Williamsburg 2013 Comprehensive Plan

2013 COMPREHENSIVE PLAN

Adopted January 10, 2013

City Council Clyde A. Haulman, Mayor Paul T. Freiling, Vice-Mayor Judith N. Knudson D. Scott Foster Douglas G. Pons

Planning Commission Sean F. Driscoll, Chairman Gregory D. Ballentine, 1st Vice Chairman William O. Kafes, 2nd Vice Chairman Christopher M. Connolly Demetrios J. Florakis Daniel R. Quarles Sarah L. Stafford

Planning Department Reed T. Nester, AICP, Planning Director Carolyn A. Murphy, AICP, Deputy Planning Director Rodney S. Rhodes, Zoning Administrator Donna Scott, Secretary Assisted by: Kate Hoving, Communication Specialist Ted Lyman, GIS and Mapping Coordinator Hampton Roads Planning District Commission Hampton Road Transportation Planning Organization

2013 Comprehensive Plan Prepared by the Williamsburg Planning Department March 2011 – December 2012 Recommended for Adoption by the Planning Commission December 19, 2012 Adopted by the City Council January 10, 2013

Table of Contents Chapter

Title

Page

1.

Introduction

1-1

2.

Goals Character of the City Economic Vitality Transportation Public Safety Human Services and Education Recreation and Culture Environmental Sustainability Implementation

2-1 2-2 2-2 2-3 2-3 2-3 2-4 2-4

Population Williamsburg’s Population Regional Population Population by Race Population by Gender Population by Age School Enrollment and Education Attainment Population Growth

3-1 3-1 3-2 3-2 3-3 3-6 3-6

Economy Regional Economic Setting Regional Employment Williamsburg Employment Colonial Williamsburg Foundation The College of William and Mary Tourism and Lodging Income Retail Sales Taxable Sales Fiscal Capacity Historic Trends and Future Projections

4-1 4-3 4-3 4-4 4-5 4-5 4-6 4-9 4-9 4-10 4-10

Community Character Introduction Historic Preservation and Design Review Architectural Preservation District Corridor Protection District Architectural Inventory Architectural Review Guidelines Archaeological Preservation Williamsburg’s Role in the Civil War Entrance Corridors Corridor Specifics Richmond Road Monticello Avenue Jamestown Road

5-1 5-1 5-2 5-3 5-4 5-4 5-4 5-6 5-6 5-7 5-7 5-8 5-8

3.

4.

5.

2013 Williamsburg Comprehensive Plan

Table of Contents i

Chapter

Title

Page

North Henry Street/Route 132 South Henry Street Capitol Landing Road Second Street York Street Page Street Lafayette Street Beautification Advisory Committee 6.

7.

8.

5-8 5-9 5-9 5-9 5-10 5-10 5-10 5-10

Environmental Management Urban Land Suitabilities Open Space Regulation Acquisition Institutional Preservation Greenbelts Shoreline Access Stormwater Management

6-1 6-2 6-2 6-4 6-4 6-5 6-6 6-6

Land Use Categories Existing Land Use Land Use Classifications Residential Categories Office, Commercial and Mixed Use Categories Economic Development Category Institutional Categories Public/Recreation/Conservation Categories

7-1 7-4 7-4 7-5 7-7 7-8 7-8

Neighborhoods and Housing 2010 Census Housing Type Age and Quality Households Household Size Household Projections Future Housing Requirements Housing Trends Housing Plan Neighborhoods Downtown Planning Area Housing Analysis Scale and Character Future Land Use Recommendations for Residential Sub-Areas Midtown Planning Area Housing Analysis Future Land Use Recommendations for Residential Areas Northeast Triangle Planning Area Housing Analysis Future Land Use Recommendations for Residential Areas Quarterpath Road Area High Street

8-1 8-1 8-4 8-4 8-6 8-7 8-8 8-9 8-10 8-11 8-13 8-13 8-14 8-15 8-16 8-17 8-17 8-18 8-19 8-20 8-20 8-22

Table of Contents

2013 Williamsburg Comprehensive Plan ii

Chapter

Title

Page

Other Residential Areas South England Street Strawberry Plains Road Wales Area Jamestown Road Area (east of Lake Matoaka) Jamestown Road Area (west of Lake Matoaka) Richmond Road Area (Virginia Avenue to Brooks Street) Richmond Road/Longhill Road Area Highland Park Area South Henry Street Affordable Housing 2012 National Citizen Survey Housing Needs Assessment Workforce Housing in a Neighborhood Context Housing Affordability Encouraging Affordable Housing Potential Affordable Housing Locations 9.

10.

Institutions The College of William and Mary Physical Improvements The Student View Planning Issues The Colonial Williamsburg Foundation The Historic Area Resort Facilities Support Facilities Planning Issues Commercial and Economic Development Commercial and Economic Development Plan Downtown Planning Area Midtown Planning Area Northeast Triangle Planning Area Major Mixed Use Developments Quarterpath at Williamsburg High Street Other Commercial Areas Residential Uses in Commercial Areas Richmond Road (Bypass Road to Ironbound Road) Richmond Road (west of Ironbound Road to City Limits) Mooretown Road York Street Quarterpath Road/Route 199 Intersection South Henry Street/Route 199 Intersection Jamestown Road/Route 199 Intersection John Tyler Lane/Strawberry Plains Road Monticello Avenue/Ironbound Road Intersection

2013 Williamsburg Comprehensive Plan

8-23 8-23 8-24 8-25 8-26 8-27 8-27 8-28 8-28 8-29 8-29 8-29 8-30 8-31 8-31 8-31 8-33 9-1 9-2 9-3 9-3 9-7 9-8 9-9 9-9 9-9 10-2 10-3 10-10 10-18 10-25 10-25 10-26 10-27 10-27 10-28 10-28 10-28 10-28 10-29 10-29 10-29 10-29 10-29

Table of Contents iii

Chapter

Title

Page

11.

Infrastructure Utilities Water Sanitary Sewer Public Utility Extension Policy Solid Waste Management Transportation Road Classification Existing Streets Improvements since the 2006 Comprehensive Plan Existing and Projected Traffic Volumes Recommended Transportation Improvements 2034 Hampton Roads Long-Range Transportation Plan Interstate 64 Bicycle Facilities Pedestrian Facilities Public Transportation Intercity Passenger Rail Transit Vision Plan Air Travel Parks and Recreation Existing Facilities Other Facilities Planned Improvements Community Service Facilities The Municipal Center Community Service Facilities Outside the Municipal Center Community Medical Facilities Education Public Schools Private Schools Thomas Nelson Community College Communication

11-1 11-1 11-2 11-3 11-3 11-4 11-4 11-4 11-5 11-5 11-6 11-9 11-10 11-11 11-14 11-16 11-17 11-18 11-18 11-19 11-19 11-22 11-23 11-24 11-24 11-29 11-30 11-32 11-32 11-34 11-34 11-35

Implementation Zoning Ordinance Changes Downtown Planning Area Midtown Planning Area Northeast Triangle Planning Area Commercial Corridors Residential Areas Other Areas Architectural Review Archaeological Review Subdivision Ordinance Neighborhoods Economic Development Inter-jurisdictional Cooperation

12-1 12-1 12-2 12-2 12-3 12-3 12-3 12-4 12-4 12-4 12-4 12-4 12-5

12.

Table of Contents

2013 Williamsburg Comprehensive Plan iv

Chapter

Title

Page

Capital Improvement Program Transportation Beautification and Underground Wiring Stormwater Management Public Buildings Parks, Recreation and Open Space Utility Improvements

12-5 12-5 12-6 12-6 12-6 12-6 12-7

Past Comprehensive Plans 1953 Comprehensive Plan 1968 Comprehensive Plan 1981 Comprehensive Plan 1989 Comprehensive Plan 1998 Comprehensive Plan 2006 Comprehensive Plan

A1-1 A1-1 A1-2 A1-4 A1-6 A1-7

APPENDICES A1.

A2.

Comprehensive Transportation Study A2-1 Prepared by Hampton Roads Transportation Planning Organization

A3.

Beautification Advisory Committee Vision Statement

2013 Williamsburg Comprehensive Plan

A3-1

Table of Contents v

Chapter 2 Goals for the Future of Williamsburg The 2012 Comprehensive Plan is designed to guide the physical and economic development of Williamsburg by offering a distinctive vision for both its natural and built environment. The planning process has incorporated a range of public participation opportunities to allow citizens to express their visions and expectations for the future of the City. A number of neighborhood planning forums, three community forums in conjunction with James City County and York County, as well as multiple work sessions with both public officials and citizens, have been or will be conducted. The comments received, as well as a review of the recommendations of the City’s past Comprehensive Plans, were used by the Planning Commission in establishing these goals and objectives, which have been grouped into eight general categories:

I. II. III. IV. V. VI. VII. VIII.

Character of the City Economic Vitality Transportation Public Safety Education and Human Services Recreation and Culture Environmental Sustainability Implementation

Within each of these categories, specific goals and objectives are listed to serve as the basis for planning and evaluating the City’s future.

I. Character of the City.

Protect and enhance Williamsburg’s unique character as defined by its residential neighborhoods, urban places, open spaces, and by its iconic places – the Colonial Williamsburg Historic Area and the campus of the College of William and Mary.

A. B. C. C. D.

Protect the character and integrity of the Colonial Williamsburg Historic Area, the historic campus of the College of William and Mary, and the City’s historic neighborhoods and commercial areas.

Improve the quality of life in the neighborhoods surrounding William and Mary by building and maintaining effective working relationships between the city, college, students, neighbors and landlords, and by supporting the work of the Neighborhood Relations Committee.

Encourage appropriate scale and character for new and infill residential development, taking into consideration the scale and character of existing neighborhoods, environmental constraints, and the capacity of existing and proposed services.

Encourage an appropriate mix of housing and commercial uses in mixed-use developments, particularly in the Downtown, Midtown, Northeast Triangle, High Street and Quarterpath Road areas.

Evaluate and update regulations, design standards and capital improvements to ensure that they properly implement the City’s goals and that they facilitate new or adaptive reuse projects supported by the Comprehensive Plan.

Chapter 2 – Goals

2013 Williamsburg Comprehensive Plan 2-1

II. Economy Vitality.

Increase employment opportunities, income, business success, and City revenues by supporting and promoting the City’s economic base of heritage tourism and education and other development and redevelopment opportunities.

A. B. C. D. E. F. G. H.

Support and expand visitation through tourism-oriented destinations and related businesses, visitation to the College of William and Mary, and promotion of arts, sports and other special events related to tourism.

Participate in efforts to advance regional tourism and economic development goals both within the Historic Triangle and the greater Hampton Road region.

Support business expansion and job opportunities related to Colonial Williamsburg and the College of William and Mary.

Encourage high quality commercial and institutional development consistent with the character of the City in order to expand the City’s economic base.

Encourage the creative economy through support for the City’s Arts District, The Colonial Williamsburg Art Museums, and the future William and Mary Fine and Performing Arts Complex.

Identify areas suitable for infill development and redevelopment, and develop strategies to encourage such development and redevelopment.

Support the economic development goals of the City’s Economic Development Authority as reflected in the EDA’s Economic Development Strategic Plan.

Cooperate with the Colonial Williamsburg Foundation, the College of William and Mary, and Riverside Healthcare Systems to coordinate their land use planning and economic development efforts with the City’s Comprehensive Plan and Economic Development Strategic Plan.

III. Transportation.

Provide an effective transportation system which is compatible with the future land use plan, serving pedestrians, bicyclists and motorists, and promoting the expanded use of transit and rail.

A. B.

C. D. E. F. G.

Improve and expand bicycle and pedestrian facilities as an important part of the transportation system, with special emphasis on filling in gaps to create a safe and interconnected system with connections to transit services.

Support the Williamsburg Area Transit Authority’s provision of an acceptable level of transit service for the Williamsburg area, including the continuation of the Williamsburg Trolley service, an improved system of bus shelters, and maintaining a regional multimodal hub at the the Williamsburg Transportation Center.

Incorporate traffic-calming measures in appropriate locations to minimize traffic impacts on the City’s neighborhoods.

Evaluate existing parking regulations and facilities to ensure that adequate parking is provided for residents and visitors.

Support the development and implementation of improved high-speed rail down the Virginia Peninsula, with at least one additional train per day both ways, as well as future light-rail service, with the Williamsburg Transportation Center serving as the regional multimodal hub.

Complete the widening and improvement of Ironbound Road between Richmond Road and Longhill Connector.

Work with the Beautification Advisory Committee to improve the character of the City’s entrance corridors, and also with James City County and York County to ensure that the visual quality of the entrance corridors is consistent among the three jurisdictions.

2013 Williamsburg Comprehensive Plan

Chapter 2 – Goals 2-2

IV. Public safety.

Secure an ever safer community by enabling police, fire, emergency management and judicial operations to protect and serve City residents, visitors, businesses and historical assets.

A. Maintain and upgrade public safety facilities to enable the City to provide quality services for law enforcement, firefighting, communications, and emergency operations.

B. Support safe residential communities by increasing community participation in neighborhood watch programs to enhance and improve police/community partnerships, particularly in the Merrimac Trail area.

C. Support the operation and maintenance of the Williamsburg-James City County Courthouse, the Virginia Peninsula Regional Jail, and the Middle Peninsula Juvenile Detention Facility (Merrimac Center).

V. Human Services and Education.

Seek opportunities and implement programs that address the educational, health, social and training needs and expectations of City residents and workers.

A. Encourage adequate housing opportunities by creating a balanced distribution of housing types throughout the City.

B. Facilitate the work of private and quasi-public agencies such as the Williamsburg Redevelopment and Housing Authority and Williamsburg Housing Partnership, Inc. in creating and improving moderately priced owner-occupied housing, and coordinate these efforts with neighboring jurisdictions to address housing needs on a regional basis.

C. Support the expansion of affordable senior housing on the Williamsburg Redevelopment and Housing Authority’s Blayton Building property on Scotland Street.

D. Investigate the use of zoning incentives to increase the supply of new workforce housing in Williamsburg, particularly in the areas of prospective development such as the southeast quadrant of the City.

E. Support the operation of the Williamsburg-James City County school system and provide necessary facilities within the City.

F. Provide appropriate public support for human services agency facilities and other capital improvements as needed to meet critical health and human service needs, especially for vulnerable populations.

VI. Recreation and Culture.

Add to the quality and availability of cultural and recreational facilities and programming, as might be typically available only in larger communities, to meet the needs and expectations of City residents and visitors.

A. Expand and enhance the City’s system of parks, open space and recreational facilities, serving all segments of the population.

B. Encourage conservation of open space in the City and promote preservation, maintenance and access to natural areas and historic sites through efforts such as public acquisition, delineation of greenbelt corridors, private dedication of easements, and passive recreational use.

C. Protect significant archaeological resources by preservation or recovery through resource management plans.

D. Preserve the portion of the Country Road between the Mounts Bay County Government Complex and South England Street near the Williamsburg Lodge as a multiuse trail under City and County ownership.

E. Encourage regional cooperation in the development, expansion and promotion of arts festivals, sports tournaments and other special events.

F. Support the development of the City’s Arts District, improvements to The Colonial Williamsburg Art Museums, and the future William and Mary Fine and Performing Arts Complex.

Chapter 2 – Goals

2013 Williamsburg Comprehensive Plan 2-3

VII. Environmental Sustainability.

Build an evermore sustainable and healthy City pursuing multiple strategies for conservation and restoration, and providing essential environmental services related to drinking water, waste water, stormwater and solid waste.

A. B. C. D. E. F. G.

Protect Waller Mill Reservoir from the adverse environmental impacts that could result from future development within the watershed.

Continue to upgrade the City’s water distribution system to provide adequate quantity and quality for both daily usage and fire flows.

Continue to maintain and expand the City’s sanitary sewerage system, including both distribution lines and pump stations.

Continue to coordinate the City’s Stormwater Management Plan with other City land use regulations, such as zoning, erosion and sedimentation control and site plan review, and ensure that future development meets the standards of the Chesapeake Bay Preservation Act. Update the City’s Stormwater Management Plan to incorporate new state standards.

Continue to implement and promote solid waste disposal and recycling programs which meet community needs and state mandates in the Peninsula region.

Evaluate and revise architectural standards to allow more flexibility in green building design and in the use of environmentally sustainable materials.

VIII. Implementation Implement the recommendations of the Comprehensive Plan by updating the City’s zoning, subdivision and site plan controls, and by incorporating the Plan’s recommendations into the Capital Improvement Program.

2013 Williamsburg Comprehensive Plan

Chapter 2 – Goals 2-4

Chapter 3 Population This chapter was prepared for the City by the staff of the Hampton Roads Planning District Commission in October, 2012 In order to provide a basis for predicting future growth needs and estimating residential and nonresidential land use and infrastructure requirements it is important that the physical characteristics of a population are analyzed. An understanding of historic and existing population conditions provides the background for future population projections. Sound population projections then render predictions of the future need for housing, community facilities, infrastructure, and other types of services and development, the details of which will be the subject of subsequent chapters.

Using data from the U.S. Census Bureau, the Hampton Roads Planning District Commission, and local records, this chapter examines the City of Williamsburg’s population in detail by looking at the total population of City, as well as various aspects within the total population. The most recent population estimates, population growth trends, regarding gender, age groups, racial and ethnic identification, and household composition will be examined. In order to understand the dynamics affecting growth and development within the City of Williamsburg, this chapter will also examine regional population trends.

WILLIAMSBURG POPULATION As reported in the 2010 Census, Williamsburg’s population is Figure 4-1: Williamsburg Population 14,067, an increase of 2,070 from 16000 the 2000 Census. Over the last 50 years, the total population of City 14000 of Williamsburg has increased at 12000 varying rates from decade to 10000 decade; the average growth per Williamsburg decade is 13.5% (Figure 4-1).

8000 During this time frame the greatest 6000 spike in total population was the 4000 32.7% increase between 1960 and 1970, this increase due in part by 2000 the City annexing portions of 0 James City County and York 1960 1970 1980 1990 2000 2010 County in 1964.

The decade between 1990 and 2000 indicated Source: 1970-2010 U.S. Census the smallest increase of 5.2%. The City annexed portions of James City County again in 1984 which contributed to a population increase of 16.8% between 1980 and 1990. The current census indicates that between 2000 and 2010 the City has experienced an increase of 17.3%, which is the highest population increase since the 1970s.

REGIONAL POPULATION Williamsburg is located on the Peninsula of Virginia in the center of the Historic Triangle which also includes James City County and a portion of York County. Table 4-1 shows that the Peninsula’s population grew at a rate of 4.8% from 2000 to 2010; however this rate is below the national average of 9.7% for the same period. The cities of Hampton and Newport Newsdominatethe lower end of the Peninsula, and approximately 67% of the population lives there. Although Williamsburg showed a slower rate of growth relative to the other localities, total population growth was approximately 49% over the fifty-year period.

2013 Williamsburg Comprehensive Plan

Chapter 3 – Population 3-1

Table 4-1: Population Change on the Penisula Population Williamsburg

Change, 2000-2010

1960

1970

1980

1990

2000

2010

Number

Percent

6,832

9,069

9,870

11,530

11,998

14,067

2,070

17.3%

James City

11,539

17,853

22,339

34,970

48,102

67,009

18,907

39.3%

York County

21,583

27,762

35,463

42,434

56,297

65,464

9,167

16.3%

Poquoson

0

5,441

8,726

11,005

11,566

12,150

584

5.0%

113,662

138,177

144,903

171,439

180,697

180,719

22

0.0%

Hampton

89,258

120,779

122,617

133,793

146,437

137,436

-9,001

-6.1%

Penisula

242,874

319,081

343,918

405,171

455,097

476,846

21,749

4.8%

Newport News

Hampton Roads Virginia

934,312

1,108,393 1,213,999 1,454,183 1,575,348 1,671,683

3,966,949 4,651,448 4,346,797 6,015,100 7,078,515 8,001,024

96,335

6.1%

922,509

13.0%

Source: U.S. Census Bureau, 2010 Census.

Williamsburg is influenced to a substantial degree by James City and York, the two rapidly growing predominantly suburban counties that surround it. Together the three localities comprise a region that more than tripled its population during the fifty-year period from 1960 to 2010, from 39,954 in 1960 to 146,541 in 2010. In ten-year period from 2000 to 2010, the Williamsburg region experienced a growth rate of 26%.

POPULATION BY RACE The racial composition of the Williamsburg population has been fairly stable and comparable with the Williamsburg region. Whites accounted for approximately 74% of the total population in 2010, down slightly from 78% in 2000. Although in 2010 African-Americans remain the most prominent minority group at 14% of the population, other minorities rose to 12% of the total population compared to 9% in 2000. Figure 4-2 illustrates that the localities in the Williamsburg region have similar racial mixes.

Figure 4-2: Racial Mix in the Williamsburg Region, 2010

Source: 2010 U.S. Census

POPULATION BY GENDER According to the 2010 Census, the population of Williamsburg is 53% female, compared to males which comprise 47%, of the total population. Females comprise a higher proportion of the population in Williamsburg than they do in the region or the state, where they make up 51% of the population. The increasingly higher number of female residents in the City can be attributed in part to higher proportions of college age and elderly residents.

Chapter 3 – Population

2013 Williamsburg Comprehensive Plan 3-2

POPULATION BY AGE Williamsburg’s population can be analyzed by breaking it into four different age groups: grade school (17 & below) is 10% of the total, college (18-24) is 43% of the total, workforce (25-64) is 34% of the total, and retirement (65 & above) is 13% of the total. This is illustrated by Figure 4-3 below.

Figure 4-4 shows Figure 4-3: Comparison of Population Age Groups a more detailed 1990-2010 breakdown of the 7000 population in five and ten year 6000 increments. This 5000 shows a trend for 1990 increases in the 4000 older age groups, 2000 3000 particularly in the 2010 2000 60-75 range.This indicates that the 1000 City’s population 0 is getting older, as 17 & below 18 to 24 25 to 64 65 & above it is all over the country, because Source: 1990-2010 U.S. Census of the aging of the post-warbaby boom generation born between1946 and 1964. It also illustrates the attraction of Williamsburg and the Historic Triangle as a retirement destination. This continuing trend will have an impact on the City in future years.

The 1,879 persons in the City who are 65 or older make up more than 23% of the City's non-student population of approximately 8,085. This proportion of permanent residents over the age of 65 is significantly higher in Williamsburg than in the surrounding region (19%), Hampton Roads (14%) or Virginia (14%).

Figures 4-3 and 4-4 also illustrate the impact of the College of William and Mary on the City. Its presence ensures a steady and substantial supply of primarily transient residents between the ages of 18 and 24, which has Figure 4-4: Comparison of Population Age important impacts Distribution 1990-2010 on both housing 4500 and the economy.

4000 Maps 3-1 and 3-2 on the following 3500 pages help to 3000 graphically locate 2500 these illustrates the 1990 2000 median age of the 2000 1500 population, and 2010 1000 Map 3-2 illustrates 500 the population over 0 65 years old, both Under 5 to 9 10 to 15 to 20 to 25 to 35 to 45 to 55 to 60 to 65 to 75 to 85 and

by Census Block.

5 14 19 24 34 44 54 59 64 74 84 over Source: 1990-2010 U.S. Census

2013 Williamsburg Comprehensive Plan

Chapter 3 – Population 3-3

MAP 3-1: Median Age of Population

Chapter 3 – Population

2013 Williamsburg Comprehensive Plan 3-4

MAP 3-2: Distribution of Population Over 65 Years Old

2013 Williamsburg Comprehensive Plan

Chapter 3 – Population 3-5

SCHOOL ENROLLMENT AND EDUCATIONAL ATTAINMENT According to the 2006-2010 U.S. Census American Community Survey, Williamsburg’s population is highly educated. Approximately 94% of the population twenty-five and over has at least a high school diploma as compared to 90% in 2000 (Figure 4-5). Additionally, approximately 43% of the population twenty-five and over have bachelor’s degrees or above, down from 45% in 2000. In contrast, those holding bachelor’s degrees or higher account for only 28% of Hampton Roads population and 34% of Virginia population.

Figure 4-5: Educational Attainment in Williamsburg 1990-2010 60% 50% 40% 30% 20% 10% 0% Less than 9th grade

9th to 12th grade

High school graduate

Some college

Associate's degree

Bachelor's degree

Graduate or Professional degree

1990

7%

9%

17%

18%

51%

23%

20%

2000

4%

7%

21%

19%

47%

24%

21%

2010

2%

5%

22%

21%

8%

24%

20%

Source: U.S. Census Bureau, 2006-2010 American Community Survey

In Williamsburg, approximately16% of the population enrolled in school is in grades K-12, compared with 71% in James City County and 76% in York County. However, students in college or graduate school make up 73% of the total Williamsburg population enrolled in school, compared with 22% in James City County and 18% in York County.

