the pace of growth is accelerating and the future of development depends upon the impacts of the changes occurring. The careful handling of growth management and facilities planning, within a long-range view, sets a favorable precedent for the City.

The following sections address the legal status of the Plan and the various policy and administrative functions to required to carry out the City of Colonial Heights Comprehensive Plan Update and to promote an efficient application of plan provisions.

Planning Commission Responsibility

The Planning Commission is responsible for preparing the Comprehensive Plan and advising the City Council on related matters. The Planning Commission should maintain a knowledge of the facts and interrelationships of a broad range of subjects. Furthermore, the Commission must be able to weigh the advantages and disadvantages of various possible courses of action.

With growth, the requirements for planning staff assistance will increase. Routine administration and review of building and subdivision proposals, periodic revision of the Comprehensive Plan, and participation in funding programs and special studies require full time staff. In addition, staff services may need to be supplemented by the services of consultants.

The State Planning and Enabling Statutes provide for the general contents of the Plan and procedures for adoption. The Planning Commission is required to give notice and hold a public hearing before recommending the Plan to the City Council for adoption. The City Council must also give notice and hold a public hearing before it adopts the Plan.

145

Legal Status of the Plan

The legal foundation for the Comprehensive Plan is Chapter 11 of the Code of Virginia. This chapter addresses the procedures for Plan implementation, including the role of the City Planning Commission in the review of the proposed Plan and the relationship of the zoning and subdivision ordinances to the Plan and their use in accomplishing the Plan's land use elements. In addition, Chapter 11 provides direction for capital improvements programming and presents the procedures for coordination of government activities at all levels.

The following excerpts from Title 15.1, Chapter 11, Code of Virginia, 1950 (as amended through 1989) support the legal foundation for the Comprehensive Plan.

15.1-456-(a) Whenever the local commission shall have recommended a comprehensive plan or part thereof for the municipality and such plan shall have been approved and adopted by the governing body, it shall control the general or approximate location, character and extent of each feature shown on the plan. Thereafter, unless such feature is already shown on the adopted master plan or part thereof or is deemed so under subsection (d), no street or connection to an existing street, park or other public area, public building or public structure, public utility facility or public service corporation facility other than railroad facility, whether publicly or privately owned, shall be constructed, established or authorized, unless and until the general location or approximate location, character, and extent thereof has been submitted to and approved by the local planning commission as being substantially in accord with the adopted comprehensive plan or part thereof. In connection with any such determination the commission may, and at the direction of the governing body shall, hold a public hearing after notice as required by 15.1-431.

(b) The commission shall communicate its findings to the governing body, indicating its approval or disapproval with written reasons therefor. The governing body may overrule the action of the commission by a vote of majority of the membership thereof. Failure of the commission to act within sixty days of such submission, unless such time shall be extended within sixty days of such submission, unless such time shall be extended by the governing body, shall be deemed approval. The owner or owners or their agents may appeal the decision of the local commission to the governing body within ten days after the decision of the commission. The appeal shall be by written petition to the governing body setting forth the reasons for the appeal. The appeal shall be heard and determined within sixty days from its filing. A majority vote of the governing body shall overrule the commission.

(c) Widening, narrowing, extension, enlargement, vacation or change of use of streets or public areas shall likewise be submitted for approval, but paving, repair, reconstruction, improvement, drainage or similar work and normal service extensions of public utilities or public service corporations shall not require approval unless involving a change in location or extent of a street or public area.

146

(d) Any public area, facility or use as set forth in subsection (a) which is identified within, but not the entire subject of, a submission under either 15.1-475 for subdivision or 15.1-491 (h) for development or both may be deemed a feature already shown on the adopted master plan, and, therefore, excepted from the requirement for submittal to and approval by the commission or the governing body; provided, that the governing body has by ordinance or resolution defined standards governing the construction, establishment or authorization of such public area, facility or use or has approved it through acceptance of a proffer made pursuant to 15.1-491 (a).

Plan Adoption

The following provision taken from Title 15.1 Chapter 11, Article 4 outlines the general procedures to be followed by the Colonial Heights City Council in adopting the Comprehensive Plan.

15.1-448 - Notice and hearing on plan; recommendation by local commission to governing body. Prior to the recommendation of a comprehensive plan or any part thereof, the local commission shall give notice and hold a public hearing on the plan. After such public hearing has been held the commission may approve, amend and approve, or disapprove the plan, after notice as required by 15.1-431. Upon approval of the plan, the commission shall by resolution recommend the plan to the governing body.

15.1-449 - Copy to be certified to governing body. Upon recommendation of the comprehensive plan or a part thereof by the local commission a copy thereof shall be certified to the governing body.

15.1-450 - Adoption of disapproval of plan by governing body. After certification of the plan or part thereof, the governing body after a public hearing with notice as required shall approve and adopt, amend and adopt, amend and adopt, or disapprove the same within ninety days after date of adoption of such resolution.

15.1-451 - Return of plan to commission; resubmission. If such governing body disapproves the plan, then it shall be returned to the local commission for its reconsideration, with a written statement of the reasons for its disapproval.

The commission shall have sixty days in which to reconsider the plan and resubmit it, with any changes, to the governing body.

15.1-452 - Adoption of parts of plan. As the work of preparing the comprehensive plan progresses, the local commission may, from time to time, recommend, and the governing body approve and adopt, parts thereof; any such part shall cover one or more major sections or divisions of the municipality or one or more functional matters.

147

Maintenance of the Plan

15.1-453 - Amendments. After the adoption of a comprehensive plan, all amendments to it shall be recommended, and approved and adopted, respectively, as required by 15-1-431. If the governing body desires an amendment it may direct the local commission to prepare an amendment and submit it to public hearing within sixty days after formal written request by the governing body.

15.1-454 - Plan to be reviewed at least once every five years. At least once every five years the comprehensive plan shall be reviewed by the local commission to determine whether it is advisable to amend the plan.

Significant new developments; location of new industries, shopping centers or residential subdivisions; expansion of major public/private uses, etc., should trigger a re-evaluation of the adopted comprehensive plan. Review and appropriate revisions to the plan ensuring consistency with major proposals should be made to maintain it in a current condition. Changes in the plan should only be made in the best interest of established goals and objectives. Development proposals which are contrary to the plan require serious consideration within the context of the plan's provisions. The end result of unwarranted plan revisions would be to leave the City without an enforceable plan.

Plan Implementation

Private property development and public improvement efforts can be coordinated with the plan through the use of applicable regulatory measures: zoning ordinance, subdivision regulations, building, housing, and other codes. An adopted Capital Improvement Program also provides a mechanism for the local governing body to schedule public improvements in accordance with the plan over both a five-year period and on an annual basis.

15.1-464 - Local commissions to prepare and submit annually capital improvement programs to governing body or official charged with preparation of budget. A local commission may, and at the direction of the governing body shall, prepare and revise annually a capital improvement program based on the comprehensive plan of municipality for a period not to exceed the ensuing five years. The commission shall submit the same annually to the governing body, or to the chief administrative officer or other official charged with preparation of the budget for the municipality, at such time as it or he shall direct. Such capital improvement program shall include the commission's recommendations, and estimates of cost of such facilities and the means of financing them, to be undertaken in the ensuing fiscal year and in a period not to exceed the next four years, as the basis of the capital budget for municipality. In the preparation of its capital budget recommendations, the commission shall consult with the chief administrative officer or other executive head of the government of the municipality, the heads of departments and interested citizens and organizations and shall hold such public hearings as necessary unless otherwise required.

148

15.1-465 - Municipalities to adopt ordinances regulating subdivision and development of land. The governing body of any municipality shall adopt an ordinance to assure the orderly subdivision of land and its development. 15.1-486 - Zoning ordinances generally; jurisdiction of municipalities. The governing body of any municipality may, by ordinance, classify the territory under its jurisdiction or any substantial portion thereof into districts of such number, shape and size as it may deem best suited to carry out the purposes of this article, and in each district it may regulate, restrict, permit, prohibit, and determine the following:

(a) The use of land, buildings, structures and other premises for agricultural business, industrial, residential, flood plain and other specific uses;

(b) The size, height, area, bulk, location, erection, construction, reconstruction, alteration, repair, maintenance, razing, or removal of structures;

(c) The areas and dimensions of land, water, and air space to be occupied by buildings, structures and uses, and of courts, yards, and other open spaces to be left unoccupied by uses and structures, including variations in the sizes of lots based on whether a public or community water supply or sewer system is available and used;

(d) The excavation or mining of soil or other natural resources.