POPULATION GROWTH Based on the Hampton Roads Planning District Commission (HRPDC) population projections the City of Williamsburg population is forecast to reach 17,200 persons by the year 2040 - nearly 3,132 people more than the City’s 2010 population base of 14,067 persons. This growth is based on an assumed growth rate of 0.67 percent per year throughout the thirty year period. Figure 4-6 shows the City’s population from 1960 to 2010 and between each U.S Census decennial population an annual growth rate was calculated to form an estimated population. This figure also shows the HRPDC forecasted population for Williamsburg from 2010 to 2040.

Chapter 3 – Population

2013 Williamsburg Comprehensive Plan 3-6

Figure 4-6: City of Williamsburg Population 1960-2040 20000 18000 16000

U.S Census Decennial Population

14000 Estimated Population Based on 10 year Annual Population

12000 10000

Estimated Population Based on HRPDC 2040 Socieoeconomic Forecast

8000 6000 4000 2000 0 1960

1970

1980

1990

2000

2010

2020

2030

2040

Source: 1960-2010 U.S. Census & HRPDC 2040 Socieoeconomic Forecast

According to the HRPDC forecast, the Peninsula’s population is projected to grow by a total of 13% between 2010 and 2040 (Table 4-2). James City County is projected to be the fastest growing locality on the Peninsula with a total growth of 56% between 2010 and 2040. In 2040 James City County is projected to remain the most populous locality in the Williamsburg region with an estimated population of 104,200 (Figure 4-7). York County is expected to grow about 26% over the same period, and is expected to have a total projected population of 82,700 by 2040. Although their projected growth rates exceed the rest of the Peninsula, both James City and York Counties are expected to experience slower growth than that seen in the fifty years from 1960 to 2010.

Table 4-2: Population in Hampton Roads 1960-2040 1960

1970

1980

1990

2000

2010

2020*

2030*

2040

Williamsburg

6,832

9,069

10,294

11,530

11,998

14,067

15,043

16,085

17,200

James City Co.

11,539

17,853

22,339

34,859

48,102

67,009

77,632

89,940

104,200

York Co. Peninsula

21,583

27,762

35,463

42,422

56,297

65,464

70,768

76,501

82,700

242,874

333,140

364,449

435,197

481,330

513,704

509,888

545,220

583,000

Hampton Roads 934,312 1,108,393 1,213,999 1,454,183 1,566,801 1,666,310 1,785,526 1,907,123 2,037,000 Source: HRPDC Hampton Roads 2040 Socioeconomic Forecast *2020 & 2030 figures were derived from 2040 figures and are not part of HRPDC's official forecast

Williamsburg’s population experienced a 22% growth between 1990 and 2010, increasing from 11,530 to 14,067. Based on the Hampton Roads Planning District Commission’s regional population projections, the City’s population growth is expected to continue at the same rate of 22% between 2010 and 2040, reaching a population of 17,200 in 2040. However, during the 2010 to 2040 period, James City County’s rate of population growth is expected to decrease from 92% to 56%, and the rate of York County’s growth to decrease from 54% to 26%.

2013 Williamsburg Comprehensive Plan

Chapter 3 – Population 3-7

Figure 4-7: Population in Williamsburg Region, 1960-2040 120,000 100,000 80,000 60,000 40,000 20,000 0

1960

1970

1980

1990

2000

2010

2020*

2030*

2040

Williamsburg

6,832

9,069

10,294

11,530

11,998

14,067

15,043

16,085

17,200

James City Co.

11,539

17,853

22,339

34,859

48,102

67,009

77,632

89,940

104,200

York Co.

21,583

27,762

35,463

42,422

56,297

65,464

70,768

76,501

82,700

Source: 1960-2010 U.S. Census & HRPDC 2040 Socioeconomic Forecast *2020 & 2030 figures were derived from 2040 figures and are not part of HRPDC's official forecast

Chapter 3 – Population

2013 Williamsburg Comprehensive Plan 3-8

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Chapter 4 Economy This chapter was prepared for the City by the staff of the Hampton Roads Planning District Commission in September 2012 Economic conditions play a major role in determining the overall health of a community. A strong local economy provides jobs to residents and attracts commuters, which generate additional economic activity.

A successful local economy also provides local governments with a strong tax base, which can be utilized to provide needed or desired infrastructure, such as roads or schools, and services, such as recreational programs. A city’s economic health is affected by local, regional, and national trends. This chapter will identify some of those trends to develop a broad assessment of Williamsburg’s existing economy and to offer some insight into expected future economic conditions for the City and its neighbors.

Williamsburg possesses several attributes which make it an ideal location for continued economic growth.

It is home to one of the nation’s best public universities, the College of William and Mary. Colonial Williamsburg, part of the area’s Historic Triangle (which also includes Jamestown and Yorktown), is a major attractor for tourism. The City, situated just off Interstate 64, is also ideally located midway between the Richmond and Virginia Beach metropolitan areas (see Map 4-1), far enough from both to maintain its own unique character, but still quite accessible to both.

Williamsburg relies on two industries, education and tourism, as primary sources of employment; these industries form the City’s economic base. The College of William and Mary is the largest employer and one of the largest landowners in the City. The College employs several thousand workers (and private contractors employ hundreds more) and brings in thousands of students, parents, and alumni each year.

Students at William and Mary also account for a significant portion of the City’s population. The City possesses many firms engaged in tourism or accommodation, including Colonial Williamsburg, which operates a number of establishments around the City’s historic core. Together, the College and Colonial Williamsburg serve as major tourist draws which result in increased demand for the rest of the City’s retail and service operations. In addition, the City is itself a significant employer, along with Williamsburg-James City County Public Schools, which operates two schools in the City and maintains its Central Office in the former James Blair Middle School.

REGIONAL ECONOMIC SETTING The Virginia Beach-Norfolk-Newport News, VA-NC (Hampton Roads) Metropolitan Statistical Area (MSA) is the 36th largest such region in the United States, with an estimated 2011 population of approximately 1.68 million residents, according to the U.S. Census Bureau. The MSA includes six counties (Gloucester, Isle of Wight, James City, Mathews, Surry, and York) and nine cities (Chesapeake, Hampton, Newport News, Norfolk, Poquoson, Portsmouth, Suffolk, Virginia Beach, and Williamsburg) in Virginia, as well as Currituck County, North Carolina (see Map 4-2). Metropolitan Statistical Areas are defined by the U.S. Office of Management and Budget as urban areas with a population of 50,000 or more and any adjacent counties that have “a high degree of social and economic integration (as measured by commuting to work) with the urban core”. The Hampton Roads regional economy did not experience as much of a downturn during the recent recession as the United States and Virginia as a whole; however, its recent economic growth has not kept pace with national and state trends (see Table 4-1). The biggest recent contributors to economic growth in Hampton Roads have come from education and health services, transportation and utilities, and leisure and hospitality. While Williamsburg is geographically close to the Richmond Metropolitan Statistical Area, its economy is integrated much more with the Hampton Roads region. According to the 2000 U.S. Census, the vast majority of Williamsburg’s residents either work in the city or commute to other locations on the Peninsula; similarly, relatively few of Williamsburg’s workers commute from localities outside Hampton Roads.

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Map 4-1: Hampton Roads and Richmond Metropolitan Statistical Areas

Map 4-2: Hampton Roads Metropolitan Stastical Area (MSA)

Table 4-1: Percent Change in Real Gross Domestic Product, 2008-2011 2008 2009 2010 2011 -0.7 -3.8 3.1 1.5* United States -0.1 -0.7 3.0 0.3* Virginia 0.4 -1.0 0.4* ** Hampton Roads * Advance Statistics ** Unavailable

Source: Bureau of Economic Analysis

Â

In 2011, the U.S. Census Bureau issued changes to the criteria for identifying urban areas. Urban areas are identified based on population density, population size, and intensity of development. Whereas MSAs are defined based on economic interactions, urban areas are defined based on physical development patterns. The Census uses two types of urban areas: Urbanized Areas, with populations of at least 50,000, and Urban Clusters, with populations greater than 2,500 but less than 50,000. Partly due to this change in criteria and partly due to increasing development, the Census Bureau

Map 4-3: Williamsburg Urbanized Area

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designated the Williamsburg, VA urbanized area as separate from the Virginia Beach, VA-NC urbanized area following the 2010 Census. The Williamsburg urbanized area includes all of the City of Williamsburg as well as significant parts of James City County and York County (see Map 4-3). This designation reflects the development of the Historic Triangle as a distinct area within the larger Hampton Roads region.

REGIONAL EMPLOYMENT

From 1970 to 2010, employment in the United States grew at an average annual rate of 2.0%. During the same period, employment in Virginia grew at a rate of 1.6% annually. Hampton Roads employment grew at a rate slower than both the national and state rates, averaging 1.3% annually. In the decade between 2000 and 2010, the Hampton Roads region experienced negligible employment growth overall, placing it in the middle of all Virginia Metropolitan Statistical Areas. Virginia MSAs, ranked by their 2000-2010 average annual employment growth, are as follows: Charlottesville (0.9%), Washington, DC-ArlingtonAlexandria (0.8%), Harrisonburg (0.6%), Winchester (0.5%), Richmond (0.2%), Virginia Beach-NorfolkNewport News (0.0%), Kingsport-Bristol-Bristol (-0.5%), Roanoke (-0.5%), Lynchburg (-0.5%), Blacksburg-Christiansburg-Radford (-0.5%), and Danville (-1.9%).Growth trends for all of Virginia’s MSAs from 1970 to 2010 are included in Table 4-2.

Table 4-2: Average Annual Employment Growth in Virginia Metropolitan Statistical Areas 1970-1980 1980-1990 1990-2000 2000-2010 1970-2010 Blacksburg-Christiansburg-Radford, 2.5% 1.7% 1.1% -0.5% 1.2% VA Charlottesville, VA 3.8% 2.3% 2.1% 0.9% 2.2% Danville, VA 1.2% 0.0% 0.9% -1.9% 0.0% Harrisonburg, VA 3.1% 2.8% 2.8% 0.6% 2.3% Kingsport-Bristol-Bristol, TN-VA 2.2% 1.1% 0.6% -0.5% 0.9% Lynchburg, VA 2.0% 1.5% 1.2% -0.5% 1.0% Richmond, VA 2.5% 2.2% 1.5% 0.2% 1.6% Roanoke, VA 1.9% 2.0% 1.3% -0.5% 1.2% Virginia Beach-Norfolk-Newport 1.9% 2.6% 0.8% 0.0% 1.3% News, VA-NC Washington-Arlington-Alexandria, 2.3% 3.1% 1.3% 0.8% 1.9% DC-VA-MD-WV Winchester, VA-WV 2.8% 3.2% 2.7% 0.5% 2.3% Virginia 2.2% 2.0% 1.8% 0.5% 1.6% United States 2.6% 2.8% 1.7% 0.9% 2.0% Source: Bureau of Economic Analysis

The Bureau of Labor Statistics, part of the U.S. Department of Labor, reports monthly labor force and unemployment data for cities and counties through the Local Area Unemployment Statistics Unit. The most recent available statistics (via Virginia Workforce Connection) are for June 2012, when Williamsburg’s unemployment rate was 13.0%, which was more than twice the rate of both neighboring jurisdictions (5.1% for both James City County and York County), as well as the rest of the Hampton Roads MSA (6.1%) and Virginia as a whole (6.0%). The national unemployment rate in June 2012 was 8.2%, as determined by the Bureau of Labor Statistics.

Williamsburg Employment Current employment totals are made available through a number of sources. The Quarterly Census of Employment and Wages (QCEW), conducted by the Bureau of Labor Statistics, is one of the main sources of employment data at the local level. It is based on unemployment insurance filings by companies, which represent the vast majority of employment in the United States. However, the QCEW does not include many agricultural workers, self-employed workers, railroad employees, members of the Armed Forces, and several other classes. The absence of military service members from these totals 2013 Williamsburg Comprehensive Plan

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makes the QCEW estimates less useful in Hampton Roads than in other areas, due to the region’s large number of military facilities. The Bureau of Economic Analysis (BEA) includes these classes of employees in its annual locality employment estimates, but it does not publish estimates for all individual localities in Virginia. Specifically, independent cities with 1980 populations of less than 100,000 are combined with an adjacent county. The Peninsula has two such combination areas: Williamsburg and James City County, and Poquoson and York County.

While complete employment numbers are not published for Williamsburg, they can be estimated using both the QCEW and BEA datasets, by using the ratio of each localities QCEW employment totals to divide the BEA combined estimates into appropriate shares for each individual locality. According to this methodology, just over 20,000 people worked in Williamsburg in 2010. Table 4-3 contains 2010 employment estimates for the entire Historic Triangle.

Table 4-3: 2010 Employment in the Historic Triangle 2010 QCEW 2010 QCEW 2010 QCEW Employment Combined Employment Employment* Share** James City County Williamsburg York County

26,180 14,197 20,971

40,377 40,377 22,767

0.65 0.35 0.92

2010 BEA Combined Employment* 56,906 56,906 36,224

2010 Estimated Total Employment 36,898 20,008 33,366

* Combined employment refers to the communities grouped together by the BEA. James City County and Williamsburg are grouped together, as are York County and Poquoson.

The Virginia Employment Commission reports that Williamsburg’s major industries are accommodation and food services and state government (which includes the college).

The City’s largest employers are the College of William and Mary, the Colonial Williamsburg Foundation, Aramark Campus LLC, Williamsburg-James City County Schools (with nearly 300 employees at the three schools inside Williamsburg), and the City of Williamsburg.

Employers in Williamsburg are concentrated in the City’s historic core as well as along its major thoroughfares (see Map 44). The top employers in James City County are retail and local government, while the top employers in York County are accommodation and food services and retail.

Colonial Williamsburg Foundation The Colonial Williamsburg Foundation, a private, not-for-profit educational institution, was established in the late 1920s to restore and operate Williamsburg’s restored colonial area as a living history Map 4-4: Williamsburg Area Businesses

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museum. The area is a major tourist attraction, comprising over 301 acres of grounds and historic buildings (both restored and rebuilt) with approximately 1.7 million visitors in 2011. The Foundation operates the Colonial Williamsburg Historic Area, conducts educational outreach and research initiatives, and operates several hotels and restaurants. The Virginia Employment Commission separates the Foundation’s historical initiatives from its accommodation services for economic analysis purposes. The Foundation’s historical, research, and education initiatives together employ nearly 1,600 workers. The Foundation’s Hospitality Group also operates six hotels (the Colonial Houses, Governor’s Inn, Providence Hall, Williamsburg Inn, Williamsburg Lodge, and Williamsburg Woodlands), several historic dining taverns (Chowning’s Tavern, Christiana Campbell’s Tavern, King’s Arms Tavern, and Shield’s Tavern), and several retail shops. Together, these operations employ nearly 1,100 additional workers, making the Colonial Williamsburg Foundation the City’s second largest employer overall. Overall visits to Colonial Williamsburg have remained level for the last few years at around 1.7 million guests, which includes estimates for all visitors who walk around the open air Historic Area; however, paid general admission has declined to approximately 670,500.

The College of William and Mary The College of William and Mary is a public university originally founded by royal charter in 1693 and is the second oldest college in the United States. The college’s main campus covers approximately 1,200 acres in downtown Williamsburg, adjacent to the city’s historic core. The College also operates facilities in Gloucester Point (the Virginia Institute of Marine Science) and in Washington, DC. The college directly employed approximately 2,800 workers in 2011, including nearly 600 full-time faculty members, and, in 2011-2012, enrolled 8,200 undergraduate, graduate, and professional students. William and Mary’s student population represents over half of Williamsburg’s total population. The students and staff of the college form an important market segment for retail and services in the city. Average salary of state employees at the College in 2011 was $63,688, while the median 2011 salary was $53,595. The 2010 Alloy College Explorer Study found that college students 18-34 nationwide have $306 billion in projected spending power, with discretionary spending estimated at $69 billion, or $361 per month per student, on average. For 18-24 year olds, discretionary spending was projected at $37.7 billion. Major segments of spending for college students include entertainment, eating out, snacks, personal care, clothing, and technology. As a large part of the city’s population with significant discretionary income, the William and Mary student body constitutes a large and important market for the city’s merchants, and is an important contributor to the area’s economy.

Tourism and Lodging Tourism is a major driver of the economies of both Williamsburg and the Historic Triangle. The tourism industry (accommodation and food services) employs over seventy thousand workers across Hampton Roads, including nearly four thousand in Williamsburg. Tourists and visitors attend area historical sites (Colonial Williamsburg, Jamestown, Yorktown), theme parks (Busch Gardens, Water Country USA), and other major areas, such as the College of William and Mary. These visitors spend money on entertainment, food, lodging, and various other items, all of which result in local economic activity and profit as well as revenue to the city and its neighbors through various taxes on hotel rooms, restaurants, beverages, and other sources. Statewide, tourist expenditures, including meals, lodging, public transportation, auto transportation, shopping, admissions, and entertainment, totaled nearly $19 billion in 2010, an increase of nearly seven percent over 2009. In Hampton Roads, tourism expenditures in 2010 totaled $3.7 billion, with approximately a quarter of those expenditures occurring in the Historic Triangle.

Williamsburg ranked highest on the Peninsula and third among all Hampton Roads localities in tourism expenditures in 2010, after Virginia Beach and Norfolk. Between 2003 and 2010, tourism expenditures increased for all of Hampton Roads by 32.6%; over the same period tourism expenditures in Williamsburg increased at a slower pace of 20.7%. Williamsburg’s high point for tourism expenditures, at nearly half a billion dollars, occurred in 2007 when Jamestown’s 400th Anniversary was celebrated.

Tourism also generates tax receipts for local governments from sales-and-use taxes, local excise taxes, and property taxes. In 2010 Hampton Roads localities received about $135 million in tax receipts related 2013 Williamsburg Comprehensive Plan

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to tourism. Williamsburg collected over $16 million in tourism tax receipts, an increase of nearly sixteen percent since 2003.

Lodging forms a major component of the tourism industry. Hotels are found throughout Hampton Roads but are concentrated in areas that see large numbers of visitors, such as Williamsburg, Virginia Beach, and Norfolk. Smith Travel Research conducts annual assessments of lodging in Virginia for the Virginia Tourism Corporation; these reports include information on changes in room demand and supply, average room rates, and occupancy rates for the state as well as various regions and sub-regions, of which Williamsburg is one. However, Smith Travel Research does not include the Colonial Williamsburg hotels or Great Wolf Lodge in its figures. According to Smith Travel Research, 2011 room demand in Williamsburg declined by 1.8% (compared to an increase of 2.6% across the region and 3.0% statewide).

Room supply declined by 1.3% (compared to a decline of 0.7% across the region and an increase of 0.5% statewide). Room rates in Williamsburg have remained around $85 to $95 since 2003. Unfortunately, Williamsburg’s room occupancy rate, at just under 41% in 2011, is the lowest in Hampton Roads, and has been since 2003.

Williamsburg remains the leader in room nights and total room sales among its Historic Triangle neighbors, but York County has steadily increased its room nights over the last several years. James City County is the leader in meals sales. Williamsburg’s room nights have actually declined both overall and as a share of the total room sales between the three localities. From 2005 to 2011, room nights declined by over 160,000, or over twenty percent. Williamsburg’s share of the area’s room sales declined from 47.5% in 2005 to 40.5% in 2011, which is still the largest share among the three localities. This change in share is shown in Figure 4-1.

Figure 4-1: Historic Triangle Room Nights, 2005-2011 2,000,000 1,800,000 1,600,000 1,400,000 1,200,000 1,000,000 800,000 600,000 400,000 200,000 0

York County Williamsburg James City County

2005

2006

2007

2008

2009

2010

2011

Source:Williamsburg Area Destination Marketing Committee

INCOME Per capita income in Hampton Roads has traditionally been lower than the national and state averages.

However, in recent years the Hampton Roads rate has not suffered as much due to the recession.

According to the Bureau of Economic Analysis, per capita income in the region for 2010 was $40,234, while the Virginia rate was $44,267 and the national rate was $39,937 (though the rate for all metropolitan areas was higher, at $41,524). The region tends to lag behind both the state and the country as a whole. However, from 2000 to 2010 regional per capita income grew at a faster rate in Hampton Roads (4.2%) compared to both Virginia (3.4%) and the United States (2.8%).

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The American Community Survey Table 4-4: Income Comparison of Historic Triangle Localities estimated Williamsburg’s per capita Per Capita Median Median income for 2006-2010 to be nearly Income Household Family Income Income $23,000, which is significantly $22,851 $50,794 $71,190 lower than per capita income in both Williamsburg $38,162 $73,903 $86,756 James City County neighboring localities, the Hampton $35,823 $81,055 $92,597 York County Roads region, Virginia, and the $27,950 $57,605 $68,178 Hampton Roads MSA nation (see Table 4-4). Median $32,145 $61,406 $73,514 Virginia household income fares slightly $27,334 $51,914 $62,982 United States better compared with the national average (if not the other areas). Source: 2006-2010 American Community Survey Median family income fares much better, as Williamsburg’s is higher than the regional and national averages and near the statewide average. It is still significantly lower than the averages for James City County and York County. The City’s relatively low income is partly due to the presence of College of William and Mary students, who have very little income. As shown in Figure 4-2, income for Williamsburg households is widely distributed, with significant numbers of households with lower, middle, and higher incomes. An estimated 73.4% of Williamsburg households had earnings from 20062010, earning an average of $65,525. Social Security income was earned by an estimated 36% of Williamsburg households, with an average of $16,251 in Social Security Income. Retirement income was earned by 26.2% of Williamsburg households, with an average of $37,800 in retirement income.

Income for Williamsburg’s residents is not distributed evenly across the city; certain neighborhoods have higher incomes than others. As shown in Table 4-5, the area with the highest median incomes is Census Tract 3701 (see Map 4-5), which includes most of the city to the south and west of U.S. Route 60, not including the College of William and Mary. Census Tract 3702, which lies to the north of U.S. 60, has the lowest median household income as well as the highest number of students in grades kindergarten through twelfth grade living in poverty.

Census Tract 3703, which includes the rest of the city west of U.S. 60, has a median household income that is not significantly below that of the city as a whole, but the large presence of college students living in dormitories without full-time jobs results in a low per capita income for the area.

Map 4-5: Williamsburg Census Tracts

Table 4-5: 2006-2010 Income and Other Economic Characteristics by Census Tract Tract 3701 Tract 3702 Tract 3703 4,138 2,708 7,222 Population (2010) $35,152 $26,136 $14,767 Per Capita Income $67,381 $41,938 $48,633 Median Household Income $91,579 $53,828 $75,676 Median Family Income 25 167 35 Number of Students K-12 Living Below the Poverty Level

Williamsburg 14,068 $22,851 $50,794 $71,190 227

Source: American Community Survey (U.S. Census Bureau)

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While Williamsburg’s median household income is about $51,000, income for the city’s households is obviously not the same for all residents. According to the American Community Survey, the mean household income from 2006-2010 for the bottom twenty percent of Williamsburg’s household was only $10,851, while the mean income for the top twenty percent was $178,970, and the mean income for the top five percent of households was $282,453. The bottom twenty percent of Williamsburg households together earned only 3% of all aggregate income for the City’s households, while the top twenty percent earned 50.8% of the city’s aggregate income. Figure 4-2 shows the mean household income from 20062010 for each quintile, along with the mean household income for the top five percent of households.

Figure 4-3 shows the number of households in various income brackets ranging from less than $10,000 to $200,000 or more for the same time period.

Figure 4-2: Mean Household Income, 2006-2010 $300,000 $250,000 $200,000 $150,000 $100,000 $50,000 $0 Lowest Quintile

Second Quintile

Third Quintile

Fourth Quintile

Highest Quintile

Top 5 Percent

Source: 2006-2010 American Community Survey

Number of Households

Figure 4-3: Annual Household Income Distribution, 20062010 800 700 600 500 400 300 200 100 0

Source: 2006-2010 American Community Survey

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SALES Retail Sales According to the Virginia Department of Taxation, Hampton Roads regional retail sales grew at an average annual rate of 2.3% between 2000 and 2011, reaching a total of over $17 billion. Retail sales in Williamsburg grew much slower, averaging 0.4% annually during the same period, while both James City County (2.4%) and York County (6.0%) exceeded the regional average. Hampton Roads retail sales in 2011 totaled nearly $12 billion - 68% occurred on the Southside, with over half of the remaining 32% ($5.6 billion) occurring in Newport News and Hampton (see Table 4-6). Retail sales on the Peninsula have shifted significantly over the decades, with both Hampton and Williamsburg losing significant retail market share to Gloucester County, James City County, and York County (see Table 4-7). Williamsburg had the third largest amount of retail sales in 1980, but by 2010 had fallen to fifth. All seven Peninsula localities have experienced overall growth in retail sales.