For the purpose of zoning, the governing body of a municipality shall have jurisdiction over the incorporated area of the municipality.

The Zoning Ordinance and Subdivision Regulations for the City of Colonial Heights are intended to accompany this plan document under separate cover. Legal enforcement is explained within the text of these regulations. The Comprehensive Plan must be used as the reference by which zoning requests, development proposals and the zoning and subdivision regulations are reviewed for approval or disapproval. Zoning and subdivision regulations are the tools intended to accomplish the plan's objectives.

Regional Review and Coordination

Local city planning requires coordination with other jurisdictions which, in the case of Colonial Heights, includes coordination with Chesterfield County, regional, federal, and state development proposals and plans. Without coordination among these jurisdictions, the danger of planning efforts being duplicated or conflicting will result in ineffective programs and unnecessarily high development costs. The Crater Planning District Commission is the most appropriate agency to provide regional coordination and review of related plans.

149

Level of Professional Planning Assistance

As important as the statutory mechanisms are for plan implementation, however, are the various funding and technical assistance programs available to local governments.

Planning assistance is presently provided to the City of Colonial Heights by its planning staff and through the contracted services of private consultants for special projects. Special needs which may warrant additional planning assistance include the following:

1. Maintenance of the Comprehensive Plan. Unforeseen changes in development trends, population growth or effects of economic changes resulting form new industrial and commercial development, annexation or consolidation; all would have a major impact on long-range community planning which would need to be reflected in the Comprehensive Plan.

2. The need for a detailed housing assessment, an economic development study, and the long-range planning of utility and community facilities may evolve from the recommendations contained in the Comprehensive Plan. Such special studies should be used to expand on plan generalities and be treated as amendments to the adopted Comprehensive Plan.

3. Review and administration of housing, building, zoning, and subdivision regulation and development proposals which affect provisions of the Comprehensive Plan.

4. Assist in determining the most appropriate State and Federal assistance programs through which Colonial Heights may participate to aid in implementing proposed community improvements.

5. Promote local citizen involvement in planning by conducting public education programs on the Comprehensive Plan and related planning processes.

Public Education and Community Involvement

The City of Colonial Heights should develop a public awareness program to inform local citizenry of local planning efforts and issues. The intent of such a program is to solicit citizen participation in making planning decisions and to promote public support for existing and future community improvement efforts. Local planning commission members should be encouraged to attend Planning Commissioner Institute training sessions offered periodically throughout the year by the Virginia Department of Housing and Community Development (VDHCD). Educational materials are also available from VDHCD which should be distributed to local planning commissioners.

150

Additional measures which can be promoted by the City to increase public awareness of local planning include the following:

1. Development of a brochure or graphic foldout depicting the Comprehensive Land Use, Transportation, and Community Facilities Plans on one side and an executive summary of major plan elements on the reverse side.

2. Exhibits and displays of important Plan elements placed in the Colonial Heights City Hall, local bank lobbies, the library, public schools, etc.

3. Newspaper coverage of Comprehensive Plan adoption process, highlights of land use and special zoning issues, in-depth series of articles on land use problems and opportunities, series of interviews with individuals in responsible positions in local and regional governmental agencies, business, and industry, who influence future land use decisions.

The Zoning Ordinance

Of the various legal devices available for implementation for the Comprehensive Plan, zoning will probably receive the most attention during the coming years and will reach most persistently into the lives of the City's residents. While the truth of this is more obvious with respect to the overall distribution of land uses and the protection of natural resources, zoning can also be useful in smaller ways to improve the quality of development and the attractiveness of the City of Colonial Heights.

The extent to which zoning can improve living conditions and guide the growth and development of Colonial Heights in accordance with the Comprehensive Plan will be largely dependent upon the attitudes and interests of the people of Colonial Heights as expressed by themselves and by leaders in enactment of regulations and subsequent sustained enforcement of regulations. The problems will be varied since Colonial Heights is an urban community with the potential for different kinds of development. If the people of Colonial Heights truly desire an orderly, efficient land use development pattern which is an objective of the Comprehensive Plan; and if they wish to channel development to designated areas, and protect the water resources and environmentally sensitive areas, then zoning is available to implement a program which, over the long run, can accomplish these objectives.

The phrase "over the long run" is important when viewing a zoning objective. Application of the zoning ordinance to a specific proposal may appear to produce harsh results for the applicant at times, seemingly without affecting the character of the area in which the proposal is located or improving anything in the future of Colonial Heights. Yet to succumb to an attitude of futility is fatal. It simply takes an accumulation of small improvements "over the long run" to provide clear evidence of a change of direction for the better.

151

The zoning map should remain generally consistent with the Land Use Plan. Within the overall pattern of land use established by the Plan, there is nevertheless considerable room for variation between the Plan and the zoning map. The land use categories need not be identical and the one need not be amended every time the other is. Actually, the timing of a zoning change to best implement a land use change will require repeated judgements by the City Planning Commission and City Council. In addition, the system of review of individual projects by a special use permit process or by means of special exceptions will require many separate decisions based on the guidelines of the Plan and the zoning ordinance and conditions of the locale where change is proposed.

An important part of Colonial Height's continuing planning effort will be the recommendations of the City Planning Commission regarding proposed changes, the continuing effort to keep these changes within the overall perspective of the Comprehensive Plan, and the continuing effort to study and adjust implementation devices and programs which can assist with accomplishment of the goals and objectives of the Comprehensive Plan.

The Subdivision Ordinance

The regulations of the subdivision ordinance are primarily concerned with the platting of lots, the layout of streets, the location of public spaces, and building of public improvements associated with the process of subdividing land. In addition, they contribute to the keeping of clear and accurate land records. These are all matters of public concern. Once established, a street is difficult to move, and when an opportunity is missed for improved street locations or lot arrangements, such a missed opportunity is difficult or impossible to retrieve.

Two classes of problems should be considered in connection with subdivision regulations. One class includes major policy issues which must be decided in advance, usually in connection with the Comprehensive Plan and perhaps outside the scope of the text of the subdivision regulations themselves. A second class has to do with matters of design, with standards, and with administrative practice and review policies. Most of the problems in the second category can be set forth clearly within the text of the subdivision regulations.

In addition, the whole question of the public power to control the timing and location of development will be subject to continuing debate. Similarly, the public power to require setting aside of certain open spaces and critical environmental areas, in some special cases without compensation to the landowner, must be studied at length. Study of problems such as these as they relate to local conditions should be part of the continuing planning program.

152

VIII. CAPITAL IMPROVEMENTS PROGRAMMING

A Capital Improvements Program (CIP) is the five-year schedule of capital expenditures by the City. The program's long-range plans are developed by the Planning Commission with consideration of the City's financial resources. Section 15.1-464 of Virginia's planning enabling legislation permits a Planning Commission to prepare and review annually a Capital Improvements Program based upon the Comprehensive Plan and to do so either on its own initiative or at the direction of the governing body.

While adoption and implementation of the Capital Improvements Program is the responsibility of the City Manager and City Council, the Planning Commission should provide the advice and direction since it is the body charged with preparing for the long-term needs of the City's residents. The Commission should be acquainted with local revenues, expenditures, and budgets over the past several years. This will insure that long-range plans will be compatible with the locality' financial resources and that the City can amortize the Capital Improvements Program for the next five (5) years.

As shown by the City of Colonial Height's Capital Improvements Program included on the following pages, a list of needed improvements is developed and prioritized for a five year period. As each year of the program is completed, an additional year of improvements is recommended by the Planning Commission to maintain a five (5) year plan for the future.