Taxable Sales Taxable sales in Williamsburg for 2011 totaled over $340 million. Williamsburg’s largest sources of taxable sales are accommodation (28.2%, or over $96 million), food services and drinking places (20.2%, or almost $69 million), and food and beverage stores (13.1%, or almost $45 million). Accommodation is much less of a source of taxable sales in Williamsburg’s neighbors, but in both James City County and York County food and beverage stores and food services and drinking places are major sources of taxable sales. James City County’s largest source of taxable sales is clothing and clothing accessories stores (23.0%), while York County’s largest source is general merchandise stores (31.5% of all taxable sales).

While Williamsburg has not experienced as much growth in retail sales as some of its neighbors, the city remains a strong retail center, especially given its size. Williamsburg’s population in 2011 was estimated to be 14,256 residents, which made it the 100th largest locality in Virginia. However, the city had per capita taxable sales of $23,935, which ranked 7th among all Virginia cities and counties.

Table 4-6: Retail Sales on the Peninsula, 1980-2010 (Millions of Dollars) 1980 1990 2000 2010 57.3 126.5 220.8 330.1 Gloucester County 501.9 937.7 1,072.2 1,313.2 Hampton 118.9 328.3 644.1 779.4 James City County 430.9 873.0 1,585.5 1,923.4 Newport News 6.0 24.2 32.2 42.2 Poquoson 153.0 300.7 326.8 339.3 Williamsburg 78.4 227.6 456.9 869.2 York County 1,346.4 2,818.0 4,338.4 5,596.9 Peninsula Total Source: Virginia Department of Taxation

Table 4-7: Share of Retail Sales on the Peninsula, 1980-2010 1980 1990 2000 2010 4.3% 4.5% 5.1% 5.9% Gloucester County 37.3% 33.3% 24.7% 23.5% Hampton 8.8% 11.7% 14.8% 13.9% James City County 32.0% 31.0% 36.5% 34.4% Newport News 0.4% 0.9% 0.7% 0.8% Poquoson 11.4% 10.7% 7.5% 6.1% Williamsburg 5.8% 8.1% 10.5% 15.5% York County Source: Virginia Department of Taxation

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FISCAL CAPACITY Periodically, the Commonwealth assesses the fiscal capacity of cities and counties. This is performed by the Virginia Commission on Local Government, which develops the biannual Report on Comparative Revenue Capacity, Revenue Effort, and Fiscal Stress of Virginia’s Cities and Counties. The most recent report was published in January 2012 for Fiscal Year 2010. Revenue capacity refers to the amount of revenue a locality could generate from its local, resident tax base if it were taxed at statewide averages.

The calculation of revenue capacity is based on five factors: true value of real estate, true value of public service corporation real estate, registered vehicles, local option sales tax receipts, and adjusted gross income. Statewide average tax rates are determined for all factors except the local option sales tax. Per capita revenue capacity for a jurisdiction is generated by multiplying local real estate, vehicle, and income values by the statewide average rates, adding them all together (along with local sales tax receipts), and dividing by the jurisdiction’s population. For 2010, Williamsburg had a per capita revenue capacity of $2,142.51, which ranked 25th out of all Virginia localities. The statewide average for all localities was $1,822.78, with an average of $1,887.65 for counties and $1,664.77 for cities. Williamsburg had the third-highest per capita revenue capacity of all Hampton Roads localities, behind only James City County and Surry County. The average per capita revenue capacity for all Hampton Roads localities was $1,865.99. Williamsburg’s high fiscal capacity is due to its relatively high real estate values as well as a high volume of retail sales and tourism. The City’s high fiscal capacity is a reflection of its relative strength but also its dependence on outside visitors for economic health.

HISTORIC TRENDS AND FUTURE PROJECTIONS From 1970 through 2000, Williamsburg was the site of about one-third of all jobs in the Historic Triangle region. However, as development has increased in James City County and York County, many more of the area’s jobs have started to locate in those localities (see Figure 4-4). By 2010, Williamsburg’s share of the area’s total employment had fallen to less than 25%, as the counties both continued to grow their own jobs bases (see Figure 4-5). The Hampton Roads Planning District Commission projects the current distribution of jobs within the Historic Triangle to remain approximately the same through 2040, with nearly 45% of Historic Triangle jobs in James City County, approximately 35% in York County, and the remainder in Williamsburg. This loss of employment share is projected to occur even as the city will add nearly new 10,000 new jobs by 2040. The overall jobs trend has also been observed in the retail sector.

In 1970, Williamsburg was home to more than half of the total retail jobs in the area. By 2011, the latest year for which data is available, Williamsburg’s share of retail jobs had fallen to less than twenty percent (see Figure 4-6). The Hampton Roads Planning District Commission projects retail employment to rebound slightly in Williamsburg to nearly 21% of the area’s total retail employment, adding approximately 1,700 retail jobs between 2010 and 2040. The redistribution of employment share reflects Williamsburg’s increasingly small share of the area’s total population as the two counties continue to grow. By 2040, Williamsburg is projected to have less than nine percent of the Historic Triangle’s population, down from nearly 10 percent in 2010.

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Figure 4‐4: Employment in the Historic Triangle, 1970‐2010 40000 35000 30000 25000 20000 15000 10000 5000 0 1970

1980 James City County

1990 Williamsburg

2000

2010

York County

Source: Hampton Roads 2040 Socioeconomic Forecast

Figure 4‐5: Employment Share in the Historic Triangle, 1970‐ 2010 45% 40% 35% 30% 25% 20% 15% 10% 5% 0% 1970

1980 James City County

1990 Williamsburg

2000

2010

York County

Source: Hampton Roads 2040 Socioeconomic Forecast

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Figure 4‐6: Share of Retail Employment in the Historic Triangle, 1990‐2011 50% 45% 40% 35% 30% 25% 20% 15% 10% 5% 0%

Williamsburg

JCC

York

Sources: Virginia Employment Commission and Hampton Roads Planning District Commission

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Chapter 5 Community Character INTRODUCTION The most important goal of the Comprehensive Plan is the first: Protect and enhance Williamsburg’s unique character as influenced by its iconic institutions – Colonial Williamsburg and the College of William and Mary – and as reinforced by the natural and manmade environment of its entrance corridors, open spaces, residential neighborhoods and people places.

Protecting this character is by necessity a joint effort of the entire community. The City needs to work closely with its major institutions – the Colonial Williamsburg Foundation and the College of William & Mary. Cooperation and coordination with James City County and York County is also important, since the character and visual quality of the major entrance corridors into the City transcend jurisdictional boundaries. Important open space needs to be preserved, maintained and made accessible through efforts such as enforcement of the standards of the Chesapeake Bay Preservation Act, public acquisition, delineation of greenbelt corridors, private dedication of easements, and passive recreational use.

This chapter deals with the built environment component of community character: historic preservation, design review and entrance corridors. The natural environment component, including greenbelts and open space, is discussed in Chapter 6 - Environmental Management. Each component is important separately, but collectively they define our community.

HISTORIC PRESERVATION AND DESIGN REVIEW Recognition of the importance of history and historic preservation has strong roots in Williamsburg.

When the capital of the Virginia colony was moved to the present site of Williamsburg in 1699, thenGovernor Nicholson prepared a detailed plan for the colonial city based upon Baroque city design principles, and including very specific standards – uniform setbacks for buildings, roof pitch, size of windows and specific prescriptions for street widths and the design of public buildings. Williamsburg began to decline after the capital was moved to Richmond in 1778, but was rescued through the generous support of John D. Rockefeller, Jr. The extensive restoration effort began in 1927 and continues today under the auspices of the Colonial Williamsburg Foundation.

But Williamsburg has continued to grow and change since its beginning. A neighborhood of fashionable Victorian style houses, referred to as Peacock Hill, developed north of the City on the old Wheatland Farm following the coming of the C&O Railroad in 1881. The establishment of other nearby residential areas such as Chandler Court, College Terrace and West Williamsburg Heights followed during the 1920s and 1930s. Residential neighborhoods continued to develop around the Downtown as the Colonial Williamsburg restoration effort matured in the 1940s and 1950s. As the Downtown area evolved into a tourist destination, shopping centers followed the suburban movement away from downtown in the 1950's. Developments of the past 20 years have seen the continued outward expansion of the City’s residential areas; expansion, infill and redevelopment of the commercial corridors; and major investments in the Downtown area including the development of the City Square area, the Prince George Parking Garage, College Corner Building, Municipal Building expansion, Tribe Square, The Cooke Building and Prince George Commons.

Williamsburg has been involved in design review since its founding. Governor Nicholson's standards for the colonial capital and the carefully researched standards used by the Colonial Williamsburg Foundation in its restoration efforts are noteworthy precedents. Since 1958, Williamsburg has had an architectural review board responsible for reviewing new construction in the City.

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As recommended by the 1989 Comprehensive Plan, the City’s historic preservation and design review efforts were strengthened based on Sec. 15.2-2306 of the State Code. This allows the designation of historic areas and areas of unique architectural value, as well as delineation of areas contiguous to arterial streets or highways that are significant routes of tourist access to these designated areas. The architectural review section of the Zoning Ordinance was revised in 1991 and established an Architectural Preservation District (AP) and a Corridor Protection District (CP). The Architectural Review Board's duties include: review of all new construction and alterations to existing buildings in the AP and CP districts, review of signs in both districts; and review of demolition and relocation of buildings in the AP district. In the spring of 1994, the City's preservation program was recognized by the Virginia Department of Historic Resources when Williamsburg became the 13th Certified Local Government in Virginia.

Architectural Preservation District (AP) While many associate Williamsburg's image and history with the restored colonial capital, Merchants Square, the Colonial Parkway and the College of William & Mary, there are also many other buildings and neighborhoods that have evolved over time.

These contribute to a sense of history as well as to the visual character of the community, and enhance the setting of the Colonial Williamsburg Historic Area.

These include the neighborhoods of Braxton Court, Chandler Court and Pollard Park (both on the National Register of Historic Places), Peacock Hill, College Terrace, West Williamsburg Heights, the downtown Richmond Road and Jamestown Road area, and the 18th century port of Capitol Landing (on the Virginia Landmarks Register).

These areas should be protected from adverse influences and new uses, structures and signs should be in keeping with the character of the district. These significant areas are located on the map Architectural Preservation District – Notable Features. More details on the history and architectural character of each of these areas are contained in an appendix to the Design Review Guidelines.

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Corridor Protection District (CP) The major entrance corridors provide significant routes of tourist access to the Colonial Williamsburg Historic Area and are included in the design review process as Corridor Protection Districts. These routes are identified on the map Architectural Review Districts, and include the following streets: Richmond Road, Jamestown Road, Monticello Avenue, Lafayette Street, North and South Henry Street, Route 132, Visitor Center Drive, Bypass Road, Merrimac Trail, Capitol Landing Road, Parkway Drive, Second Street, York Street and Route 199.

Because these entrance corridors do not always neatly conform to jurisdictional boundaries, Williamsburg, James City County and York County need to work together to insure that corridor beautification efforts are coordinated. This was done in 2011 for the Route 60 East corridor that is detailed in the discussion of the York Street Entrance Corridor later in this chapter.

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Architectural Inventory As recommended in the 1989 Comprehensive Plan, a survey and assessment of architectural resources in the Architectural Preservation District was completed in 1992. With the assistance of a matching grant from the Virginia Department of Historic Resources (DHR), a reconnaissance level architectural survey was conducted for all buildings over 50 years old in the AP district. The report from the survey identified 12 buildings and five districts for potential nomination to the National Register of Historic Places and the Virginia Landmarks Register. Based on the 1992 survey report, a listing of locally significant architecture and areas was created to assist the Architectural Review Board with their deliberations.

This 15 year old inventory is being updated, and detailed field work has been completed. The information needs to be entered into the DHR database to complete the survey update, and this work should be completed by 2013.

Architectural Review Guidelines The 1989 Comprehensive Plan recommended the preparation of Design Review Guidelines, which were first adopted in 1993. The Guidelines assist the Architectural Review Board in reaching fair and objective decisions when reviewing proposals in the AP and CP districts. In March 2006, a one-year review and update of the Guidelines was conducted by the Architectural Review Board, Planning Commission and City Council. This resulted in updated Guidelines which were adopted by City Council in 2006. This extensive review process ensured that the Guidelines reflect the City’s goals for development and redevelopment as well as those for architectural preservation and design review. These Guidelines are the City’s best tool for encouraging the preservation and improvement of its architectural character.

The guidelines are based in part on the Secretary of the Interior's Standards for Rehabilitation and Guidelines for Rehabilitating Historic Buildings, and distinguish between the different character of the AP and CP districts, and also between different parts of the AP District (AP-1, AP-2 and AP-3 Districts are designated). The most restrictive guidelines are in the AP-1 District adjacent to the Colonial Williamsburg Historic Area, the old campus of William & Mary, and the National Register Historic Districts of Pollard Park and Chandler Court. The Colonial Williamsburg Historic Area is the most important part of the AP district. To ensure that the integrity of this nationally significant resource is maintained for future generations, building projects are required to be based on documented historical and/or archaeological evidence. Development in the AP district is encouraged to be compatible with existing buildings and neighborhoods. In the CP district, development is encouraged which respects the overall character of the City and enhances the City's entrance corridors. Since it has been five years since the last review, an update of the Design Review Guidelines is needed as a part of the Comprehensive Plan implementation process.

Archaeological Preservation While the thrust of preservation activities in Williamsburg has centered on 17th, 18th and 19th-century American history, other remnants of Williamsburg's past still exist and can contribute toward an understanding and appreciation of the cultural landscape. Some of these prehistoric and historic resources include sites and structures occupied or used since the 17th century, as well as important 20th century sites.

In order to determine the level of significance of these resources, the areas should be studied prior to any proposed development or redevelopment, and should be protected from adverse influences whenever possible.

The City's known significant archaeological resources were identified in a Resource Protection Planning Process (RP3) study conducted by the Colonial Williamsburg Foundation for James City County, York County and the City in 1985 (revised in 1990). The 1989 Comprehensive Plan recommended that these areas be studied for significant resources to provide a reasonable assurance that any future development or redevelopment in the City does not have an adverse impact on unidentified resources. As a means of identifying all documented historic archaeological resources and predicting prehistoric archaeological Chapter 5 – Community Character

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resource areas in the City, an Archaeological Map Assessment Study was developed for the City by the Colonial Williamsburg Foundation.

As recommended in the 1989 Comprehensive Plan, an Archaeological Review section was added to the Zoning Ordinance in 1995. Five Archaeological Protection Districts were initially designated. These areas have been re-evaluated with assistance from the Colonial Williamsburg’s Department of Architectural and Archaeological Research, and new and re-adjusted districts are shown on the map Archaeological Protection Districts. The City’s Archaeological Review Districts map should be revised to reflect these changes as part of the Comprehensive Plan implementation.

The mechanism triggering archaeological review is the preparation of site plans and subdivisions within these districts. Archaeological surveys and evaluation reports must be undertaken as part of the development review process, with the Planning Commission acting as the archaeological review board. If significant archaeological resources will be adversely affected by the development project, the Planning Commission may require the modification of the site plan or subdivision plan to avoid the resources.

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Williamsburg's Role in the Civil War At the outbreak of the American Civil War, Williamsburg was little more than a small southern college town with fewer than 2,000 inhabitants. The College of William & Mary and the Eastern Lunatic Asylum were the town's major institutions. In 1862 the Virginia peninsula between the James and York rivers became the corridor for the Union Army of the Potomac to advance on Richmond. Just east of town stretched the Williamsburg defensive line. The line consisted of 14 forts, commonly called "redoubts", which comprised the third Confederate line encountered by Federal troops during their advance toward Richmond. The Battle of Williamsburg was fought in wet and raw conditions on May 5, 1862. Nearly 20,000 troops fought within earshot of the town's inhabitants. Following the battle, the Confederate army continued its withdrawal toward Richmond, and Williamsburg fell under Federal martial law for the remainder of the war.

The development of plans for “Quarterpath at Williamsburg” by Riverside Healthcare System resulted in the construction of the 21 acre Redoubt Park on the east side of Quarterpath Road north of Tutter’s Neck Pond. Redoubts #1 and #2, which supported the defense of Fort Magruder, have been preserved and interpreted as a part of the park. The setting of these redoubts beside historic Quarterpath Road should be preserved, and to this end it is proposed to convert the gravel portion of Quarterpath Road to a paved multiuse path, rerouting automobile traffic through the adjoining Quarterpath at Williamsburg development along Redoubt Road and Battery Boulevard. This is detailed in Chapter 11 - Infrastructure.

ENTRANCE CORRIDORS The City’s ten entrance corridors present the initial character and image of Williamsburg to those traveling into the City, and are shown on the map Williamsburg Entrance Corridors: Richmond Road from the City limits to College Corner Monticello Avenue from Ironbound Road to Richmond Road Jamestown Road from Route 199 to College Corner North Henry Street/Route 132 from Bypass Road to Lafayette Street South Henry Street from Route 199 to Francis Street Capitol Landing Road from Queen’s Creek to the Colonial Parkway Second Street from the City limits to Page Street Page Street from the Colonial Parkway to York Street Lafayette Street from Richmond Road to York Street York Street from the City limits to Page Street In 1994, the City commissioned LDR International, Inc. to prepare an Entrance Corridor Beautification Study to develop strategies, concepts and standards to promote the improvement and beautification of these corridors. Based on these standards, the following goals were established for the City’s entrance corridors: • • • • • •

Strengthen the concept of “gateway” and create a strong sense of arrival, offering a clear message that one is entering Williamsburg.

Improve the functional and visual character of the corridors, while maintaining a balance between convenient vehicular access and a quality pedestrian environment.

Achieve consistency in streetscape through simplicity of design, repetition of common landscape and streetscape elements, and placing of utilities underground.

Implement street improvements with an appropriate scale and capacity to serve long-range traffic demands, while respecting the environment and scale of the surrounding neighborhoods.

Support economic development by using publicly supported streetscape and landscape improvements to leverage and stimulate private investment.

Promote intergovernmental cooperation to improve the City's major entrance corridors, recognizing that the visual quality of these entrances transcend jurisdictional boundaries.

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• •

Reinforce standards contained in the Architectural Review Board’s Design Review Guidelines.

Develop design standards for landscaping, sidewalks, lighting and other streetscape elements, and incorporate these standards into the City’s zoning regulations.

Williamsburg Entrance Corridors

Corridor Specifics Richmond Road Richmond Road is the City’s predominant commercial corridor, serving as a transition from James City County to the heart of the City at College Corner, where Richmond Road meets Jamestown Road at the College of William & Mary. Great strides have been made over the past 20 years to enhance this corridor, and the greatest accomplishment has been the undergrounding of overhead utility lines from College Corner to the Dominion Power Easement near the City limits. Only one-half mile of the threemile corridor remains to be placed underground. Other recommendations that have been implemented include new street name and traffic signage, new City entrance signs, requiring monument signs for commercial uses, wider brick sidewalks and landscaping from Merchants Square to Scotland Street, planting a substantial number of trees in the median of the dual-lane section of Richmond Road west of the Dominion Power easement, and planting additional street trees from Brooks Street to New Hope Road.

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A number of improvements are still needed for the Richmond Road corridor. These include minimizing and consolidating the number of curb cuts for commercial properties, planting additional street trees where possible, and continuing to encourage the elimination or reduction of parking in front of commercial buildings (as has been done with Red, Hot and Blue, Applebee’s, Chili’s, and the General Store).

Monticello Avenue Monticello Avenue is a scenic entrance corridor into the City from the west, connecting directly to Route 199 and Route 5 in James City County. The importance of this corridor has increased because of the completion of Route 199, the construction of the Williamsburg-James City County Courthouse, the New Town development in James City County, and the designation of Monticello Avenue as the primary entrance to the College of William & Mary. Adequate greenbelts of at least 50 feet should be maintained along both sides of the road.

The Ironbound Road/Monticello Avenue intersection has been improved with new signage and landscaping identifying this entrance as an important gateway into the City. In the future, the wooded section of Monticello Avenue between Ironbound Road and Treyburn Drive should be improved as a “more refined parkway” without curb and gutter but with a multiuse trail connecting the College with New Town in James City County and with improved pedestrian connections to High Street and the Williamsburg & Monticello Shopping Centers.

The commercial section of Monticello Avenue, from Treyburn Drive to Richmond Road, has been greatly improved by underground wiring and landscaping, but may need additional improvements to accommodate additional traffic generated by redevelopment in the Midtown Planning Area.

Jamestown Road Jamestown Road connects the Downtown area to Route 199 and Jamestown and serves as an important entrance from the southwest. Jamestown Road should continue to retain its residential character along its southwest portion, with commercial uses limited to the area around the Route 199 intersection. Lake Matoaka provides a clear transition between the southwest portion of the corridor and its terminus at College Corner, with the campus of the College of William and Mary located along the north side bordered by residential and residential scale buildings along the south side of the road.

The “campus” character should be retained along the north side, but new development on the William & Mary campus should be compatible with the residential image of the south side. The lack of a sidewalk on the north side of the street in front of the College’s Phi Beta Kappa Hall interrupts the pedestrian flow along the corridor in the College area, and this gap should be eliminated. The new sidewalk and pedestrian crosswalk at the corner of Ukrop Way and Jamestown Road has improved the connectivity between the campus and students who live at Ludwell Apartments. The maintenance of the College properties on the south side of Jamestown Road from Cary Street to the Undergraduate Admissions Office should be improved, since their physical condition detracts from the well-maintained character of the rest of the corridor.

North Henry Street/Route 132 The North Henry Street/Route 132 corridor is a major access route from the north, connecting Interstate 64 with the Colonial Williamsburg Visitor Center and the Downtown. The portion of the route within the City (south of Bypass Road) retains its natural character because it follows the topography of the drainage swale, has little visible roadside development and has a heavily wooded edge.

The character of this corridor should be maintained by avoiding unnecessary pavement widening or excessive curb cuts. The City should continue to maintain the high quality landscaping at the northeast corner of North Henry Street and Lafayette Street, and the vacant lot on the southwest corner should be improved with landscaping and/or buildings as the City Square area is redeveloped.

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South Henry Street South Henry Street is the major access route from the south connecting Route 199 with the Downtown.

More importantly, the road section north of College Landing Park follows the historic route connecting Colonial Williamsburg with its southern port at College Landing on College Creek. The route retains much of its “country road” character with a natural landscaped edge and varied topography.

The gateway character of the South Henry Street/Route 199 intersection should be emphasized by protecting and enhancing the signage and landscaping in this area. The adjoining lower section of South Henry Street should continue to retain its rural character and the integrity of the historic route should be protected, and it should be continued to be designated as a greenbelt corridor. Views to College Creek, College Landing Park and the proposed Papermill Creek Park at the crossing of College Creek and South Henry Street should be emphasized through careful management of the roadside landscape. The mixed use character of the corridor from Mimosa Drive to Francis Street should be retained and enhanced, and redevelopment on the west side of the street between Mimosa Drive and Ireland Street should respect both the residential character to the south and the “campus” character of the National Center for State Courts and the College of William & Mary Law School.

Capitol Landing Road Capitol Landing Road serves as an important entrance into the City from the north, and follows the approximate location of the original eighteenth century road from Capitol Landing on Queen’s Creek into the Downtown. The present entrance corridor extends from the Route 143/Interstate 64 interchange in York County and continues across Queen’s Creek (the corporate limits) for approximately one mile until it meets the Colonial Parkway and Page Street. The northern section from Queen’s Creek to the Merrimac Trail intersection is predominantly undeveloped and wooded in character, while the remainder of the route to the Colonial Parkway is primarily commercial in character, with numerous opportunities for further development and redevelopment.

The section of the corridor from Queen’s Creek to the Merrimac Trail intersection is an important “gateway” into the City, and its importance will be increased as the land adjoining the corridor is developed. A cluster subdivision on the west side of Merrimac Trail called Queen’s Mary Port was approved for 41 lots in 2011. An important part of the design and approval was the provision of substantial landscape buffers along both Capitol Landing Road and Queen’s Creek. The Queen’s Creek buffer includes the future dedication of a conservation easement to the Williamsburg Land Conservancy to ensure its preservation. The majority of the road in this section is lined with mature trees and vegetation, and the greenbelt designation should be retained. The proposed future Capitol Landing Park at Queen’s Creek will further enhance the character of this corridor.

As the commercial portion of this corridor is developed and redeveloped, redundant entrances to individual parcels should be eliminated or consolidated. Underground wiring should be considered, with emphasis placed on removing cross street service lines. Sidewalks need to be extended toward Queen’s Creek when the areas west of the Merrimac Trail intersection are developed.

Second Street The Second Street corridor is dominated by auto-oriented commercial. The corridor was included in the Richmond Road and Second Street Streetscape Study, an in-depth analysis of the two commercial corridors that included specific recommendations for the visual improvement of the area. Suggestions included placing overhead utility lines underground, planting continuous street trees, improving the street lighting, screening of parking, new landscaping and signage. Based on this study, a specific streetscape plan for Second Street was developed and implemented in 1990-91.

There are several major parcels suitable for redevelopment east of Parkway Drive, which will present an opportunity to consolidate entrances and increase landscaping along the corridor. The placing of utilities underground should remain a future goal for this important corridor.

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York Street York Street enters the City from the east, and is the City portion of Route 60 from Route 199 to Page Street. This corridor parallels the CSX Railroad tracks and supports several businesses and four major hotels. A large portion of the southern frontage is owned and used by the Colonial Williamsburg Foundation and is part of the Historic Area. The corridor terminates at the “Tri-Corner” intersection on York Street where Lafayette Street, Page Street and York Street intersect. In 1997, the City relocated the granite curb and widened the asphalt paving between Page and Lafayette Streets to accommodate truck turning movements. In addition, new brick sidewalks and painted crosswalks were installed. Placing obtrusive overhead wires underground near the Williamsburg/James City County line is included in the Capital Improvement Plan for 2017.

In 2011 coordinated efforts by the three jurisdictions to enhance the Route 60 Corridor along York Street in the City to Busch Gardens in James City County resulted in a detailed plan for corridor improvements prepared by Carlton Abbott and Partners (Framework for the Beautification of the Route 60 Corridor Colonial Williamsburg East To Busch Gardens). In 2011 the three jurisdictions applied for a Virginia Transportation Enhancement Grant to implement this plan, but the grant was not funded. It will be resubmitted in 2013.

Page Street Page Street is not really an entrance corridor, but it provides an important connection between three other entrance corridors: Capitol Landing Road, Second Street and York Street. The section between the Colonial Parkway and Second Street is largely residential in character, and the east side of the street from Second Street to the CSX Railroad is commercial in character. There is a major redevelopment opportunity at the southeast corner of Page Street and Penniman Road, and the design for this area should be carefully reviewed because it is just across the railroad tracks from the eastern end of the Colonial Williamsburg Historic Area. Placing overhead wires underground between Penniman Road and Monumental Avenue is included in the Capital Improvement Plan for 2013. The character of Page Street is defined more by the buildings than the landscaping, and the Architectural Review Board should carefully evaluate plans for new and renovated building in this corridor.

Lafayette Street Lafayette Street, like Page Street, is not a formal entrance corridor. However, it provides an important connection between York Street and Richmond Road. The western end is anchored by the Arts and Cultural District in the Midtown Planning Area and the eastern end is defined by the Colonial Williamsburg Historic Area. This corridor traverses residential neighborhoods, the Williamsburg Municipal Center, Matthew Whaley Elementary School, and the Historic Area. Landscaping has been installed along the CSX Railroad between Henry Street and Botetourt Street to beautify the area between the street and the railroad, and across the street the rear yard of Matthew Whaley Elementary School has been defined by a decorative fence and landscaping creating a well-defined street edge. The most noticeable future changes for this corridor will be in the Arts and Cultural District, which was established

by City Council in February 2011 as a way to encourage and enhance the City’s creative economy as an economic development initiative.

BEAUTIFICATION ADVISORY COMMITTEE The Beautification Advisory Committee provides advice to Planning Commission and City Council on beautification issues, and has been meeting at least four times a year for over 20 years. In the last year, the Committee has created a vision to enhance the City’s character by encouraging individuals to get out of their vehicles and enjoy the City by foot and bicycle. They strongly recommend outdoor dining areas, wider sidewalks, pedestrian crosswalks, bike lanes, adequate lighting and colorful plantings in commercial and public areas to encourage visitors to return to Williamsburg. They suggest that a cohesive design for the streetscape be developed to include sidewalks, street lights, trash cans, bike racks,

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benches, signage and landscaping. Reducing on-street parking and creating a pedestrian friendly downtown is also strongly recommended.

In the past five years, the Beautification Advisory Committee has prepared the following beautification projects: • Plantings along the CSX tracks on Lafayette Street from North Henry Street to Botetourt Street.

• A landscape design for Prince George Street from Armistead Avenue to Scotland Street which includes new sidewalks and fencing.

• Encouraging development of a landscape design and wider sidewalks for Richmond Road from Merchant’s Square to Scotland Street to further enhance the walk ability of this area.

• Creating a landscape grant program for neighborhoods to use to beautify their entrances in the City by applying for a grant up to $500 towards plant material.

The Beautification Advisory Committee’s Vision Statement is included as Appendix A3.

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Chapter 6 Environmental Management URBAN LAND SUITABILITIES The 1989 Comprehensive Plan adopted a creative approach for determining the suitability of land for urban development, and recognized that the physical characteristics of the land allow it to “speak for itself.” For instance, it is evident that for commercial development, flat land works better and produces more useable area for development than steeply sloped land. Similarly, the lot yield in a residential subdivision is limited by the presence of steep slopes and wetlands. Thus, the physical planning process should recognize the fact that physical characteristics significantly impact the development potential of the land, and future land use recommendations should be made with these considerations in mind.

The analysis of these physical parameters were incorporated into the Zoning Ordinance in 1991, continued with the 1998 and 2006 Plans, and have been used as an important part of the future land use evaluation process for the 2013 Plan. These considerations include the following factors: • • • • • • • • •

Slopes in the 10-20% are generally suitable for urban uses and infrastructure.

Slopes in the 20-30% range begin to restrict the urban development potentials of individual parcels.

Slopes greater than 30% pose significant constraints for urban development and should not be used for construction unless specific waivers are granted.

Areas of significant archaeological and geologic features should be avoided to the extent possible.

Floodplains, tributary streams, tidal marshes, wetlands and major drainage channels are needed to maintain hydrologic equilibrium in the watershed and development of these areas should be avoided, and the development of adjacent areas should be allowed only under close scrutiny.

Significant and/or rare vegetative cover is an important part of the natural environment, and should be respected as vacant land is developed.

Future land uses adjoining developed areas must respect their architectural scale, density and character.

Land areas identified as necessary to accommodate public facilities, utilities and related infrastructure should be reserved.

Construction should be prohibited on land identified by the Zoning Ordinance as Chesapeake Bay Resource Protection Areas, and development on land identified as Chesapeake Bay Resource Management Areas should incorporate sufficient water quality management features to meet the standards described by Virginia’s Chesapeake Bay Preservation Act and Virginia Stormwater Management Regulations.

By applying these parameters to the land that is available for development and redevelopment, conclusions can be drawn for the suitability of the land, the most appropriate uses, the location of “sensitive environmental areas” on which development should be restricted, and the location of land which should be reserved for public facilities and infrastructure improvements.

When looking specifically at residential land, the concept of “net developable acreage,” as introduced in the 1989 Plan, provides a rational approach for estimating its development potential. The “net developable acreage” methodology, based on slope and environmental analysis, allows for a better estimate of a given property’s development capacity. For example, an area with a gross acreage of 100 acres, but having 20 net acres of land which have been identified as “sensitive environmental areas,” would yield 80 “net developable acres”. When the “net developable area” concept is used in conjunction with site planning for individual development projects, the zoning district regulations will, in effect, combine conventional zoning standards with environmental performance standards. The end result is an implementation process which is responsive to the physical characteristics of the land.

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Map 6-1

OPEN SPACE An important element of the City’s character is its system of greenbelts and open spaces. These open space areas are generally depicted on the Future Land Use Map as “Sensitive Environmental Areas and Resource Protection Areas,” “Parks, Parkway and Recreation,” and “Greenbelts.”

Regulation A primary means of control of this open space is through the implementation of the City’s Chesapeake Bay Preservation Districts. The RPA (Resource Protection Area) requires a 100 foot buffer from the edge of a wetland or shoreline, and this can result in major areas of open space around and through developments such as Holly Hills, Savannah Green, Quarterpath at Williamsburg (Riverside) and Queen Chapter 6 – Environmental Management

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Mary’s Port. Approximately 16% of the City’s land area is designated as Resource Protection Areas, and another 45% is designated as RMA (Resource Management Areas) - this comprises land within 500 feet of an RPA. This is shown on Map 6-2: Chesapeake Bay Preservation Areas.

Map 6-2 Chesapeake Bay Preservation Areas

Another means of regulatory control is the requirement of maintaining a certain percentage of a site as landscaped open space. This is required in the City’s multifamily residential and most of the nonresidential zoning districts, and ranges from 15 to 50 percent. In addition, cluster subdivisions require that at least 25 percent of the gross land area of the subdivision be maintained as open space. These requirements can be further enhanced in those areas where greenbelts are mandated, as discussed later in this chapter.

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Acquisition The City should continue to actively investigate and pursue opportunities to acquire open space. There are several examples of the positive impacts of this program: • The 1979 purchase of an additional 14 acres for Kiwanis Park.

• The 1987 purchase of the Minor’s Store property at Capitol Landing Road and Page Street, jointly funded by the City and the Colonial Williamsburg Foundation. The store was demolished, and the property was landscaped to become Minor Park.

• The 1988 purchase of the College Woods property beside and behind Berkeley Middle School on Strawberry Plains Road. This property was formerly approved for a 130 lot single family subdivision. The rear 37 acres was exchanged with William & Mary and the remaining 13 acres is designated for development as Mixed Use land use.

• The 1996 purchase of the remaining 160 acres of the proposed Holly Hills subdivision. This allowed for the establishment of the 105 acre Richneck Conservation Area which will be preserved for open space and utilized as part of the City’s Chesapeake Bay preservation program, through its designation as Regional Reserved Open Space. This acquisition allowed the preservation of the viewshed from College Landing Park and from Route 199.

• The 1996 land exchange agreement with the College of William and Mary. The City received 37 acres on the east side of South Henry Street north of Papermill Creek, and the College received 37 acres behind Berkeley Middle School as described above. This exchange allowed the College to further preserve the Lake Matoaka watershed, and will allow the City to develop a passive park on the north shore of Papermill Creek. Restrictive covenants were placed on both properties to preserve their use as passive open space.

• The 2006 acquisition through zoning proffers of 21.4 acres on Quarterpath Road for Redoubt Park. This park complements the development of the Quarterpath at Williamsburg mixed use development, and preserved important Civil War redoubts that were used for the defense of Williamsburg. An incentive for the donation of the land for Redoubt Park was the fact that the land area could still be used toward calculating the residential density for the development.

The City should continue the acquisition program with the highest priority placed on obtaining the Capitol Landing Park site and the College Creek nature area. The Capitol Landing site on the east side of Capitol Landing Road at Queen’s Creek will allow the City to preserve the historic site of one of Williamsburg’s colonial ports, and this land should become a passive park similar to College Landing Park, the City’s other colonial port. The College Creek Nature Area, approximately 40 acres bounded by South Henry Street, Route 199 and College Creek, should be preserved as undeveloped open space to help South Henry Street retain its character as a scenic entrance corridor, but a small area adjacent to College Landing Park could be linked to the park through an extension of the existing marsh walk. The College Creek Nature Area and the contiguous lands of College Landing Park, Richneck Conservation Area, Papermill Creek Park (proposed) and Great Neck Picnic Area (closed) comprise 200 acres of passive open space, forming a major open space area in the southern section of Williamsburg.

A small, but important, parcel should be preserved as open space in the Municipal Center area. This one acre area between the First Baptist Church and the Crispus Attucks PUD was proposed as open space with the development of the Armistead Avenue PUD in 1974, but was not shown as open space in the 1989 and 1998 Comprehensive Plans. It should be designated as Parks, Parkway, Recreation land use on the Future Land Use Map, and remain as a passive open space.

Institutional Preservation While the City’s parks and parkways are essential elements of the open space system and are “protected” because of their public ownership, the preservation of land by the Colonial Williamsburg Foundation and the College of William and Mary greatly contribute to the quality of Williamsburg’s environment. The Colonial Williamsburg Historic Area is the preeminent open space in the City, listed on the National Register of Historic Places, and expanded by 128 acres in 2002. College of William and Mary designates Chapter 6 – Environmental Management

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substantial portions of its land for preservation, including the 245 acres of College Woods. This large area is complements the landscaped grounds of the Main Campus. The College and the Colonial Williamsburg Foundation together provide the City with a quantity and quality of open space that is unmatched by any other City in the Commonwealth.

GREENBELTS A successful recommendation of the last three Comprehensive Plans has been for the establishment of greenbelts. Designated greenbelts are intended to be left in an undisturbed natural state, unless modifications are approved by the City. Any modifications should preserve the landscaped and tree-lined character of the streets. The Zoning Ordinance requires a 50 foot greenbelt along designated streets, and 75 feet along Route 199. This standard has been applied successfully to designated streets bordering Holly Hills, Holly Hills Carriage Homes, Richmond Hill, The Oaks, Brandywyne and Spring Arbor Assisted Living Facility, and will be applied to the new Quarterpath at Williamsburg development.

Map 6-3: Greenbelts

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Approximately 13 miles of greenbelts are identified on Map 6-3: Greenbelts, and are described below: • • • • • • • • •

Monticello Avenue -- north and south sides of the street from Ironbound Road to Treyburn Drive Jamestown Road -- north side of the road between the Citizen and Farmers Bank and Campus Drive-- south side of the road from Route 199 to Lake Matoaka Bypass Road -- north and south sides of the street from Route 132 to Capitol Landing Road Capitol Landing Road -- both sides of the street from Queens Creek to just beyond the Merrimac Trail intersection Route 199 -- north side of the street from the City Water Tower to the Route 60 East/Route 199 interchange North Henry Street --both sides of the street from Bypass Road to the CSX railroad South Henry Street --both sides of the street from Route 199 to Mimosa Drive Merrimac Trail -- east side of the road from just south of Capitol Landing Road to the Virginia Power Easement Strawberry Plains Road -- east side of the road from John Tyler Highway to the Strawberry Plains Planning Area boundary (except for the Mt. Pleasant Professional Center)

Greenbelts will continue to play a prominent role in preserving community character, since they are located along important entrance corridors and connecting thoroughfares, as well as adjacent to major economic development areas. By protecting greenbelts, the City will ensure that the aesthetic form and function of these important corridors are preserved.

SHORELINE ACCESS The City has reviewed the Hampton Roads Shoreline Erosion and Public Access Study as part of the development of the Comprehensive Plan. The only access area identified in the study is along Queens Creek, and a portion of Queens Creek is planned to be incorporated into the Capitol Landing Passive Park. Other shoreline access opportunities in the City include the existing College Landing and Waller Mill Parks, the proposed Papermill Creek and College Creek Passive Parks, as well as the College Creek Nature Area. All of these parks are discussed in the Parks and Recreation section of Chapter 11 – Infrastructure, page 12-18. Even when not accessible through park land, the shorelines in the City are protected through the Chesapeake Bay Preservation and Floodplain regulations in the Zoning Ordinance.

STORMWATER MANAGEMENT Almost all site development projects affect storm or surface runoff in some way as they typically result in changes to the surface character of the site, which alter runoff patterns in terms of rate, volume and direction. Construction activities can also generate sediment and nutrient loading issues, and impervious pavements increase both the volume of stormwater runoff and the magnitude of peak flood flows.

Furthermore, runoff from urban areas is often polluted with nutrients, oils and toxic metals. The contemporary approach is to develop a comprehensive, integrated stormwater management program which addresses the effects of storm runoff on water quality in addition to volume and rate of runoff.

Water Quality Issues. Best Management Practices (BMPs) are a major component in stormwater management practices, and are measures that have been developed to control, store and/or treat stormwater runoff from developed areas for the purpose of reducing flooding or removing pollutants while maintaining or enhancing environmental quality. BMPs have been incorporated throughout the City as a principal measure in the City’s stormwater management strategy. Their effectiveness depends on the removal mechanism used, the fraction of the annual runoff that is effectively treated and the nature of the pollutant being removed. With thoughtful site design, regular maintenance and creative landscape architecture, most BMPs can be not only efficient and utilitarian, but also an attractive (or at least unobtrusive) addition to any community.

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Water Quantity Issues. As land is developed, the area of imperviousness almost always increases. If measures are not taken during the design of stormwater management facilities, this increased rate of flow and volume can cause downstream flooding and erosion and sedimentation problems. The use of properly designed stormwater management facilities can provide a solution to these problems. The City’s Erosion and Sedimentation Control Ordinance addresses these issues, and requires all developers to convey runoff to adequate channels, or to prevent an increase of runoff from their properties.

Watershed Delineation. For planning purposes, the City of Williamsburg can be broken into six major watersheds. Four of these watersheds lie within the James River Basin (Chisel Run, College Creek, Paper Mill Creek and Tutter’s Neck), while the other two watersheds (Queen’s Creek and Waller Mill Pond) contribute to the York River basin. Overall, Williamsburg is located on a ridge with 1,333 acres in the City located in the York River watershed and 4,457 acres located in the James River watershed.

Stormwater Management Plan. The City’s Comprehensive Stormwater Management Plan, adopted in 1996 and amended in 1998, defined a comprehensive approach to managing stormwater runoff. This Plan provided a comprehensive and unified framework for stormwater management that addressed water quantity and water quality issues and offered detailed recommendations for the proper implementation of Best Management Practices. The major components of this plan are: Emphasize regional BMPs. In many cases, regional City-owned BMPs are preferable to small, onsite facilities. Large BMPs serve a larger drainage area and are usually more cost effective to construct and maintain than several smaller on-site BMPs. They also have greater potential to control downstream flooding and other water quantity problems caused by development. To limit the number of small on-site BMPs, the Stormwater Management Plan requires a development to utilize a regional facility if it cannot be served by a BMP facility such as a retention pond that has a drainage area of 10 or more acres or a detention facility that has a drainage area of 24 acres or more. The construction of regional facilities will depend largely on the pace and scale of future development.

Establish Regional Reserve Open Space. An alternative to the structural regional BMP is the establishment of Regional Reserve Open Space. This concept, approved by the Chesapeake Bay Local Assistance Board, allows the City to place restrictive covenants on open space that is purchased for preservation and passive open space. Since this land cannot be developed, the land area can be used to offset impervious land area in proposed developments. This has the dual advantage of encouraging the purchase and preservation of passive open space while reducing the need for small, on-site stormwater management facilities. Two Regional Reserve Open Space areas have been established: the College Creek Conservation Area and the Papermill Creek Conservation Areas (future site of the Papermill Creek Park). These are shown on Map 6-4: Stormwater Management Facilities.

Maintain a regional BMP credit system. The City has adopted a system, endorsed by the State’s Chesapeake Bay Local Assistance Department, which allows the sale of BMP credits to qualifying developers. For instance, instead of building a small on-site facility, the developer could “buy-in” to a regional facility or regional reserve open space if available. The key to this arrangement is that a regional facility or regional reserve open space must exist and must have excess credits available for sale. The advantages of such an arrangement to the developer are that he does not have to reserve land for an on-site facility, nor be committed to long-term maintenance requirements. The advantages to the City are fewer facilities to monitor and inspect, with improvement to overall stormwater quality and aesthetic improvements. The City maintains three regional BMPs: Skipwith Pond and Strawberry Plains detention facility in the James River watershed, and Haynes Pond in the York River watershed. Two Regional Reserve Open Space areas have also been established, both located in the James River watershed: the Rich Neck Conservation Area (105 acres) and the Papermill Creek Conservation Area (37 acres - future site of the Papermill Creek Park).

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Map 6-4 Stormwater Management Facilities Existing Regional BMP

Proposed Regional BMP

Existing Major Private BMP

Regional Reserve Open Space Skipwith Pond

Watershed Boundary

York River Watershed

Haynes Pond

High Street Pond

Strawberry Plains BMP

James River Watershed Papermill Creek

Rich Neck

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2013 Williamsburg Comprehensive Plan 6-8

Administer a Stormwater Management Facility Inspection Program. BMPs require regular maintenance to ensure that the facilities operate properly, and the City requires a maintenance agreement from the owners of private BMP structures to ensure that they are properly maintained.

The City inspects all private BMP structures that have a maintenance agreement. Maintenance guidelines for BMP facilities are presented in the Williamsburg Stormwater Design Manual that was developed concurrently with the Stormwater Management Plan.

Administer a Stormwater Management Ordinance. The City has adopted a stormwater management ordinance to augment the existing Chesapeake Bay Preservation and Erosion and Sedimentation Control Ordinances. These regulations are designed to help prevent illicit discharges and dumping into storm drains, and grant the City the legal tools to implement the strategies outlined in the Comprehensive Stormwater Management Plan. These tools include the prohibition by law of putting any gasoline, oil, antifreeze or other pollutants into the storm system. It also prohibits anyone from putting anything in the gutter, ditch, storm drain or other drainage way that impedes or interferes with the free flow of stormwater. Chlorinated swimming pool water also cannot be discharged into the City storm drain system. The ordinance also implements the credit system allowing the sale of water quality credits, thereby providing developers a means to share in the cost of regional stormwater management facilities. This ordinance must be updated and adopted by July 1, 2014, and more stringent water quality standards need to be included for new development.

Phase II EPA Stormwater Regulations. In 2003, the City obtained a permit for municipal stormwater discharges under the State’s VPDES General Permit for Small Municipal Separate Storm Sewer Systems (MS-4 Permit). This was required by the Federal Clean Water Act for jurisdictions located in an urbanized area as defined by the U.S. Census. Six minimum control measures needed to be satisfied: public education and outreach on stormwater impacts, public involvement and participation, illicit discharge detection and elimination, construction site stormwater runoff control, post-construction stormwater management in new development and redevelopment, and pollution prevention and good housekeeping measures for municipal operations. The City’s Stormwater Management Ordinance that was adopted in 1996 and amended in 1998 and 2008 was a major factor helping the City to meet these requirements. The MS-4 Permit will need to be renewed in 2013, and it must include in the program strategies to meet the EPA’s mandated Chesapeake Bay TMDL (total maximum daily load), by authority of the Clean Water Act. The City must reduce nitrogen, phosphorus, and sediment loads that are delivered to the Chesapeake Bay in drainage water that flows from the City. Strategies that can be utilized to meet these requirements include: • Retrofit when possible to provide treatment of runoff from existing development • Reduce runoff volumes by reducing impervious areas, such as by using porous surfaces for parking areas • Use nutrient management plans, including the state imposed phosphorus ban on fertilizers • Eliminate septic systems • Increase street sweeping • Encourage tree protection and land use conversion by reforestation • Enforce 30% slope restrictions • Protect wetlands • Implement SSO (sanitary sewer overflow) improvements that rehabilitate the City’s sanitary sewer system to reduce spills and overflows into state waters Chesapeake Bay Preservation. It is important that future development not encroach on the natural stream valleys and other sensitive environmental areas that have been designated for conservation by the Comprehensive Plan. These sensitive environmental areas, shown on Map 6-4 on the following page, are regulated by the Chesapeake Bay Preservation Ordinance and the City’s site planning regulations. The Chesapeake Bay Preservation regulations, in place since 1989, are designed to protect and improve the water quality of the Chesapeake Bay, its tributaries, buffer areas and other sensitive environmental lands 2013 Williamsburg Comprehensive Plan

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by minimizing the potential adverse effects of human activity upon these areas. The ordinance prohibits non-water-dependent development within identified resource protection areas. It also establishes performance standards for the development of land in preservation areas which are designed to establish the means to reduce areas of land disturbance, minimize erosion and sedimentation potential, reduce the land application of nutrients and toxins and maximize rainwater infiltration. The standards are also intended to prevent a net increase in non-point source pollution from new development and to achieve a ten percent reduction in non-point source pollution from redevelopment.