153

CAPITAL IMPROVEMENTS PROGRAM CITY OF COLONIAL HEIGHTS, VIRGINIA 1995-1996

Colonial Heights Middle School Renovation $ 2,100,000 Infiltration Reduction 100,000 Total $ 2,200,000 1996-1997

Construction of Public Safety Building $ 1,660,000 Dana Lane Widening and Drainage 240,000 Infiltration Reduction 100,000 Total $ 2,000,000 1997-1998

Infiltration Reduction $ 300,000 24" Force Main Replacement 250,000 Purchase Remanufactured Ladder Truck 475,000 Sherwood Hills Water Tank Refurbishing 160,000 Purchase Ambulance 70,000 Landfill Access Road 165,000 Lighting of Recreation Department Ball Fields 85,000 Improvements to Hrouda & Appomattox Pump Station 145,000 Curb and Gutter Program 50,000 Community Building Renovation 210,000 Parks Maintenance Building 90,000 Total $ 2,000,000 1998-1999

Fire Pumper Replacement $ 290,000 Fleet Maintenance Building Addition 220,000 I-95 @ Southpark Ramp Signalization 145,000 Roof Replacements (Lakeview & Tussing Schools) 600,000 Center Turn Lane on Boulevard @ George Avenue 180,000 Boulevard Turn Lane @ Branders Bridge 90,000 Fire Station Renovation 425,000 Curb and Gutter Program 50,000 Total $ 2,000,000 1999-2000

Heavy Rescue Truck $ 300,000 Asbestos Abatement, CHHS 500,000 City Wide Communications System 600,000 Temple Avenue Bridge Removal 600,000 Total $ 2,000,000

154

BIBLIOGRAPHY

An Economic Profile of the Crater Planning District, Virginia Local Economies, Report #11, Marios Karayannis and George E. Barnes, Center for Public Service, University of Virginia, February, 1990.

An Economic Profile of the Richmond - Petersburg Metropolitan Statistical Area, Virginia Local Economies, Report #10, Andrew J. Holliday and George E. Barnes, Center for Public Service, University of Virginia, April, 1990.

Appomattox River Corridor Study, Phase I, Crater Planning District Commission with assistance from Crater Coastal Resources Management Task Force, September, 1993.

Chesapeake Bay Preservation Area Overlay District, Article XI, Chapter 24, Colonial Heights City Code, amended September 12, 1990.

Chesapeake Bay Preservation Program Comprehensive Plan Element Workbook for Middle Pennisula Localities, Middle Penninsula Planning District Commission, Jim Uzel, Environmental Coordinator, May, 1991.

City of Colonial Heights Department of Parks and Recreation Brochure, Department of Parks and Recreation, City of Colonial Heights.

City of Colonial Heights Government Directory, City of Colonial Heights, 1988.

City of Colonial Heights Map, City of Colonial Heights, January 1964, revised 1990.

City of Colonial Heights Urban Maintenance Inventory, Virginia Department of Transportation, September, 1993.

City of Colonial Heights Zoning District Map, City of Colonial Heights, prepared by K.W. Poore & Associates, Richmond, Virginia, May 1991.

City of Colonial Heights Zoning Ordinance, Chapter 24, Colonial Heights City Code.

Flood Insurance Study, City of Colonial Heights, Federal Emergency Management Agency, March 2, 1981.

Ground Water Map of Virginia, Virginia Water Control Board, Groundwater Program, edited by P.J. Smith and R.P. Ellison, 1985.

Plan of Development, Article I-B, Chapter 24, Colonial Heights City Code.

Recreation and Open Space Master Plan, Colonial Heights, Virginia, John Koetting, Principal Planner, Crater Planning District Commission, June, 1974.

Site Plans, Chapter 24, Colonial Heights City Code.

Soil and Erosion Control, Chapter 29, City of Colonial Heights.

Taxable Sales in Virginia Counties and Cities, (based on Retail Sales Tax Revenues), Annual Report, Virginia Department of Taxation, 1988 and 1989.

The Comprehensive Plan 1975-1990, Colonial Heights, Virginia, Peter J. Koetting, Principal Planner, Crater Planning District Commission, 1975.

Tri-Cities Area Bikeway Plan, Crater Planning District Commission, May, 1975.

Tri-Cities Area Transportation Study Update Year 2010, Kimley-Horn and Associates, Inc., Raliegh North Carolina, May 1990.

Virginia Nonpoint Source Pollution Watershed Assessment Report, Department of Conservation and Recreation, Richmond, Virginia, March, 1993.

Virginia Population Projections 2000, Virginia Employment Commission, 1990.

Virginia UST-DMS Facility and Tank Data Listing by County, Virginia State Water Control Board, February 22, 1994.

U.S. Bureau of Census Reports, U.S. Department of Commerce, 1970, 1980, and 1990.