Capital Improvement Programming. In addition to these major policy recommendations, the Stormwater Management Plan included 21 specific recommendations targeted for inclusion in the City’s Capital Improvement Program (CIP). The project selection criteria used to evaluate the recommended projects were based on the following items: safety, quality and quantity benefits and beautification. As of Fall 2012, 15 of the 21 recommendations have been completed. Two of the remaining six projects are in the planning stage, and the other four have been determined as not feasible. In addition to the 21 original recommendations, 14 additional stormwater management improvements have been completed, and six more have been included in the CIP.

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2013 Williamsburg Comprehensive Plan 6-10

Chapter 7 Land Use Categories EXISTING LAND USE Based on a land use survey conducted by the Planning Department in October 2011, 52% of the City’s 5,780 acres was developed. The various land use categories are listed in the table on the following page.

Future development patterns will be greatly influenced by these existing land use patterns.

Residential There are 864 acres (15%) developed for residential use. Of the residential total, 75% is devoted to single-family detached dwellings (including room rentals to visitors). Duplexes and townhouses make up 5%, and condominiums and apartments are 20% of residential total.

Commercial There are 337 acres (6%) developed as commercial and office use, located in the downtown area and along the major commercial entrance corridors. Unlike most similarly-sized communities, the majority of this commercial land area is tourism-oriented, and developed as hotels, restaurants and retail establishments serving Williamsburg’s visitors.

Institutional There are 874 acres (15%) devoted to institutional use, made up of the holdings of the Colonial Williamsburg Foundation and the College of William and Mary. The Colonial Williamsburg Historic Area and the campus of the College provide substantial amounts of open space for passive recreational activities. The developed area of the College of William & Mary (Main Campus, Law School Campus and Dillard Complex) comprises approximately 321 acres (5% of the City), while Colonial Williamsburg Foundation occupies approximately 553 acres (10% of the City), including the 301 acre Historic Area.

The College owns a significant portion of the City’s undeveloped land, totaling 565 acres, Williamsburg’s quality and character has been, and will continue to be, greatly influenced by these institution’s development decisions.

Public and Semi-Public There are 190 acres (3%) devoted to public and semi-public use. This includes government facilities, churches, public and private schools, fraternal organizations, nursing homes and cemeteries.

Transportation There are 577 acres (10%) devoted to transportation use. This includes public streets (the largest component), and, in descending order, private streets, College streets and the CSX Railroad.

Parks, Open Space and Environmentally Sensitive Areas There are 335 acres (6%) devoted to parks, recreation and parkway use. This is supplemented by 980 acres (17%) of sensitive environmental areas and surface water features, with a majority of this area regulated by the City’s Chesapeake Bay Preservation regulations. This park land and open space provides a generous amount of active and passive recreational opportunities.

Vacant land There are 1690 acres (29%) of vacant property bordering the “active” uses described above This represents land available for residential, commercial, college and mixed use development, but does not include land designated as sensitive environmental areas and surface water areas. A large portion of this vacant land, including High Street on Richmond Road and Quarterpath at Williamsburg at the southeast corner of the City, is slated for development in the near future.

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2012 LAND USE CATEGORY

ACREAGE PERCENT OF TOTAL

RESIDENTIAL Single Family Detached Duplex Townhouses Condominiums Apartments Room Rental to Visitors Total Residential COMMERCIAL Office, Banks and Financial Institutions Retail Shopping Center Restaurants Hotel and Motel Automotive Mixed Commercial other Total Commercial INSTITUTIONAL CW Historic Area CW Support Facilities William and Mary Total Institutional PUBLIC & SEMI-PUBLIC Government Churches Public Schools Private Schools Fraternal Organizations Nursing Homes Cemetery Total Public & Semi-Public TRANSPORTATION Public Rights-of-Way Private Rights-of-Way Railroad Rights-of-Way Total Transportation PARKS, RECREATION & PARKWAY Public Private Colonial Parkway Total Parks, Recreation & Parkway ENVIRONMENTAL Surface Water Area Conservation Area Environmentally Sensitive Areas Total Environmental VACANT Residential Commercial Mixed Use College Total Vacant

TOTAL CITY LAND AREA

632 19 26 68 107 12 864

15%

36 27 64 41 117 14 18 20 337

6%

212 341 321 874

15%

37 37 50 32 1 14 19 190

3%

464 68

45 577

10%

83 81 171 335

6%

131 107 742 980

17%

799 67 193 565 1624

28%

5,781

Chapter 7 – Land Use Categories

100.0% 2013 Williamsburg Comprehensive Plan

7-2

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LAND USE CLASSIFICATIONS The Comprehensive Plan assigns land use classifications for the optimal arrangement of land uses in the City. These are shown on the Future Land Use Map, which summarizes the recommendations contained in the text of the Plan. The following descriptions illustrate the types of uses that are recommended for each category. Recommendations for revisions to the Zoning Ordinance to implement these planned land uses are discussed in Chapter 12, Implementation.

Residential Categories Williamsburg’s neighborhoods accommodate a variety of residential dwelling types and densities. The Plan’s goals and objectives seek to encourage well designed and appropriately located neighborhoods to maintain an appropriate mix of housing types. Six separate residential planning categories are proposed, ranging from low density single family residential to high density urban residential.

1. Low Density Single Family Detached Residential 3 du/net ac.

This category addresses the lowest intensity of residential development - large lot single family detached residential areas – with densities of up to 3 dwelling units/net acre. Lot sizes will generally range from 10,000 SF to 20,000 square feet. This category is implemented by the RS-1, RS-2 and PDR zoning districts.

2. Medium Density Single Family Detached Residential 5 du/net ac.

These land areas are planned for single family detached residences developed at a moderate density of up to 5 dwelling units/net acre. This category is intended to promote the development of affordable detached housing on small lots located within master planned, neo-traditional styled subdivisions. Lot sizes will generally range from 5,000 to 7,000 square feet. This category is implemented by the RS-3 zoning district, by special use permit cluster subdivision regulations in the RS-2 zoning district, and by the PDR zoning district. The maximum density allowed for cluster subdivisions in the RS-2 District and for PDR Districts should be reduced from 6 dwelling units/net acre to 5 dwelling units/net acre to correspond with this category.

3. Medium Density Multifamily Residential 8 du/net ac.

Duplexes, townhouses and apartments with densities of up to 8 dwelling units/net acre are recognized by this land use category. Design standards must be applied to ensure adequate off street parking, open space and compatibility with surroundings, especially existing residential neighborhoods. Apartments and other forms of multi-family dwellings may be allowed by special use permit in certain areas within this residential category if they are properly designed.

This category is implemented by the RM-1 zoning district.

4. High Density Multifamily Residential 14 du/net ac.

This land use category is applied to the City’s high density multifamily residential areas. There are three major areas in the City that fit this category: Merrimac Trail, Mt. Vernon Avenue, and Patriot Lane. Each of these areas incorporates low rise, garden-styled apartments (up to three stories) at a density of up to 14 dwelling units/net acre. This category is implemented by the RM2 zoning district.

5. Downtown Residential 8 or more du/net ac.

This land use category is designed specifically for the west side of South Henry Street south of South Boundary Street, a residential area located in the Downtown Planning Area that is suitable for higher density residential use. A variety of housing types are allowed with a base density 8 dwelling units/net acre. Townhouses, multifamily dwellings and increased density are allowed with a special use permit. The primary consideration for the approval of increased density should be how the scale and character of the proposed project relates to existing neighborhoods and nonresidential development in the area. This category is implemented by the RDT zoning district.

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2013 Williamsburg Comprehensive Plan 7-4

6. Urban Residential Density determined when property rezoned This land use category is designed specifically for the multifamily residential area in the Midtown Planning Area that is suitable for redevelopment to a higher density residential use. This area located between the College of William and Mary and the High Street Williamsburg development, and interconnected by a growing network of sidewalks, bike lanes and public transit. The proximity of this area to the College makes it very attractive for helping to meet the need for college student housing, and only multifamily dwellings and student dwellings are allowed. The permitted dwelling unit occupancy is two unrelated persons in an efficiency or one bedroom dwelling unit, and four unrelated persons in a two or more bedroom dwelling unit.

The existing RM-2 zoning should remain in place until an acceptable development plan is presented for rezoning to a revised PDU Planned Development Urban District, with the density allowed determined through the rezoning process. The primary consideration for the density approved should be how the scale and character of the proposed project relates to its immediate surroundings and to the Midtown Planning Area as a whole.

Office, Commercial and Mixed Use Categories The Land Use Plan designates five office, commercial and mixed-use classifications. These range in intensity from Office and Mixed Use to Downtown and Urban Commercial, with Corridor Commercial holding the middle ground.

1. Office The office land use category accommodates primarily offices and financial institutions as low density transitional uses between residential neighborhoods and higher intensity business uses.

This land use is intended for outlying areas including Strawberry Plains Road, John Tyler Lane, Monticello Avenue and Capitol Landing Road. The basic permitted uses are offices and financial institutions. Residential uses are not allowed. To supplement the permitted office uses, convenience service establishments such as barber shops, beauty parlors, tailors and shoe repair shops should be allowed as permitted uses. A limited range of related low-intensity commercial uses could also be allowed with a special use permit. This category is implemented by the LB-4 zoning district.

2. Downtown Commercial 14 or more du/net ac.

The Downtown Commercial land use category is intended to promote a variety of business uses in the Downtown Planning Area, and includes Merchants Square and other predominantly retail business areas adjacent to the Colonial Williamsburg Historic Area and the College of William and Mary. Continued use and adaptation of residential dwellings is supported in the Downtown area, and residential uses are allowed at a base density of 14 dwelling units/net acre, with increased density allowed with a special use permit. The primary consideration for the approval of increased density should be how the scale and character of the proposed project relates to its immediate surroundings and to the Downtown Planning Area as a whole. This category is implemented by the B-1 zoning district, and by the PDC District for student dwellings with up to four unrelated persons per dwelling unit.

3. Corridor Commercial 14 du/net ac.

This land use category designates land on the City’s heavily traveled entrance corridors for commercial and service uses primarily oriented to the automobile. This category applies to local shopping areas, hotels, restaurants and other tourism retail uses, as well as automobile-oriented commercial uses. Substantial sections of Richmond Road, Capitol Landing Road, York Street, Second Street and the small portion of Mooretown Road located within the City limits are currently developed in this land use pattern. To ensure high quality development, the more intensive commercial uses should require special use permits. Corridor Commercial land use is 2013 Williamsburg Comprehensive Plan

Chapter 7 – Land Use Categories 7-5

intended to promote the City’s economic development policy for its limited, remaining highvisibility commercial sites.

Residential are allowed in Corridor Commercial areas but only as townhouse or multifamily residential combined with non-residential uses in a mixed-use format. Residential density is up to 14 dwelling units/net acre. To allow more flexibility, the current prohibition of rental housing should be eliminated. No more than 67% of the floor area on an individual lot should be devoted to residential use, which ensures that valuable commercial land is not completely used for residential purposes. All residential uses (apartments, condominiums and townhouses) should require a special use permit to ensure compatibility with corridor commercial uses. This category is implemented by the B-2 zoning district.

4. Urban Commercial 14 or more du/net ac.

Urban Commercial designates the City’s most urban commercial corridor along Richmond Road between Monticello Avenue and Bypass Road, and along Monticello Avenue from Richmond Road to Treyburn Drive. The City’s two oldest shopping centers are located in this area, which includes a mix of retail, office and service businesses, as well as hotels and timeshares and a small number of apartments. Because the Urban Commercial area is located close to downtown and the College of William and Mary, it has much potential for future major redevelopment as a mixed use area with housing for both college students and senior citizens. Maintaining a strong commercial component is essential, and an appropriate mix of retail space needs to be retained to serve the needs of the downtown area, including basic uses like grocery, hardware and drug stores.

Residential uses in the Urban Commercial area are allowed only as multifamily combined with non-residential uses in a mixed-use format. To encourage mixed use redevelopment, the base residential density should remain 14 dwelling units/net acre, but additional density should be allowed with a special use permit. The primary consideration for the approval of increased density should be how the scale and character of the proposed project relates to its immediate surroundings and to the Midtown Planning Area as a whole. Residential use is limited to no more than 67% of the floor area on an individual lot to ensure that valuable commercial land is not completely used for residential purposes, and a special use permit is required so that impacts to the surrounding commercial areas can be considered. Student dwellings should be added as special use permit use with a permitted dwelling unit occupancy of two unrelated persons in an efficiency or one bedroom dwelling unit, and four unrelated persons in a two or more bedroom dwelling unit. Building height should remain 45 feet. This category is implemented by the B-3 zoning district, with modifications.

5. Mixed Use 8 or more du/net ac.

The Mixed Use land use category is intended to provide a degree of flexibility in land uses to be developed in areas suitable for a mixture of residential and commercial uses. Incorporating a potential range of residential, office, and moderately-scaled commercial uses, mixed use development should be subject to a thorough urban design review which stresses quality architecture, proper building siting, and well designed landscaping. Equally important, this category should promote the preservation, revitalization, and adaptive reuse, where appropriate, of existing historic structures. The density of the residential component of mixed use development should be appropriate to the character of the area. Mixed Use land use is designed to be more limited than Downtown Commercial, Corridor Commercial and Urban Commercial land use, but more flexible than Office land use.

Mixed Use is implemented by the LB-1 Limited Business Downtown District for the North Henry/North Boundary Street area north of Merchants Square, the South Henry Street Residential area south of Merchants Square, and the Blayton Building property at 613 Scotland Street. The Chapter 7 – Land Use Categories

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LB-1 zoning district allows a mixture of residential and commercial uses that are more restricted than the adjacent B-1 Downtown Business District. Residential uses are allowed at a base density of 14 dwelling units/net acre, with increased density allowed with a special use permit. The primary consideration for the approval of increased density should be how the scale and character of the proposed project relates to its immediate surroundings and to the Downtown Planning Area as a whole. To address the increased need for senior housing in the future, special provisions should be added to allow senior housing with reduced off-street parking requirements with a special use permit. Residential yard and height requirements should also be imposed to preserve the transitional scale and character of the area.

Mixed Use is implemented by the LB-2 Limited Business Neighborhood District for the Arts and Cultural District area on Richmond Road and the area south of Berkeley Middle School on Strawberry Plains Road. The LB-2 District allows a range of uses including single family and duplex dwellings, banks, bake shops, hotels with 10 or less rooms, museums and art galleries, offices, restaurants and retail stores. More intensive uses, such as multifamily dwellings, hotels with more than 10 rooms, larger restaurants and retail stores, and buildings with a floor area exceeding 10,000 square feet require a special use permit. Residential uses are allowed at a base density of 8 dwelling units/net acre, and up to 14 dwelling units/net acre with a special use permit.

Mixed Use is implemented by the revised LB-3 Limited Business Residential District for area between Penniman Road and the CSX Railroad, and for the area around The Beeches at 1030 Capitol Landing Road, both located in the Northeast Triangle Planning Area. The revised LB-3 District will allows a range of uses including single family and duplex dwellings, banks, bake shops, hotels and timeshares, museums and art galleries, offices, restaurants and retail stores.

Special use permits will be required for permitted residential uses (townhouses and multifamily dwellings) and for buildings with a floor area exceeding 10,000 square feet. Residential density is 14 dwelling units/net acre. The existing zoning for these areas should remain in place until an acceptable development is presented for rezoning to a revised LB-3 zoning district.

Economic Development Category The Land Use Plan designates one economic development land use classification.

1. Economic Development 10-12 du/net ac.

The Economic Development land use category is intended to encourage economic development activities that provide desirable employment and enlarge the City’s tax base. Large new mixed use developments can contribute to the City’s character and economic well-being by having a well designed mix of uses, rather than being a monolithic commercial, office, health care or residential development. This land use category expands the historic mixed use concept beyond the core area of the City into two large areas for future development – the High Street Williamsburg development on Richmond Road, and the Quarterpath at Williamsburg (Riverside) development on the east side of Quarterpath Road.

The development of areas designated as Economic Development land use should address a range of important goals stated by the Comprehensive Plan, including: protect and enhance Williamsburg’s unique character; encourage conservation of open space; encourage high quality commercial and institutional development; encourage adequate housing opportunities; encourage appropriate scale and character for new residential development; improve and expand bicycle and pedestrian facilities; and preserve scenic vistas, natural areas and historic sites on public and private land.

This category is implemented by the ED and ED-2 zoning districts. To ensure that the majority of the Economic Development land is developed for tax-generating commercial, entertainment, 2013 Williamsburg Comprehensive Plan

Chapter 7 – Land Use Categories 7-7

office, and medical uses, areas used exclusively for residential use should be limited to a minority of the land use in each of the Economic Development areas designated by the Plan. Residential density is up to 10 dwelling units/net acre for the ED District, and up to 12 dwelling units/net acre for the ED District.

Institutional Categories The institutional categories include the Colonial Williamsburg Historic Area, Colonial Williamsburg Support, Colonial Williamsburg Resort and the College of William and Mary. The four institutional use designations are designed to accommodate the variety of uses necessary for the Colonial Williamsburg Foundation and the College of William and Mary.

1. Colonial Williamsburg Historic Area This district encompasses the Colonial Williamsburg Historic Area and is established to preserve, protect and maintain the distinctive character and historic importance of the restored area. This category is implemented by the CW zoning district.

2. Colonial Williamsburg Support The Colonial Williamsburg Support uses include a variety of commercial and industrial facilities that support the functioning of the Colonial Williamsburg Historic District. The Visitor Center, Bruton Height Education Campus and the Colonial Williamsburg Nursery fall under this category. This category is implemented by the MS zoning district.

3. Colonial Williamsburg Resort The Colonial Williamsburg Resort uses include the Williamsburg Inn, Williamsburg Lodge and Conference Center, Spa and the Golden Horseshoe Golf Courses. These facilities also support the functioning of the Colonial Williamsburg Historic District, but by accommodating visitors rather than providing support services. This category is implemented by the MS and RS-1 zoning districts.

4. The College of William and Mary The College of William and Mary classification identifies the major land holdings of the College of William and Mary. It recognizes that the City cannot regulate the use of land owned by the College; yet these lands are an integral part of the City’s character and future development and are critical to successful corridor planning and environmental preservation goals. Together, the City and the College must be committed to cooperative planning for the development and redevelopment of the College’s property. This category is “implemented” by the WM zoning district.

Public/Recreation/Conservation Categories This land use designation is divided into three areas - Public/Semi-Public, Parks/Parkway/Recreation, and Sensitive Environmental Areas. These areas warrant special attention and regulatory oversight and must be carefully managed to maintain public resources for future generations.

1. Public and Semi-Public Areas Public and Semi-Public uses are generally institutional buildings and lands. These uses include the Municipal Center, Court House, public and private schools, hospitals, religious uses, and cemeteries.

2. Parks, Parkway and Recreation Areas This category encompasses parks, parkways and recreation facilities which are owned by the City or the Federal Government. These lands are used for City park purposes, or are part of the Colonial Parkway, which links Yorktown, Williamsburg and Jamestown.

3. Sensitive Environmental Areas This category designates the lands that have physiographic characteristics critical to the Chapter 7 – Land Use Categories

2013 Williamsburg Comprehensive Plan 7-8

ecological stability and water quality of the region. The protection of these areas is one of the primary goals of this Comprehensive Plan and any development within these areas should be allowed only under strict performance standards and permitting procedures. The Sensitive Environmental Areas include the following: Stream valleys and ravines. Much of the City’s rarest vegetation and wildlife habitats are located within these stream valleys and ravines. Visually, these areas may serve as buffers between conflicting land uses and provide opportunities for passive, nature-oriented recreational activities.

Development hazards, such as flooding, poor soil bearing strength for building foundations, high erosion, and water table problems which result in soggy yards and wet basements, make building in these areas costly and frequently unsafe. Development in these areas will not only degrade water quality and eliminate natural habitats, but will increase the incidence and magnitude of downstream flooding.

Steep Slopes Adjacent to Stream Valleys and Ravines. Construction on steep slopes and on slopes with soils of high erodability may require extensive clearing and grading resulting in soil erosion and the introduction of sedimentation into adjacent streams.

100-Year Floodplains. 100-Year Floodplains are recognized by City and federal regulations as areas where flooding is a significant hazard to development. Development in these areas lowers water quality since eroded soil during clearing and construction, and surface pollutants after construction, are washed into streams during rain storms. In addition, these floodplain areas often have rich wet soils which provide wildlife habitats and support plant growth. The City’s 100-year floodplains are protected from development because they are located entirely within the Resource Protection Areas designated by the Chesapeake Bay Protection section of the Zoning Ordinance.

Tidal and Non-tidal Wetlands. Marshlands are an irreplaceable resource which is essential for the production of marine and inland wildlife, waterfowl, finfish, shellfish and flora. They also serve as a flood buffer, slow erosion of adjacent shores, and protect water quality by absorption of silt and pollutants.

Resource Protection Areas and Resource Management Areas. The resource protection areas (RPAs) and resource management areas (RMAs) are recognized by the Chesapeake Bay Preservation Act and regulated by the City’s Zoning Ordinance. RPAs include lands adjacent to water bodies with perennial flow that have an intrinsic water quality value due to the ecological and biological processes they perform, and development in these areas is strictly limited. RMAs are adjacent to the RPAs, and while development is allowed it must meet strict water quality standards.

4. Conservation Areas Conservation areas are land with protective easements that limit the use of the property. The City currently has two Conservation areas, Richneck Conservation Area (105 acres) at the rear of Holly Hills Subdivision bordering College Creek, and Papermill Creek Conservation Area (37 acres) on the east side of South Henry Street north of Papermill Creek.

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Chapter 8 Neighborhoods and Housing Williamsburg is a city of neighborhoods, which range from large lot single family to higher density multifamily. Nevertheless, the overall residential density in Williamsburg is 0.9 dwelling units per acre, compared to 2.7 dwelling units per acre in a city like Norfolk. Strong healthy neighborhoods are critical to the quality of life of City residents, and the city is committed to preserving and enhancing its neighborhoods. The Plan’s goal for Neighborhoods and Housing is to “Protect and enhance the quality of the City’s residential neighborhoods, and encourage the provision of affordable housing for those living and working in the City.”

2010 CENSUS Housing Type Williamsburg housing types include both single-family and multifamily homes. Figure 8-1, Williamsburg Housing Types, shows the current percentage share for each housing type in the City.

Figure 8-1: Williamsburg Housing Type

33% 50%

Single-family homes, which include both single-family detached and townhouses, 3% dominate the housing market in the Williamsburg region, 14% ranging from 64% of the total housing stock in Williamsburg Single Family, detached Townhouse Duplex Multifamily to 82% of the total housing stock in York County. Figure 8-2, Source: 2006-2010 American Community Survey Housing Types in the Williamsburg Region, illustrates the distribution of housing types in the Williamsburg region and in Hampton Roads. Although single-family homes are the most common type of housing in Williamsburg, 36% of its housing stock is two-family or multi-family dwellings. This is significantly higher than the surrounding counties, where the two-family and multi-family housing stock accounts for17% of the total.

The City’s total is also higher than the average of 25% in Hampton Roads.

Figure 8-2: Housing Type in the Williamsburg Region York

82%

James City

17%

78%

Williamsburg

17%

64%

Hampton…

0%

36%

72% 20%

Single-Family

40%

25% 60%

Duplex & Multifamily

80%

1% 5% 0% 3% 100%

Mobile Home/Other

Source: 2006-2010 American Community Survey

2013 Williamsburg Comprehensive Plan

Chapter 8 – Neighborhoods and Housing 8-1

Map p 8-1

Chapter 8 – Neighborrhoods and Housing

2013 Williaamsburg Com mprehensivee Plan 8-2

Although Williamsburg has a significantly higher portion of multi-family housing than its region, according to the 2010 Census, the percentage of two-family and multifamily housing in Williamsburg is slightly less than most other communities with large student populations. Figure 8-3, Virginia College Towns, compares housing types in Williamsburg to other college towns and cities in Virginia; and Figure 8-4, Other College Towns, compares Williamsburg with college towns that are not located in Virginia.

Figure 8-3: Virginia College Towns Lexington

67%

Williamsburg

64%

Radford

61%

Charlottesville

10%

2% 1% 2%

53%

43% 0%

0%

44%

53%

Blacksburg

36%

43%

54%

Fredericksburg

3%

37%

56%

Harrisonburg

30%

1%

55%

20%

30%

Single-Family

40%

50%

60%

70%

Duplex & Multifamily

2% 80%

90%

100%

Mobile Home/Other

Source: 2006-2010 American Community Survey

Figure 8-4: Other College Towns Williamsburg, VA

64%

36%

Carlisle, PA

61.6%

38.1%

57%

Lewisburg, PA

0% 0.3%

43%

0%

Charleston, SC

55%

44%

1%

Hanover, NH

55%

45%

0%

47%

Clemson, SC

48%

31%

Boone, NC 0%

10%

20%

5%

67% 30%

Single Family

40%

50%

60%

Duplex and Multifamily

2% 70%

80%

90%

100%

Mobile home/Other

Source: 2006-2010 American Community Survey

2013 Williamsburg Comprehensive Plan

Chapter 8 – Neighborhoods and Housing 8-3

Age & Quality Housing age is often used as an indicator of local housing quality. The majority of the housing stock in Williamsburg was built after 1960 and is less than fifty five years old. As shown in Table 8-1, Williamsburg Housing Age, 77% of the housing stock was constructed since 1960, and 49% was constructed since 1980.

The American Community Survey 2006-2010 sample data also estimates that only 1% of housing stock in the City lacks complete plumbing facilities and only 3% lack complete kitchen facilities.

Table 8-1: Williamsburg Housing Age 2006-2010 (ACS Data) % of Total Margin of Error

On average, homes and residential lots in Williamsburg are smaller than other jurisdictions. According to the 20062010 American Community Survey, most housing units in Williamsburg are 4 or 5 rooms with the median being 5.6 rooms. This is considerably smaller than the median of 6.6 rooms in James City, 6.7 rooms in York, 5.9 rooms in Hampton Roads and 5.9 rooms in Virginia.

Built 2005 or later

341

7%

+/- 91

Built 2000 to 2004

701

14%

+/- 119

Built 1990 to 1999

628

13%

+/-168

Built 1980 to 1989

766

15%

+/- 157

Built 1970 to 1979

619

12%

+/-167

Built 1960 to 1969

812

16%

+/-170

Built 1950 to 1959

323

6%

+/-84

Built 1940 to 1949

300

6%

+/-126

Built 1939 or earlier

517

10%

+/-151

5007

100%

+/-327

Total

Source: U.S. Census Bureau, 2006-2010 American Community Survey

Households According to the 2010 Census, Williamsburg has a total of 5,176 housing units; 88% are occupied and 12% are vacant. A relatively high percentage of the occupied units are renter-occupied when compared with the rest of the region. Figure 8-5, Housing Tenure in the Williamsburg Region, shows that approximately a quarter of the occupied units in James City and York Counties are renter-occupied compared to 56% in the City of Williamsburg. When compared with the region (37%) and the state as a whole (33%), Williamsburg still has a much higher number of renters. The geographic distribution of owners and renters is shown on Map 8-2, Distribution of Owner vs. Renter Occupied Housing.

Figure 8-5: Housing Tenure in the Williamsburg Region Williamsburg

44%

56%

James City

76%

24%

York

75%

25%

Hampton Roads

63%

State

37%

67% 0%

Source: 2010 U.S. Census

10%

20%

30% 40% Owner-Occupied

Chapter 8 – Neighborhoods and Housing

33% 50%

60% 70% 80% Renter Occupied

90%

100%

2013 Williamsburg Comprehensive Plan 8-4

Map 8-2

Map 8-3

2013 Williamsburg Comprehensive Plan

Chapter 8 – Neighborhoods and Housing 8-5

Williamsburg’s high proportion of college students accounts for some of the disparity between it and the surrounding region. Figure 8-6, Housing Tenure in Virginia College Towns, illustrates that when evaluated in relation to five other cities and towns in Virginia that have large colleges or universities, the proportion of renters to owners in Williamsburg is actually below average. Because the College of William and Mary houses 73% of its full-time undergraduate students and 14% of full-time graduate students the demand for rental housing near campus remains high. This accounts for the concentration of rental housing near the campus, particularly in the Richmond Road and Jamestown Road neighborhoods.

Additional concentrations of renters are seen in the Merrimac Trail, Mount Vernon Avenue, High Street, Patriot Lane and Jamestown Road/Route 199 areas. Cities also tend to have a higher amount of rental housing than suburban counties, further contributing to the differences seen in the Williamsburg region.

Figure 8-6: Housing Tenure in Virginia College Towns Lexington

48%

52%

Williamsburg

56%

44%

Radford

42%

58%

Charlottesville

41%

59%

Fredericksburg

38%

62%

Harrisonburg

37%

63%

Blacksburg

72%

28%

0% 10% Source: 2010 U.S. Census

20%

30% 40% Owner-Occupied

50% 60% 70% Renter-Occupied

80%

90%

100%

About 30% of Williamsburg’s population (4,171 persons) lives in group quarters as defined by the U.S. Census. As with housing tenure, the City has a much higher percentage of residents living in group quarters than does the rest of the region. Most of this large non-household population is attributable to the high number of college students living in dormitories (4,051), accounting for 97% of the nonhousehold total. The remaining 3% are nursing home residents (116) and other non-institutionalized (4).

Household Size The average size of households in Williamsburg is much smaller than that of its suburban neighbors. The 2010 Census lists the average household size for the City as 2.17 persons, up from 2.07 in 2000 and significantly smaller than the average of 2.45 for James City County or 2.7 for York County. The difference in household size is a product of the larger number of one and two-person households in Williamsburg, which account for over 73% of the total in the City. In comparison, one and two-person households account for 64% of all households in James City and 53% of all households in York County.

Over time, average household size has Table 8-2 Average Household Size fluctuated moderately, as shown in Table 81990 % Change 2000 % Change 2010 2, Average Household Size. In York City of Williamsburg 2.11 -1.9% 2.07 4.8% 2.17 County and James City County average James City County 2.6 -5.0% 2.47 -0.8% 2.45 household size declined over the past 20 York County 2.9 -4.1% 2.78 -2.9% 2.7 years while the City of Williamsburg Source: 2010 U.S. Census experienced an increase between 1990 and 2010. Even with this increase, Williamsburg’s average household size has remained significantly lower than the average in either of the surrounding counties.

Chapter 8 – Neighborhoods and Housing

2013 Williamsburg Comprehensive Plan 8-6

These differences in average household size reflect the type of households in each locality. According to the 2010 Census, family households make up 73% of all households in James City County and 78% in York County, but only 49% in Williamsburg. Figure 8-7, Household Type by Age of Householder, lists family and non-family households for the Williamsburg region. Approximately 26% of all households in the City are occupied by residents who are 65 or over, while about 34% are occupied by residents between the ages of 15 and 34. The latter are primarily students at the College of William and Mary living in non-family households. Only 16% of householders in the City are 24 and under.

Figure 8-7 Williamsburg Household Type By Age of Householder 1400 1200 1000 1990

800

2000 600

2010

400 200 0 Family Householder 15 to 34

Family Householder 35 to 64

Family Householder 65 & above

Nonfamily Householder 15 to 34

Nonfamily Householder 35 to 64

Nonfamily Householder 65 & above

Source: 1990, 2000, 2010 U.S. Census

Household Projections Household trends based on occupied housing data for the Williamsburg region between 1970 and 2010 are provided in Table 8-3, Regional Forecast 2040 – Households in Hampton Roads, along with projections for 2040. From 1970 to 2010 the number of households in the City increased by 91% with the largest increases between 1970 and 1980 (+26%), and between 2000 and 2010 (+26%). Both of the surrounding counties grew at a much higher rate from 1970 to 2010 – the number of households was up 490% in James City County and 225% in York County. Household growth slowed dramatically in the City during the 1990s, increasing by just 5% while the overall number of households in Hampton Roads increased by 15% in the same decade. Although the remainder of the Williamsburg region also added fewer households during the 1990s than in the previous two decades, both of the surrounding counties

Table 8-3: Regional Forecast 2040: Households in Hampton Roads 1970

1980

1990

2000

2010

2020*

2030*

2040

Williamsburg

2,396

3,024

3,462

3,619

4,571

5,004

5,480

6,000

James City

4,551

7,493

12,990

19,003

26,860

31,250

36,358

42,300

York Hampton Roads

7,391

10,879

14,452

20,000

24,006

26,028

28,222

30,600

310,997

390,531

504,180

579,107

626,083

671,715

720,673

773,200

Source: HRPDC, Hampton Roads 2040 Socioeconomic Forecast *2020 & 2030 figures w ere dervied from 2040 figures and are not part of HRPDC's official forecast

2013 Williamsburg Comprehensive Plan

Chapter 8 – Neighborhoods and Housing 8-7

continued to outpace growth in the City. In the 1990s the number of households increased by 46% in James City County and by 38% in York County.

Based on projections developed by the HRPDC, and graphed in Figure 8-8, Households in the Williamsburg Region 1970-2034, the number of households in Williamsburg is expected to increase to 6000 by 2040, up 31% from 2010. This percent increase is greater than the increase anticipated for the Hampton Roads region as a whole (23%) as well as the anticipated increase in York (27%), but remains significantly smaller than the 57% increase projected for James City County (Figure 8-8). Despite the Williamsburg projected growth, the number of households in the City account for only 8% of the total in the Williamsburg region by 2040.

Average household size is also expected to decline in the Williamsburg region, particularly as the population ages. The average household size in Williamsburg is expected to slightly decrease from 2.17 in 2010 to 2.16 in 2040. Average household size is also anticipated to slightly decrease from 2.45 to 2.44 in James City County and remain at 2.70 in York County in 2040. Average household size in Hampton Roads is projected to be 2.63 in 2040.

Figure 8-8: Households in the Williamsburg Region 1970-2040 45,000

40,000

35,000

30,000

Williamsburg

25,000

James City

20,000

York

15,000

10,000

5,000

0

1970

1980

1990

2000

2010

2020

2030

2040

Source: HRPDC, Hampton Roads 2040 Socioeconomic Forecast

Future Housing Requirements Population projections for Williamsburg indicate that an additional 3,132 people will live in the City by 2040 (total population 17,200). With an average household size of 2.86, another 1450 dwelling units will be required to house this increase. Because the population is aging, and the need for student housing is increasing, much of the required new housing will be multifamily (townhouses, condominiums, and apartments). Much of this new housing will be located in mixed-use developments with shops and services within walking distance.

This 2010 Census section of this chapter was prepared for the City by the staff of the Hampton Roads Planning District Commission Chapter 8 – Neighborhoods and Housing

2013 Williamsburg Comprehensive Plan 8-8

HOUSING TRENDS As pointed out in the previous section, the character of Williamsburg’s housing stock is different than in the surrounding counties of James City and York. Williamsburg has a much higher percentage of multifamily housing (36% vs. 17% for James City County and 17% for York County). Williamsburg also has a higher percentage of rental housing according to the 2010 Census – 56% vs. 23% for James City County and 24% for York County. Although Williamsburg is much different from the surrounding jurisdictions, its residential character is fairly typical for a small city that is also a college town.

One of the continuing trends since the adoption of the 2006 Comprehensive Plan has been the increase in the amount of multifamily housing constructed in the City. Construction since the 2006 Plan has added 385 multifamily and duplex dwellings and 47 single family dwellings. This compares with 336 multifamily and duplex dwellings, and 204 single family dwellings that were added between the 1998 and 2006 Plans. And for the first time since 1984, a major apartment complex was built – the 191 unit Sterling Manor Apartments at High Street, completed in 2008.

The 2006 Plan identified residential neighborhoods in three “Focus Areas” adjacent to the College of William and Mary and the Merchants Square area: the Center City, Richmond Road and Jamestown Road Focus Areas. These areas met the criteria of “threatened neighborhoods” outlined in the 1998 Comprehensive Plan: a gradual influx of college students, increased through-traffic concerns, and the presence of substandard or rapidly deteriorating housing. To protect these and other neighborhoods, the City has taken the following steps: • • • • •

Enforcement of the City’s Property Maintenance Code on a consistent citywide basis Enforcement of the City’s Rental Inspection Program Pursuit of grants and CDBG programs to improve infrastructure and housing (Wales, Strawberry Plains, and Braxton Court are previous CDBG projects) Creation of the Neighborhood Relations Committee in 2009 to strengthen relations between the William and Mary campus and the community Creation of a Student Renters Guide to improve the quality of life and to help build and maintain effective working relationships for all neighborhood residents

Concerning the major impact of the College on the City’s neighborhoods, the 2006 Plan noted that it was the responsibility of the College to provide an appropriate amount of student housing on the campus, and that City regulations should encourage student housing in suitable off-campus housing to supplement the housing provided by the College. Since the adoption of the 2006 Plan, the College opened the 387 bed Jamestown Dormitories in 2006 (a net increase of 118 beds when coupled with the closing of the 269 bed Dillard Complex), the 56 bed Tribe Square project in 2011, and the 187 bed Fraternity Complex is under construction and scheduled to open in Fall 2013. This represents a gain of 361 undergraduate beds.

College enrollment increased from 7,529 in 2005-06 to 8,200 in 2011-12. Undergraduate enrollment for the same time period increased from 5,604 to 6,071, and is expect to grow to 6,200 undergraduates in 2015-16. This will be an increase of 596 undergraduates in ten years, and has exceeded the growth in new on-campus undergraduate beds by 235 students. This underscores the need for private sector participation in the provision of student housing, and the most recent private actions are detailed below.

The City approved City Green on Richmond Road in 2009, which provided 24 rental units that have become popular student housing. Two new zoning districts were developed: the PDC Planned Development College District in 2010, which allowed the construction of Tribe Square, and the PDU Planned Development Urban District in 2012, which allowed the approval of the 94 unit City Lofts project at 1406 Richmond Road, housing up to 143 students. The Midtown Planning Area, detailed in Chapter 10 - Commercial and Economic Development, is positioned as a major focus for new student housing due to its close proximity to the College, its location on existing bus routes, and the availability of bicycle and pedestrian facilities connecting this area with the main campus.

2013 Williamsburg Comprehensive Plan

Chapter 8 – Neighborhoods and Housing 8-9

HOUSING PLAN The 2012 Comprehensive Plan’s Housing Plan is detailed in the following sections of this chapter, and is summarized below: 1. Preserve and protect the City’s single-family neighborhoods. Neighborhood preservation should be promoted by enforcement of various City regulations, such as the Property Maintenance Code, Rental Inspection Program, Zoning Ordinance, Residential Permit Parking Program, Noise and Nuisance Ordinances and Animal Control Ordinances. Continuous improvements to streets, parks and other public infrastructure should be made. Regulations should be periodically reviewed to assess their effectiveness in protecting the character of these neighborhoods.

2. Enable a greater residential presence in the Downtown Planning Area. The existing overall residential density of the Downtown Planning Area is only 1.7 dwelling units/acre. To enhance the quality, vibrancy and character of this area, the base residential density should be a uniform 14 dwelling units/net acre for the Merchants Square area, the Downtown Commercial area to the west, and the Mixed Use areas north and south of Merchants Square. Special use permits should allow higher densities so long as the project is compatible with the scale character of the downtown area. Because of limited opportunity for new downtown housing, increasing the allowable density will have a marginally small effect on raising the current 1.7 dwelling units/net acre density.

3. Build new mixed use neighborhoods. New residential uses should be integrated with or nearby office, commercial and other non-residential uses in master planned mixed use developments.

High Street and Quarterpath at Williamsburg are examples of this type of new development, and the Midtown Planning Area has the potential to redevelop into a mixed use neighborhood with an emphasis on student housing.

4. Develop more affordable housing. The City, primarily through the efforts of the Williamsburg Redevelopment and Housing Authority, has developed 104 subsidized rental units and 75 owner occupied single-family dwellings. Future efforts for affordable housing should concentrate on owner-occupied housing projects such as the Strawberry Plains and Crispus Attucks subdivisions, but well planned rental housing should also be considered.

5. Provide more senior housing. The need for senior housing will increase as the City’s population ages, and provisions should be added to the Zoning Ordinance to allow the development of senior housing in appropriate locations and at appropriate densities, such as the Blayton Building site on Scotland Street.

6. Develop alternatives for college student housing. The College should provide additional student housing on the campus, as demonstrated by the construction of the Jamestown Dormitories in 2006 and the new Fraternity Complex to be completed in 2013. City regulations should encourage student oriented housing in suitable off-campus locations to supplement the housing provided by the College, as demonstrated by the PDC Planned Development College District that allowed the development of Tribe Square, and the PDU Planned Development Urban District that allowed the conversion of an older hotel to the City Lofts apartments. Public/private partnerships that facilitate the construction of student houses should be encouraged.

Chapter 8 – Neighborhoods and Housing

2013 Williamsburg Comprehensive Plan 8-10

When this Housing Plan is translated to land use, there is a potential for up to 400 new single-family homes, and up to 3,200 new multifamily dwellings. Low and moderate income housing could comprise up to 300 dwelling units, or 8% of the projected growth. Housing in mixed use developments could total up to 2,700 dwelling units, or 73% of the projected growth. Completion of this development will represent a residential build-out for the City based on the land uses proposed by this Plan. This will bring the City’s maximum population to approximately 21,000, a 3,800 increase (+22%) from the projected 2040 population of 17,200. This City’s maximum population will not occur until some time after 2040.

NEIGHBORHOODS A comprehensive map of City neighborhoods was prepared as a part of the 2012 Comprehensive Plan.

There are 51 single family, duplex and condominium neighborhoods, plus seven apartment complexes.

When the apartment complexes are factored out, the owner occupancy of the 51 single family, duplex and condominium neighborhoods is 55%, with 45% renter-occupancy. This is a higher owner-occupancy than the 46% listed by the 2010 Census. When the apartment complexes are factored in, the owneroccupancy rate determined by City analysis is 41%, with 59% rental-occupancy. This differs slightly from the 2010 Census figures of 44% owner-occupancy and 56% renter-occupancy. Table 8-4, Owner and Renter Occupancy by Neighborhood, lists these neighborhoods, and Map 8-4, Neighborhoods, shows their location.

Table 8-4: Owner and Renter Occupancy by Neighborhood Neighborhood

Units

Barclay Square (#28) Brandywyne (#21) Braxton Court (#17) Bristol Commons (#9) Burns Lane (#42) Capitol Heights (#33) Carriage Homes (#50) Cary/Griffin/Newport (#39) Claiborne (#1) College Terrace (#14) Colonial Ext. (#36) Counselors Close (#40) Crispus Attucks (#18) Downtown (#38) Forest Hill Area (#31) High Street (#10) Highland Park (#19) Historic Area (#37) Holly Hills (#53) Indian Springs (#41) Jamestown Comm. (#47) Longhill Woods (#45) Matoaka Court (#13) Mimosa (#54) Patriot (#3) Penniman/2nd St (#26) Peppertree (#46)

48 79 18 110 59 89 62 208 118 40 50 51 19 133 33 16 142 77 151 88 12 45 40 55 92 22 40

Apartment Complex Colonial Pines (#30) Colonial Towne #24) Mount Vernon (#11) Parkway (#27)

Units 132 148 331 160

Owner Occupied 28 (58%) 53 (67%) 11 (61%) 35 (32%) 46 (78%) 35 (39%) 56 (90%) 80 (38%) 77 (65%) 36 (90%) 14 (28%) 48 (94%) 14 (74%) 27 (20%) 19 (58%) 0 (0%) 77 (54%) 1 (1%) 141 (93%) 55 (63%) 0 (0%) 40 (89%) 11 (28%) 12 (22%) 37 (40%) 1 (5%) 4 (10%)

Renter Occupied 20 (42%) 26 (33%) 7 (39%) 75 (68%) 13 (22%) 54 (61%) 6 (10%) 128 (62%) 41 (35%) 4 (10%) 36 (72%) 3 (6%) 5 (26%) 106 (80%) 14 (42%) 16 (100%) 65 (46%) 76 (99%) 10 (7%) 33 (37%) 12 (100%) 5 (11%) 29 (72%) 43 (78%) 55 (60%) 21 (95%) 36 (90%)

Renter Occupied 100% 100% 100% 100%

Neighborhood Pinecrest Piney Creek Port Anne Powhatan Park Priorslee Quarterpath

Units

(#32) (#4) (#57) (#35) (#25) (#34) Queen Mary’s Port(#20) Richmond Hill (#55) Richneck Hts. (#45) Rolfe Road (#43) Savannah Green (#5) Shellis Square (#23) Skipwith Farms (#6) Strawberry Plains (#12) The Coves (#56) The Oaks (#58) The Woods (#51) Village Green (#48) Wales (#8) Walnut Hills (#44) West Williamsburg (#15) W. Williamsburg Hts. (#16) Westgate at Wmbg. (#2) Woodlands (#49) Wyndham (#29) Yorkshire (#52)

50 105 101 104 57 82 4 14 27 148 36 63 271 67 33 56 22 52 51 97 100 78 108 44 112 42

Apartment Complex Sterling Manor (#10) Tribe Square (#38) Village of Woodshire (#22)

Units 191 14 252

2013 Williamsburg Comprehensive Plan

Owner Occupied 23 (46%) 99 (94%) 96 (95%) 19 (18%) 27 (47%) 55 (67%) 0 (0%) 13 (93%) 21 (78%) 21 (14%) 32 (89%) 27 (43%) 170 (63%) 62 (93%) 32 (97%) 35 (62%) 20 (91%) 29 (55%) 27 (53%) 82 (85%) 13 (13%) 25 (32%) 65 (60%) 33(75%) 72 (64%) 40 (95%)

Renter Occupied 27 (54%) 6 (6%) 5 (5%) 85 (82%) 30 (53%) 27 (33%) 4 (100%) 1 (7%) 6 (22%) 127 (86%) 4 (11%) 36 (57%) 101 (37%) 5 (7%) 1 (3%) 21 (38%) 2 (9%) 23 (44%) 24 (47%) 15 (15%) 87 (87%) 53 (68%) 43 (40%) 11 (25%) 40 (36%) 2 (5%)

Renter Occupied 100% 100% 100%

Chapter 8 – Neighborhoods and Housing 8-11

Map 8-4

Chapter 8 – Neighborhoods and Housing

2013 Williamsburg Comprehensive Plan 8-12

DOWNTOWN PLANNING AREA The Downtown Planning Area has Merchants Square at its center, and extends north across the CSX Railroad to the Governor’s Inn, south to Mimosa Drive, and west along Richmond Road to Virginia Avenue. It is an authentic mixed use area combining retail, office, museum, residential and educational uses, and brings together all of the major character defining features of the City: Colonial Williamsburg, the College, the Municipal Center, and diverse residential neighborhoods. This Planning Area is discussed in detail in Chapter 10 - Commercial and Economic Development, but the exclusively residential sections of the Downtown Planning Area are described in this section. These residential areas include the single family neighborhoods of Braxton Court and Crispus Attucks, the single family area on the east side of North Henry Street and Scotland Street, the Blayton Building on Scotland Street, and multifamily residential areas on South Boundary and South Henry Streets.

The Downtown Planning Area includes two historic residential areas that are located in the Architectural Preservation District (see Chapter 5 - Community Character).

Peacock Hill is a residential area that developed north of Merchants Square with the advent of the railroad in the 1880s. The land between Scotland Street and the railroad was subdivided from the Wheatland Farm by R.S. Henley in 1894 and was known as the Northington tract. Henley and later Francis O’Keefe, the father of artist Georgia O’Keefe, further subdivided the Northington tract throughout the late 1890s and early 1900s. The area south of Scotland Street was developed in the early 1900s. Fashionable Vernacular Victorian and Queen Anne style houses were built in this area, with more modest houses constructed in the Buttermilk Hill area around the corner of Prince George Street and Nassau Street. From this turn of the century era, only 14 houses stand.

Braxton Court on Scotland Street is an early twentieth century neighborhood developed and established by African-Americans. Robert H. Braxton platted the subdivision in 1928 and sold lots throughout the 1930s to local African-Americans. Many of the houses were built by him using local African-American carpenters and apprentices from the Hampton Institute (now Hampton University), and the architecture of the neighborhood reflects the variations on Colonial Revival and other early-twentieth century suburban vernacular designs found throughout the City.

Braxton’s house is located at the top of the cul-de-sac at 128 Braxton Court.

Housing Analysis The Downtown Planning Area’s residential component is predominantly multifamily and renter occupied.

In 2012 the Planning Area had a total of 234 dwelling units: 128 primarily single dwelling units (including one Bed & Breakfast), 14 condominiums, 26 townhouses and 66 apartment units. There are 64 owner-occupied dwelling units (27%) and 170 renter-occupied dwelling units (73%), compared to the City’s 2010 Census totals of 44% owner-occupied and 56% renter-occupied. A dwelling unit is considered renter-occupied if the owner’s address is different from the property address, or if it is a unit in a rental apartment complex. The breakdowns by neighborhood are: • Braxton Court - 18 dwelling units - neighborhood #17: • Crispus Attucks - 19 dwelling units - neighborhood #18: • Downtown - 160 dwelling units - neighborhood #38: • Other - 37 dwelling units1: Downtown Total - 234 dwelling units 1

61% owner-occupied; 74% owner-occupied; 21% owner-occupied; 16% owner-occupied; 27% owner-occupied;

39% renter occupied 26% renter occupied 79% renter occupied 84% renter occupied 73% renter occupied

South Boundary Street from Ireland Street to South Henry Street and the east side of Virginia Avenue.

2013 Williamsburg Comprehensive Plan

Chapter 8 – Neighborhoods and Housing 8-13

Scale and Character The Downtown Planning Area’s residential component is an essential part of its scale and character, and helps make downtown Williamsburg a vibrant area for both living and shopping. There are two parts to this scale and character, and both need to be considered in planning for the future of the Downtown Planning Area. The first part is building massing and location, which is primarily governed by zoning regulations for building setback, height and parking. The second part of residential scale and character is density, which must fit within the building envelopes delineated by the zoning restrictions. This is discussed in more detail in the Downtown Planning Area section of Chapter 10 - Commercial and Economic Development on pages 10-6 and 10-7. A uniform base density of 14 dwelling units/ net acre is recommended for the Downtown Commercial and Mixed Use sections of the Downtown Planning Area, with increased density allowed with a special use permit. Specific limitations for density increases are not listed because they cannot address the unique characteristics of individual sites or housing types, nor the fact that some properties can support more density than others. All of these characteristics, as well as the quality of the building and site design and how they relate to the immediate surroundings and to the Downtown Planning Area as a whole need to be taken into consideration when ruling on the special use permit.

The Medium Density Single Family Detached Residential land use on the east side of North Henry Street and Scotland Street, adjoining Matthew Whaley Elementary School, should continue to have a residential density of 5 dwelling units/net acre. This is implemented by the RS-3 Single-Family Dwelling District.

The Downtown Residential area on the west side of South Henry Street south of South Boundary Street is a transitional area between the higher intensity Downtown Commercial and Mixed Use areas to the north and the Low Density Single Family Detached Residential land use areas to the south. For this reason, Downtown Residential land use should have a base residential density of 8 dwelling units/net acre, with increased density allowed with a special use permit if the scale and character of the project properly relates to the surrounding neighborhoods in the area. This is implemented by the RDT Downtown Residential District.

The Williamsburg Redevelopment and Housing Authority’s Blayton Building at 613 Scotland Street provides the City’s only senior specific housing, with 38 subsidized apartments for low and moderate income seniors and disabled persons on a large lot with potential for expansion. As noted in Chapter 3 Population, there will be an increased need for additional senior housing in the future. The 2010 Census shows significant increases in the 65-74 age group because of the aging of the post-war baby boom generation. More than 23% of the City’s non-student population is 65 or older, significantly higher for Williamsburg than in the surrounding region (19%), Hampton Roads (14%) or the State (14%). To help satisfy the need for senior housing, the Blayton Building lot should be designated Mixed Use land use, which allows a base density of 14 dwelling units/net acre, with increased density allowed if the scale and character of the project properly relates to the surrounding neighborhoods and to the Downtown Planning Area. This also allows the option of a mixed use development on the property with senior housing as a major component. These new provisions will allow senior apartments at the Blayton Building to be substantially expanded from the existing 38 dwelling units on the 3.87 net acre site. The Blayton Building is discussed further in Chapter 10 – Commercial and Economic Development, on pages 10-8.

There are currently 234 dwelling units in the Downtown Planning Area, resulting in an overall residential density for the area of 1.7 dwelling units/acre. The ability to increase residential density above 14 dwelling units/net acre in the Downtown Commercial and Mixed Use areas with a special use permit and above 8 dwelling units/net acre with a special use permit in the Downtown Residential area, plus the additional dwelling units that are possible for the Blayton Building, could add 200 or more new dwelling units to the Downtown Planning Area. This would result in more than 400 dwelling units in the Downtown Planning Area, increasing the overall density to more than 3 dwelling units/acre. This is in keeping with the scale and character of the Downtown Planning Area.

Chapter 8 – Neighborhoods and Housing

2013 Williamsburg Comprehensive Plan 8-14

Future Land Use Recommendations for Residential Sub-Areas 3. North Henry Street (east side) and Scotland Street.

The existing Medium Density Single Family Detached Residential land use should be continued, implemented by the existing RS-3 Single Family Dwelling District, with a residential density of 5 dwelling units/net acre. This area is separate and distinct from the adjoining North Henry/ North Boundary Street Area, and contains eight single family detached dwellings, one three-unit apartment building, and two vacant lots.

5. South Boundary/South Henry Street Area north and south of Newport Avenue.

• The area on both sides of South Boundary Street between Ireland Street and the rear of the lots fronting on Newport Avenue should remain High Density Multifamily Residential land use, implemented by the RM-2 Multifamily Dwelling District, with a residential density of 14 dwelling units/net acre. The lot at the northeast corner of South Boundary Street and Newport Avenue should be changed from Office land use to High Density Multifamily Residential land use, implemented by the RM-2 Multifamily Dwelling District.

• The area on the east side of South Boundary Street south of Newport Avenue should remain Medium Density Multifamily Residential land use, implemented by the RM-1 Multifamily Dwelling District, with a residential density of 8 dwelling units/net acre.

6. South Henry Street - west side from South Boundary Street to Campus Court Condominiums (706 South Henry Street). The existing Downtown Residential land use should remain, implemented by the RDT Downtown Residential District, with a base residential density of 8 dwelling units/net acre and with increased density allowed with a special use permit. Single family, duplex and townhouse dwellings are allowed by right, and multifamily dwellings require a special use permit.

2013 Williamsburg Comprehensive Plan

Chapter 8 – Neighborhoods and Housing 8-15

MIDTOWN PLANNING AREA The Midtown Planning Area is located at the intersection of two of the City’s major entrance corridors – Richmond Road and Monticello Avenue. It is made up of five major components: the Arts and Cultural District centered on Richmond Road and Lafayette Street between Brooks Street and the Williamsburg Shopping Center; the Shopping Centers Area that includes the Williamsburg and Monticello Shopping Centers; the Richmond Road Corridor between Monticello Avenue and Bypass Road; the Urban Residential Area along Mount Vernon Avenue and New Hope Road, and the College Area that is centered on William and Mary’s School of Education. This Planning Area is discussed in detail in Chapter 10 Commercial and Economic Development, but the exclusively residential sections of the Midtown Planning Area are described in this section. These include the mostly single family West Williamsburg neighborhood between Richmond Road and Lafayette Street, the Lawson Apartments on Mount Vernon Avenue, and the Sylvia Brown Apartments and City Lofts student apartments on New Hope Road

Map 8-6

The Arts and Cultural District along Richmond Road and Lafayette Street was established by City Council in February 2011 as a way to encourage and enhance the City’s creative economy as an economic development initiative. The Medium Density Single Family Detached Residential portion of this Arts and Cultural District is located between the Mixed Use area along Richmond Road and the CSX Railroad.

This is the West Williamsburg neighborhood originally platted in 1928 when this portion of the City was located in York County. The houses are predominantly one to one and one-half stories in height, and the area contains several notable Bungalow-style houses around the Lafayette Street-Wythe Street intersection. Studios and workshops for artists and artisans are allowed in this area with a special exception permit, allowing live/work space in an established single family residential area.

The Urban Residential Area along Mount Vernon Avenue and New Hope Road contains one of the City’s four major concentrations of multifamily housing (the others are the High Street, Patriot Lane and Merrimac Trail areas). The Lawson Apartments are five apartment complexes (Julia Ann, Spring Road, Spring Road Annex, Spring Garden and Clinton Gardens) with a total of 293 apartments. Also in this area is the 28 unit Sylvia Brown Apartments on New Hope Road, a subsidized apartment project owned by the Williamsburg Redevelopment and Housing Authority, and the 95 unit City Lofts student apartment project at the corner of New Hope Road and Middle Street that will house up to 143 students.

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These apartments are located between the College of William and Mary and the High Street mixed use development, connected by a growing network of sidewalks and bike lanes. Their proximity to the College makes them very attractive for helping to meet the need for college student housing. This area has potential for redevelopment at a higher residential density, but traffic and other impacts need to be evaluated before approval of any redevelopment project.

Housing Analysis The Midtown Planning Area’s residential component is concentrated in the Arts and Cultural District and the Urban Residential Area, and is predominantly renter occupied. In 2012, the Planning Area had a total of 425 dwelling units; 14 were owner-occupied (3%), and 410 were renter-occupied (97%). A dwelling unit is considered renter-occupied if the owner’s address is different from the property address, or if it is a unit in a rental apartment complex. This is a much higher rental occupancy than the City as a whole – the 2010 Census figure for the entire City is 44% owner-occupied and 56% renter-occupied.

The Arts and Cultural District is made up of two separate areas – Mixed Use land use along Richmond Road, and Medium Density Single Family Detached land use along Lafayette Street and the side streets.

This area is also designated as West Williamsburg (#15) on Map 8-4, Neighborhoods.

The Shopping Centers Area is located on Richmond Road and Monticello Avenue, and includes the Williamsburg and Monticello Shopping Centers. The Richmond Road Corridor extends from Monticello Avenue to New Hope Road/Bypass Road.

The Urban Residential Area includes the 293 unit Lawson Apartments on Mount Vernon Avenue and the 28 unit Sylvia Brown Apartments on New Hope Road. This area is also designated as Mt. Vernon (#11) on Map 8-4, Neighborhoods.

The College Area has no dwelling units, but a 53 bed nursing home is located in this area.

The breakdowns for the areas are:

• Arts and Cultural District - 93 dwelling units: • Shopping Centers area - 10 dwelling units: • Richmond Road Corridor - 1 dwelling unit: • Urban Residential Area - 321 dwelling units: Midtown Total – 425 dwelling units

15% owner-occupied; 0% owner-occupied; 0% owner-occupied; 0% owner-occupied; 3% owner-occupied;

85% renter occupied.

100% renter-occupied.

100% renter-occupied.

100% renter-occupied.

97% renter-occupied

Future Land Use Recommendations for Residential Areas 1. Arts and Cultural District. The Medium Density Single Family Detached land use for the West Williamsburg neighborhood between the Mixed Use land use along Richmond Road and the CSX Railroad should be continued, implemented by the RS-3 Single Family Dwelling District. The four adjoining lots at 715-721 Lafayette Street should also be designated as Medium Density Single Family Detached land use. This land use mirrors the existing density of the area. The existing provisions allowing studios and workshops for artists and artisans with a special exception should be retained, as this is an important feature of the Arts and Cultural District, and encourages live/work space in the area.

2. Urban Residential Area. The existing High Density Multifamily Residential land use (14 dwelling units/net acre) should be changed to Urban Residential land use. The existing RM-2 zoning should remain in place until an acceptable development plan is presented for rezoning to a revised PDU Planned Development Urban District, with the density allowed determined through the rezoning process. The primary consideration for the density approved should be how the scale and character of the proposed project relates to its immediate surroundings and to the Midtown Planning Area as a whole. Student dwellings should be a permitted use, with a dwelling unit occupancy of two unrelated persons in an efficiency or one bedroom dwelling unit, and four unrelated persons in a two or more bedroom dwelling unit. A building height of 45 feet should be allowed.

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NORTHEAST TRIANGLE PLANNING AREA The Northeast Triangle Planning Area is a diverse area with concentrations of singlefamily detached dwellings, condominiums, apartments, townhouses, and commercial uses. It has been developing for over 300 years, and is centered on Capitol Landing Road (the historic connection between the colonial port on Queen’s Creek and Colonial Williamsburg), and on Page Street and Second Street. This Planning Area was subject to a comprehensive study in 2011 by the Northeast Triangle Focus Group, and is discussed in detail in Chapter 10 Commercial and Economic Development, The exclusively residential sections of the Northeast Triangle Planning Area are described in this section.

The Northeast Triangle includes three areas that are listed in the Comprehensive Plan as “Notable Features” of the Architectural Preservation District (Capitol Landing/Capitol Landing Road, Capitol Heights on the west side of Capitol Landing Road, and Pine Crest subdivision on the east side of Page Street).

These neighborhoods, together with Minor’s Park, help provide a transition between the commercial area of Capitol Landing Road north of the Colonial Parkway and the Colonial Williamsburg Historic Area.

A description and discussion of the major residential areas in the Northeast Triangle Planning Area follows: •

Map 8-7

Capitol Landing/Capitol Landing Road was the second port and access road that served Williamsburg in the eighteenth century. Originally called Queen Mary’s Port because of its location on Queen’s Creek (a tributary of the York River), Capitol Landing served the same purpose for the City as College Landing to the south. Public wharves and tobacco inspection warehouses were located at the water’s edge, and nearby were shops, houses, taverns and light manufacturing uses. There are no above-ground remains of these structures in existence, but archaeological remains provide important educational resources. As with College Landing, this port and its access roads were shown on the 1699 plat of the City. Capitol Landing is listed on the Virginia Landmarks Register.

The majority of the Planning Area’s single family residential areas are located along Capitol Landing Road: the Haynes/Forest Hills/Woods Drive area at the northwest corner of Capitol Landing Road and Parkway Drive, Brandywyne at the northeast corner of Capitol Landing Road and Merrimac Trail, and the recently approved (in 2010) but not yet built 41 lot Queen Mary’s Port subdivision adjacent to Queen’s Creek.

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•

Capitol Heights, on the west side of Capitol Landing Road south of the Colonial Parkway, was platted in 1916, and has a consistent scale with uniform setbacks. The modest houses vary in style and include bungalow, Colonial Revival, and simple builders’ houses that date mainly from the 1920s through the 1950s. The east side of Capitol Landing Road is characterized by Colonial Revival houses in a variety of forms and two Vernacular Victorian houses, one of which was relocated to the area in the 1930s from the Colonial Williamsburg Historic Area.

•

Capitol Landing Green, located between Capitol Landing Road and Page Street, is a planned residential development that was approved in 2008 as a PDR District. The project was designed to respect the scale, density and character of the neighborhood, and preserved two existing houses on the site while adding 12 additional dwellings.

•

Pine Crest subdivision, located on the east side of Page Street, was platted in 1939 on a 12-acre parcel known as the “Tan Yard lot.” Pine Crest complements the architectural character and scale of the nearby Capitol Heights subdivision, and contains a mixture of architectural styles having a consistent character. Pine Crest, together with Capitol Heights and Minor’s Park, reinforces the small-scale residential character of this area of the City.

•

The Merrimac Trail and Parkway Drive area contain all of the multifamily housing in the Planning Area, with 692 apartments (Colonial Pines, Colonial Towne, Parkway, Village of Woodshire), 160 condominiums (Wyndham East and West, Barclay Square) and 120 townhouses (Shellis Square and Priorslee), for a total of 972 dwelling units. This is the largest concentration of multifamily housing in the City, and compares with 648 multifamily dwelling units in the Mount Vernon Avenue/High Street area, and 318 multifamily dwelling units in the Patriot Lane area. This multifamily area also has a growing youth population, with children under 18 increasing from 240 (15.7%) in 1990 to 351 (19.2%). This is much greater than the citywide figure of 10%, and comprises 25% of the City’s total population under 18.

Housing Analysis The Northeast Triangle Planning Area’s residential component is predominantly renter occupied. In 2012, the Planning Area had a total of 1,227 dwelling units, and 76% were renter-occupied: 255 dwelling units (including two Bed & Breakfast), 280 townhouses and condominiums, and 692 apartments in 37 buildings. There are 285 owner-occupied dwelling units (23%) and 964 renter-occupied dwelling units (77%) in the Planning Area, compared to the City’s 2010 Census total of 44% owner-occupied and 56% renter-occupied. A dwelling unit is considered renter-occupied if the owner’s address is different from the property address, or if it is a unit in a rental apartment complex.

The breakdowns for single-family neighborhoods are: • Brandywyne - 79 dwelling units - (neighborhood #21): 67% owner-occupied; 33% renter occupied.

• Capitol Heights area - 89 dwelling units - (neighborhood #33):39% owner-occupied; 61% renter-occupied.

• Forest Hills area - 33 dwelling units - (neighborhood #31): 58% owner-occupied; 42% renter-occupied.

• Pine Crest - 50 dwelling units - (neighborhood #32): 46% owner-occupied; 54% renter-occupied.

• Queen Mary’s Port - 4 dwelling units - (neighborhood #20): 0% owner-occupied; 100% renter-occupied.

The breakdowns for townhouses and condominiums are: • Barclay Square - 48 dwelling units - (neighborhood #28): 58% owner-occupied; 42% renter-occupied.

• Priorslee - 57 dwelling units - (neighborhood #25): 47% owner-occupied; 53% renter-occupied.

• Shellis Square - 63 dwelling units - (neighborhood #23): 43% owner-occupied; 57% renter-occupied.

• Wyndham - 112 dwelling units - (neighborhood #29): 64% owner-occupied; 36% renter-occupied.

The breakdowns for apartments are: • Colonial Pines – 132 dwelling units – neighborhood #30 0% owner-occupied; 100% renter-occupied.

• Colonial Towne – 148 dwelling units – neighborhood #24 0% owner-occupied; 100% renter-occupied.

• Parkway – 160 dwelling units – neighborhood #27 0% owner-occupied; 100% renter-occupied.

• Woodshire – 252 dwelling units – neighborhood #22 0% owner-occupied; 100% renter-occupied.

Northeast Triangle Total – 1,227 dwelling units 24% owner-occupied; 76% renter-occupied.

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Future Land Use Recommendations for Residential Areas 1. Capitol Landing Road Corridor.

• The Low Density Single Family Detached Residential land use (3 dwelling units/net acre) should remain for the Haynes/Forest Hills/Woods Drivearea, implemented by the existing RS-2 Single Family Dwelling District; and for Capitol Landing Road north of Brandywyne, implemented by the existing RS-1 Single Family Dwelling District.

• The existing Low Density Single Family Detached Residential land use (3 dwelling units/net acre) for the Capitol Heights area, Pine Crest, and Capitol Landing Green should be changed to Medium Density Single Family Detached Residential land use (5 dwelling units/net acre), which is consistent with the existing residential density for this area. This district also allows live/work space for artists and artisans with a special exception from the Board of Zoning Appeals. Capitol Landing Green should be implemented by the existing PDR Planned Development Residential District. The remainder of the area should be implemented by the RS-3 Single Family Dwelling District.

• Medium Density Single Family Detached Residential land use (5 dwelling units/net acre) should remain for Brandywyne, implemented by the PDR Planned Development Residential District.

2. Merrimac Trail • The existing High Density Multifamily Residential land use (14 dwelling units/net acre) should be continued, implemented by the RM-2 Multifamily Dwelling District.

3. Parkway Drive • The existing Medium Density Multifamily Residential land use (8 dwelling units/net acre) north of the Colonial Parkway, and the existing High Density Multifamily Residential land use (14 dwelling units/net acre) south of the Colonial Parkway, should be continued, implemented by the RM-1 and RM-2 Multifamily Dwelling Districts.

QUARTERPATH ROAD AREA The Village at Quarterpath (Area 1). The Village at Quarterpath is a 119 lot subdivision of 77 townhouses, 36 duplexes and six single family homes. It is located at the north end of Quarterpath Road across the street from Quarterpath Park and within walking and biking distance of the Colonial Williamsburg Historic Area and the Downtown area.

Recommendation. The existing High Density Multifamily Residential land use (14 dwelling units/net acre) should be continue, implemented by the RM-2 Multifamily Dwelling District.

Redoubt Park Area (Area 2). This tract of vacant land is located across Quarterpath Road from Redoubt Park. Access to the property needs to be coordinated with access to Redoubt Park and the bicycle and pedestrian facilities planned along Quarterpath Road. This site has the potential

Map 8-8

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for 18 houses on approximately six net developable acres, with views of the Golden Horseshoe Green Course on the west and the historic character of Redoubt Park to the east.

Recommendation. The existing Low Density Single Family Residential land use (3 dwelling units/net acre) should be continued, implemented by the existing RS-1 Single Family Dwelling District.

Quarterpath at Williamsburg (Areas 3-6).

Quarterpath at Williamsburg is a 328 acre mixed use development proposed by Riverside Healthcare Association, Inc., and is located on the east side of Quarterpath Road between the Colonial Williamsburg Foundation Nursery and Route 199.

This master planned development is located on the largest tract of undeveloped land under a single ownership in the City, and fulfills the 1998 Comprehensive Plan’s recommendation that this area be developed as a comprehensively planned mixed use community which protects the beauty of its sensitive environmental and historic areas. The overall design contributes to the City’s character by having a well designed mix of uses, rather than being a monolithic development. development there is a potential for up to 1,467 dwelling units of various types.

For the entire

In addition to the residential component of the development, Riverside’s conceptual plan proposes a hospital (Doctors’ Hospital, with 50 beds, will be completed in early 2013) and approximately 735,000 square feet of commercial and office land use. The non-residential component is discussed in Chapter 10 - Commercial and Economic Development.

The residential component is divided by Tutter’s Neck Pond and its tributary streams, which form the environmentally sensitive center of this project. Area 3, located north of the Pond, has 96 net developable acres and will support up to 480 homes at a Medium Density Single Family Detached Residential land use density of 5 dwelling units/net acre. In conjunction with the development of this area, major improvements are needed to the transportation infrastructure, including a major north-south collector road (Redoubt Road) and facilities for bicycles and pedestrians. This main collector road should be designed to accommodate through traffic between York Street and Route 199 without unduly impacting the residential development.

Recommendation. The existing Medium Density Single Family Detached Residential land use for Area 3 (5 dwelling units/net acre) should be continued. This land use should be initially implemented by the RS-2 Single Family Dwelling District (3 dwelling units/net acre), with an ability to request rezoning to PDR Planned Development Residential District if an acceptable development plan can be designed which addresses the issues outlined above. The PDR District is strongly encouraged, since this category permits a variety of dwelling types, allowing a better integration of the development with sensitive environmental areas.

Adjoining this section is Area 3A, located behind the Colonial Williamsburg Foundation Nursery. This area is also designated Medium Density Single Family Detached Residential land use (5 units/net acre).

While this 11 net acre area is not a part of the adjoining Quarterpath at Williamsburg development (Area 3), it should be planned for the same density in order to allow development at the same scale and intensity. There is the potential for 55 dwelling units on this site at a density of 5 units/net acre, and design and development needs to be coordinated with Quarterpath at Williamsburg to ensure that adequate vehicular access is provided.

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Recom mmendation.T The existing Medium Deensity Single Family Detaached Resideential land use u (5 units//net acre) shou uld be continnued. This shhould be initiaally implemennted by the RS-2 R Single Family Dwellling District (3 dwelling units/net acre), with an ability a to reqquest rezoningg to PDR Plaanned Devellopment Resiidential Distrrict if an accceptable masster plan is developed d whhich addressees the issuess outlined ab bove. The PDR District is encourageed, since this category peermits a varieety of dwelling types, pro oviding a bettter integrationn of the development with sensitive envvironmental arreas. t Tutter’s Neck N Pond, Areas A 4, 5 and 6 are plannned for Econoomic Developpment Movinng south of the land use u (10 dwellling units/neet acre for thhe residential component).. Land devooted exclusiveely to resideential use is limited by thee Zoning Orddinance to nott more than 40% 4 of the tootal area of thhe ED Econoomic Develop pment Districct, and this areea is also subbject to additiional limitatioons through zoning z proffeers: no more than half of the t density alllowed in the ED District, and no more than one dw welling unit for f each 2,000 0 square feet of non-resideential use in the t commerciial area at the eastern end of o the ED District D adjaccent to Jamees City Couunty. The 197.4 1 net deevelopable accres of Econnomic Devellopment land use, with thee approved prroffers, will suupport up to 987 9 dwelling units in Areaas 4, 5 and 6, 6 in addition n to the non-rresidential usses that are discussed d in Chapter 10 - Commerciaal and Econoomic Develop pment. Docttors’ Hospitaal is located on the easterrn end of Arrea 6, and will w be completed in early y 2013. t site is loccated in Chessapeake Bay Preservation Areas, and will w require the t constructiion of Most of the stormwateer managemeent facilities in conjunctiion with devvelopment. Tutter’s Necck Pond has been acquired by b Riverside,, and will be the t primary stormwater s m management faacility. Substtantial buffer areas will be prreserved throu ughout the deevelopment, and a since Rouute 199 is dessignated as a Greenbelt strreet, a 75 foot buuffer will also o be required along its lenggth. Preservinng these envirronmentally sensitive s areaas will be a beneefit both to the t environm ment and to thhe residents of the area. In addition,, 21.4 acres along Quarterpaath Road wass dedicated too the City ass Redoubt Paark, preservinng two Civil War redoubtts that were part of Williamsb burg’s defensiive perimeterr.

Recom mmendation. The Econoomic Developpment land use u along Rooute 199 shoould be contiinued, impleemented by th he ED Econom mic Developm ment District.

HIGH ST TREET High Street, locatted on Richhmond Road and a Ironboundd Road, is a mixed m use devvelopment, with w 225,000 square s feet of commerrcial floor area anchorred by a multiplex m cinnema, combinned with 574 multiffamily dwellinng units.

To date, 191 apartm ments and 16 townhouses have been built. b The exxact future mix m of and apartm ments, tow wnhouses condom miniums haas yet too be determ mined.

T The comm mercial component is discusssed in Chaptter 10 and Econnomic Coommercial Develoopment.

As with the Quarterpaath at William msburg area, no more than 40% of thee area of the ED-2 Econoomic Developpment District caan be devoted d exclusively to residentiall use.

A residenntial density of 12 dwellingg units/ net accre gives this area an urbann ambiance with w accessibillity to shopping and entertain nment, suppllemented by an integratedd pedestrian circulation syystem. Richhmond Road, Ironnbound Road d and Treyburrn Drive provvide vehicularr access to thee site. Middlee Street, an innterior Chapter 8 – Neighborrhoods and Housing H

2013 Williaamsburg Com mprehensivee Plan 8--22

connector street, extends from New Hope Road to Ironbound Road, and residential uses are west of this street. A major stormwater management facility is located on the southern end of the property, and serves as both an environmental and visual amenity for the development. A trail was constructed along the southern edge of the pond, connecting sidewalks on Middle Street and Treyburn Drive. These features both protect and utilize the sensitive environmental features which are part of the City’s Chesapeake Bay Preservation Areas, and which provide a natural counterpoint to this urban development.

Recommendation. The existing Economic Development land use should be continued for this area, implemented by the ED-2 Economic Development District.

OTHER RESIDENTIAL AREAS The remaining residential areas in the City are described in this section. The Neighborhoods map on page 8-10 details neighborhood boundaries, and the accompanying table on page 8-11 provides information on owner and renter occupancy for all of the City’s neighborhoods.

South England Street This area extends south along South England Street from Newport Avenue to Route 199, and begins with an historic neighborhood that is included in the Architectural Preservation District (see Chapter 5 Community Character).

The Colonial Extension Subdivision was developed following the extension of South England Street.

The Colonial Extension Company, Inc. purchased the 299-acre Tazewell Hall property in 1906, and the original subdivision plat had one street parallel to South England Street to the west (Colonial Street, later renamed Tyler Street), five cross streets (Tazewell Hall Avenue, later renamed Newport Avenue, Williamsburg Avenue, Pocahontas Avenue, Powhatan Avenue, and Park Avenue) and a park at the southern end of the subdivision. A few small, vernacular and builder-catalog style houses from this early 1910 development era survive.

Much of the area below Williamsburg Avenue was developed with small Colonial Revival style houses in the 1930s and 1940s. Two eighteenthcentury houses were relocated to this subdivision from the Historic Area: the Powell-Hallam House at 410 Tyler Street and the Galt James Cottage at 420 Tyler Street.

Map 8-9

Recommendation. The existing Low Density Single Family Detached Residential land use (3 dwelling units/net acre) should be continued, implemented by the RS-2 Single Family Dwelling District. The existing Medium Density Multifamily Residential land use (8 units/net acre) should be continued for the Tyler Court Townhouses, implemented by the PUD Planned Unit Development District.

Further south and separated from the Colonial Extension subdivision by the Governor Spotswood Golf Course are four developable areas. Area 1 is located between South England Street and the Colonial Parkway. Area 2 is located on the east side of South England Street between the Golden Horseshoe 2013 Williamsburg Comprehensive Plan

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Green Course and Route 199, adjoining the wetlands of Tutter’s Creek. Together, these two areas have 42 net developable acres with a potential for 127 houses at a residential density of three dwelling units/net acre.

Each of these areas has severe topographical constraints that limit the density of uses, and future development must be sympathetic to the surrounding natural areas and the natural settings of the Colonial Parkway and South England Street. The sensitive environmental land located outside of the developable areas must be maintained as permanent open space to maintain the natural beauty of the area. Another limitation is the fact that South England Street south of the Colonial Extension Subdivision is not a public street, and the City’s Zoning Ordinance requires that lots front on public streets. The solution to this problem is to dedicate the roadway as a public street in order to allow the development of these areas into single-family lots, or to utilize the PDR Planned Development Residential district which allows residential development on private streets that meet City construction standards. The PDR District gives the developer the ability to use a variety of housing types that will help the design respond to the difficult topography of this area.

Recommendation. The existing Low Density Single Family Detached Residential land use (3 dwelling units/net acre) should be continued for this area, implemented by the RS-1 Single Family Dwelling District. The PDR Planned Development Residential District could be utilized if an acceptable master plan can be developed.

Strawberry Plains Road Mixed Use Area. This area is located south of Berkeley School, and borders the office uses fronting on Strawberry Plains Road on the east, existing residential lots on the south, and property owned by the College of William & Mary on the east. This land is suitable for mixed use development with an emphasis on office and institutional land use. The residential component of the mixed use development could be in several different forms: an extension of the Strawberry Plains Subdivision discussed below, providing additional affordable housing in a single-family and/or multifamily format. College student housing and senior housing could also be a component of this Map 8-10 development. At a density range of eight to 14 dwelling units/net acre, this 10 net acre site could support up to 140 dwelling units, which could be integrated with office and/or institutional uses. Care should be taken in planning for the development because of its proximity to Lake Matoaka and the surrounding environmentally sensitive lands, and no rezoning should be approved until an acceptable master plan has been submitted. The major access to the site will be across an 80 foot strip of land between the existing office buildings on Strawberry Plains Road with an opportunity to connect to the street system of the Strawberry Plains Subdivision as a secondary access. Stormwater management will be provided by the existing retention basin.

Recommendation. The existing Mixed Use land use should be continued, implemented by the LB-2 Limited Business Neighborhood District (base density of 8 dwelling units/net acre, and up to 14 Chapter 8 – Neighborhoods and Housing

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dwelling units/net acre with a special use permit). This area should not be rezoned to LB-2 until an acceptable master plan has been submitted. If the master plan is for a residential-only mixed use development, a proffered RM-1 or RM-2 zoning may be more appropriate. Since a rezoning is required to implement the higher residential density, proffers could be submitted to guarantee affordable housing Strawberry Plains Subdivision. The Strawberry Plains Subdivision is located on the east side of Strawberry Plains Road just south of existing residential development, and is adjacent to College Woods on the south and east. The 24 acre site was redeveloped by the Williamsburg Redevelopment and Housing Authority (WRHA), and was recommended for affordable housing in the 1989 and 1998 Comprehensive Plans. In 2000, WRHA prepared a master plan for this site, assembling approximately 30 irregular parcels to create a master planned subdivision centered on a future City park. Fifty-seven new lots were created, and four existing houses were incorporated into the plan. This has created an owneroccupied affordable single family subdivision similar to the Crispus Attucks community developed in 1975 at the corner of Lafayette Street and Armistead Avenue. A large part of the Strawberry Plains site (31%) was preserved as green space, addressing the environmental concerns for this area, which is in the Lake Matoaka watershed. Although the majority of this site was not located in a Chesapeake Bay Preservation Area, extra steps were taken to meet the Chesapeake Bay water quality standards by building a large stormwater management facility adjacent to the subdivision.

Recommendation. The existing Medium Density Single Family Detached Residential land use (5 units/net acre) should be continued, implemented by the existing RS-2 Single Family Dwelling District (a special use permit under the RS-2 zoning was approved in 2001 to allow a residential density of 3.2 dwelling units/net acre).

Wales Area Bristol Commons. Bristol Commons is a 110-unit condominium development on the south side of Ironbound Road, bordering the Virginia Gazette to the east, the High Street Economic Development Area to the south, and the single family Wales Subdivision to the west, designated High Density Multifamily Residential land use (14 units/net acre). This area fits in with the evolving urban character of this area, and is within walking distance of High Street. The three lots fronting on Ironbound Road west of Bristol Commons are more suited for multifamily development rather than the single-family land use of the Wales Subdivision.

Recommendation. The existing High Density Multifamily Residential land use (14 dwelling units/net acre) should be continued, implemented by the RM-2 Multifamily Dwelling District.

Wales Subdivision. The Wales subdivision was developed in the 1940’s and includes over 40 homes. It is named after a former pastor of the Mt. Ararat Baptist Church who purchased the land and sold it on a lotby-lot basis after naming the internal streets for each of his four children: Ernestine, Roland, Calvin, and Wilhelmina. With help from Housing Partnerships, a Community Development Block Grant was received in 1996 to begin the revitalization process in the northern developed portion of the subdivision.

This resulted in the renovation of several houses and many infrastructure improvements: 300 feet of new sewer line and connections to nine existing houses on Roland Street east of Ernestine Avenue; upgraded water lines and new fire hydrants; widening of Ernestine and Roland Streets with curb and gutter; and replacement of existing drainage ditches with a 15� storm drain along Roland Street. The undeveloped southern half of the Wales Subdivision (3.8 net developable acres) has the potential to build on the improvements that have been made to the front half, expanding this area as a low and moderate income area. Access is by the extension of Ernestine Avenue to the south, but the creation of a practical layout for the new houses will require replatting the existing lots to create a subdivision that respects the environmental constraints of the property. At a density of 5 dwelling units/net acre, this undeveloped southern half will support up to 19 new single-family homes. However, because of the need for additional low and moderate income housing in the City, this area should be further studied to determine 2013 Williamsburg Comprehensive Plan

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whether or not it should be considered for a higher residential density of eight or 14 units/net acre (the density of the adjoining Bristol Commons is 14 units/net acre).

At 14 dwelling units/net acre, up to 53 new dwelling units would be allowed. For a higher density plan to be acceptable, it would need to respect the character of the existing single family area, as well as respecting the environmental constraints of the property. The new development needs to create a suitable pedestrian environment by connecting to the existing sidewalk system.

Recommendation.

The existing Medium Density Single Family Detached land use (5 dwelling Map 8-11 units/net acre) should be continued for this area, implemented by the RS-3 Single Family Dwelling District. If future studies determine that a higher residential density is suitable for this area, amendments to the Comprehensive Plan should be considered. Since rezoning is required to implement the higher residential density, proffers could be submitted to guarantee affordable housing.

Jamestown Road Area (east of Lake Matoaka) This area extends along Jamestown Road from Chandler Court to Lake Matoaka, and includes four City neighborhoods: Cary/Griffin/Newport, Indian Springs, Burns Lane and Rolfe Road. There are four historic areas that are included in the Architectural Preservation District (see Chapter 5 - Community Character): Chandler Court was developed in the late 1920s by John Garland Pollard, who served as Mayor and was elected Governor of Virginia in 1930. Chandler Court has a formal entrance from Jamestown Road and is characterized by simple Colonial Revival style houses with well developed residential landscaping. There is a distinctive “court� in the center, and an unusual pedestrian connection to Pollard Park. Chandler Court was placed on the National and State Registers of Historic Places in 1997.

Pollard Park adjoins Chandler Court to the south, and was developed by Governor Pollard in the 1930s. The landscaped ravine in the center provides a park-like setting for its Colonial Revival style houses that reflect the influence of the contemporary Colonial Williamsburg restoration. Pollard Park was added to the National and State Registers of Historic Places in 1997.

Indian Springs was developed in the 1940s and 1950s, and is characterized by small, predominantly Colonial Revival style houses in a variety of forms. This single-access, looping subdivision is significant in that the plat designated parks, parkways and walkways to be shared by the residents.

Burns Lane Subdivision was developed in several stages. The upper portion was platted between 1929 and the 1940s, and is characterized by small, predominantly Colonial Revival style houses in a variety of forms. The lower portion, which is outside of the Architectural Preservation District, was subdivided in 1946 and was developed in the 1950s and 1960s.

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2013 Williamsburg Comprehensive Plan 8-26

Like any of the downtown residential neighborhoods, portions of the Jamestown Road area are not exclusively residential in character. In addition to the dwellings described above, there are 10 College buildings and five church or synagogue buildings. Although not in the “Jamestown Road Focus Area,” the main campus of the College is directly across the street, and the edge along Jamestown Road is characterized by dormitories, classroom buildings, Phi Beta Kappa Hall, and parking lots.

An important transitional use for this area is the location of Room Rentals to Visitors (Bed & Breakfast) along Jamestown Road. The Zoning Ordinance allows up to 15 Bed and Breakfast establishments along Jamestown Road, and eight were operating in 2012.

Recommendations 1. The existing Low Density Single Family Detached Residential land use (3 dwelling units/net acre) should be continued for this area, with the exception of the existing High Density Multifamily Residential land use (14 dwelling units/net acre) for the Ludwell Apartments on Rolfe Road.

These areas are implemented by the RS-2 Single Family Dwelling District and by the RM-2 Multifamily Dwelling District.

2. The College of William & Mary should be encouraged to improve its maintenance of its Jamestown Road houses between Cary Street and the Undergraduate Admissions Office, and to consider neighborhood impacts as its construction and expansion plans along Jamestown Road are developed. In the event that these houses are no longer needed for College purposes, the College is encouraged to offer them for conversion back to residential use.

Jamestown Road Area (west of Lake Matoaka) Jamestown Road west of Lake Matoaka is a stable residential area. Single-family residential neighborhoods in this area are Walnut Hills, Richneck Heights, Holly Hills, Yorkshire and The Woods.

Recommendation. The existing Low Density Single Family Detached Residential land use (3 dwelling units/net acre) should be continued for the single-family areas, implemented by the RS-1 Single Family Dwelling District.

Multifamily developments on the east side of Route 199 are Village Green and Woodlands Condominiums, as well as the adjoining Holly Hills Carriage Homes, a duplex subdivision. A 6.8 acre parcel between Route 199 and Holly Hills Carriage Homes will accommodate up to 20 new duplex or multifamily dwelling units.

Recommendation. The existing Medium Density Multifamily Residential land use (8 dwelling units/net acre) for these areas should be continued, implemented by the RM-1 Multifamily Dwelling District.

On the west side of the Jamestown Road/Route 199 intersection are Peppertree and Jamestown Commons condominiums, adjacent to commercial areas and developed at a higher density than the east side of the street.

Recommendation. The existing High Density Multifamily Residential land use (14 dwelling units/net acre) for these areas should be continued, implemented by the RM-2 Multifamily Dwelling District.

Richmond Road Area (Virginia Avenue to Brooks Street, plus Matoaka Court) This area extends along Richmond Road from Virginia Avenue to Brooks Street, plus Matoaka Court, and includes three City neighborhoods: Matoaka Court (#13), College Terrace (#14) and West Williamsburg Heights (#16). There are two historic areas that are included in the Architectural Preservation District (see Chapter 5 - Community Character).

College Terrace was developed by the College of William & Mary in the late 1920s and early 1930s on land subdivided from the Bright Farm. Also included is the Henley Jones Subdivision on the north side of Brooks Street, platted in 1933. One of the purposes of the development was to provide housing for professors at the College, but several fraternity houses were also built. The majority of 2013 Williamsburg Comprehensive Plan

Chapter 8 – Neighborhoods and Housing 8-27

the houses were built in the Colonial Revival style. The landscaped median along College Terrace, the main interior street, provides a "parkway" character. College Terrace, along with West Williamsburg Heights, provides a transition between the commercial and office areas on Richmond Road west of Brooks Street and the College campus to the east.

West Williamsburg Heights is located on the north side of Richmond Road between Virginia Avenue and Nelson Avenue on land subdivided from the Bozarth Farm in 1925. Harry D. Bozarth developed this neighborhood in the late 1920s and 1930s, characterized by predominantly Colonial Revival style houses in a variety of forms. The adjoining Bozarth Court Extended, located at the east end of Virginia Avenue and Harrison Avenue, was platted in 1939. West Williamsburg Heights complements College Terrace across Richmond Road and helps create a distinctive approach to the College of William and Mary and the Colonial Williamsburg Historic Area.

A transitional use for this area is the location of Room Rentals to Visitors (Bed & Breakfasts) along Richmond Road. Bed & Breakfasts have become an important stabilizing influence along the entrance corridors bordering the City’s older residential neighborhoods. The Zoning Ordinance allows up to 10 Bed and Breakfast establishments along Richmond Road, and nine were operating in 2012.

Recommendation. The existing Low Density Single Family Detached Residential land use (3 dwelling units/net acre) should be continued for this area, including the vacant “Casey Field.”

Richmond Road/Longhill Road Area The residential areas between Richmond Road and Longhill Road are a combination single-family and multifamily development. The oldest single-family subdivision in the area, Skipwith Farms, is bracketed by the more recent subdivisions of Longhill Woods, Piney Creek and Savannah Green.

Recommendation. The existing Low Density Single Family Detached Residential land use (3 dwelling units/net acre) should be continued for the single family subdivision, implemented by the RS-2 Single Family Residential District and the PUD Planned Unit Development District for Longhill Woods.

The multifamily developments along Richmond Road, with a total of 330 dwelling units, are one of five major concentrations of multifamily housing in the City (the Merrimac Trail, Mt. Vernon Avenue, High Street and Jamestown Road/Route 199 areas are the others).

Recommendation. The existing High Density Multifamily Residential land use (14 dwelling units/net acre) should be continued for the three developments on Patriot Lane (Patriot Condominiums, Patriot III and Westgate at Williamsburg), implemented by the RM-2 Multifamily Dwelling District. The existing Medium Density Multifamily Residential land use (8 dwelling units/net acre) for the adjoining Claiborne at Williamsburg should be continued. The same Medium Density Multifamily land use (8 units/net acre) should be continued for the small area on Waltz Farm Drive adjacent to Patriot Condominiums - approximately eight dwelling units could be accommodated on this one net acre site.

Further east at the entrance to Skipwith Farms, the Townhomes at Skipwith should also continue to be designated Medium Density Multifamily Residential land use (8 dwelling units/net acre). All of these land uses should be implemented by the RM-1 Multifamily Dwelling District.

Highland Park Area Highland Park is a residential neighborhood located along North Henry Street north of the CSX Railroad and west of Route 132. A 12 acre undeveloped parcel is located on the east side of North Henry Street north of the 29-unit WRHA subsidized apartment complex on Dunning Street. This land has the potential to be developed as a low and moderate income single family detached subdivision similar in character and quality to the Crispus Attucks and Strawberry Plains subdivisions. To maximize the amount of housing that could be provided, and with an acceptable design, housing density could be increased to six dwelling units/net acre using the special use permit process in the RS-2 District. The topography of the site will require careful placement of roadways and the maintenance of proper screening from Route 132, which is Chapter 8 – Neighborhoods and Housing

2013 Williamsburg Comprehensive Plan 8-28

designated as a Greenbelt street. To create a suitable pedestrian environment, sidewalks should be provided on both sides of the street and link to the existing sidewalks on North Henry Street.

Recommendation. This existing Low Density Single Family Detached Residential land use (3 dwelling units/net acre) should be continued, except for a small portion adjacent to Dunning Street which should continue to be designated Medium Density Multifamily Residential land use (8 units/net acre) – this encompasses the 29-unit apartment complex owned by the Williamsburg Redevelopment and Housing Authority. These land uses should be implemented by the RS-2 Single Family Dwelling District and by the RM-1 Multifamily Dwelling District.

South Henry Street South Henry Street south of Mimosa Drive adjoins the Downtown Planning Area, and is comprised of four distinct residential developments. The Coves is a single-family subdivision that is bordered on either side by the Port Anne and Richmond Hill single-family cluster subdivisions. The Oaks on Henry, a townhouse subdivision, is located on the east side of South Henry Street just south of Papermill Creek.

Recommendation. The existing Low Density Single Family Detached Residential land use (3 units/net acre) should be continued the single-family areas, implemented by RS-1 Single Family Dwelling District and the existing PUD Planned Unit Development District for Port Anne. The existing Medium Density Multifamily Residential land use (8 units/net acre) should be continued for The Oaks on Henry, implemented by the RM-1 Multifamily Dwelling District.

AFFORDABLE HOUSING Williamsburg’s Comprehensive Plans have discussed affordable housing and the improvement of housing conditions since 1953. Recommendations in 1953 and 1968 led to the establishment of the Williamsburg Redevelopment and Housing Authority (WRHA) in 1969. Projects sponsored by the WRHA include Crispus Attucks Place, a 19 lot single-family subdivision; Strawberry Plains Subdivision, a 56 lot singlefamily subdivision; the Blayton Building, a 38 unit elderly housing apartment complex on Scotland Street; and three subsidized apartment complexes on Mimosa Drive (14 units), in Highland Park (29 units), and on New Hope Road (28 units). This is a total of 75 single family lots and 104 subsidized rental units.

2012 National Citizen Survey Housing was one of the issues addressed in the 2012 National Citizen Survey prepared for Williamsburg

by The National Citizen Surveytm. This is how the Survey described the issue: Housing variety and affordability are not luxuries for any community. When there are too few options for housing style and affordability, the characteristics of a community tilt toward a single group, often of well-off residents. While this may seem attractive to a community, the absence of affordable townhouses, condominiums, mobile homes, single family detached homes and apartments means that in addition to losing the vibrancy of diverse thoughts and lifestyles, the community loses the service workers that sustain all communities - police officers, school teachers, house painters and electricians. These workers must live elsewhere and commute in at great personal cost and to the detriment of traffic flow and air quality. Furthermore lower income residents pay so much of their income to rent or mortgage that little remains to bolster their own quality of life or local business.

The survey of the City of Williamsburg residents asked respondents to reflect on the availability of affordable housing as well as the variety of housing options. The availability of affordable housing was rated as “excellent” or “good” by 38% of respondents, while the variety of housing options was rated as “excellent” or “good” by 53% of respondents. The rating of perceived affordable housing availability was worse in the City of Williamsburg than the ratings, on average, in comparison jurisdictions. However, ratings for both the availability of affordable

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quality housing and the variety of housing options increased when compared to the previous year’s survey.

To augment the perceptions of affordable housing in Williamsburg, the cost of housing as reported in the survey was compared to residents’ reported monthly income to create a rough estimate of the proportion of residents of the City of Williamsburg experiencing housing cost stress. About 34% of survey participants were found to pay housing costs of more than 30% of their monthly household income.

Figure 8‐9: Ratings of Housing in Community

Source: 2012 National Citizen Survey

Housing Needs Assessment In 2007, Williamsburg and James City County commissioned a Housing Needs Assessment that was prepared by the Center for Housing Research at Virginia Tech. This study said that: A housing affordability gap forces the lowest income households in James City County and the City of Williamsburg to use a high portion of their income for housing. When considering all households with income below 80% of HUD AMFI [Area Median Family Income], about 35% of James City County’s and about 41% of Williamsburg’s renters and half of the owners in both jurisdictions were forced to spend more than 30% of their income for housing.

Echoing the analysis of the 2012 National Citizen Survey, the Housing Needs Assessment said that “A shortage of ‘workforce housing’ or housing that is affordable to essential workers of a community can lead to a decline in economic advancement and growth.”

Some other findings from the 2007 Housing Needs Assessment were: • •

•

Multi-family housing is accounting for an ever-increasing portion of newly-constructed residential housing in James City County and the City of Williamsburg.

Demand for housing in Williamsburg is concentrated in the non-family category, which we project to increase to 50% of households by 2020. Although most of these households are younger, the fastest growing segment will be seniors living alone. The market share of married-couple households is projected to go down by 2020.

The presence of college students help drive up rental costs. Most students have support from family or loans to help with rental costs and students are able to share the costs of renting with other students (not a reasonable choice for a family). Students compete with local residents for a limited number of rental units.

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2013 Williamsburg Comprehensive Plan 8-30

Workforce Housing in a Neighborhood Context Following the Housing Needs Assessment was Workforce Housing in a Neighborhood Context, a report of the Workforce Housing Committee of the Greater Williamsburg Chamber and Tourism Alliance. This report considered “workforce housing” to be that which is affordable to families with incomes from 30% to 120% of median family income. “Affordable housing” was considered by the Committee as affordable to families earning 60% to 80% of median family income, and they noted that incomes under 60% will usually mean only rental housing is available. The Workforce Housing Committee concluded that workforce housing is best included as an integral part of mixed cost, mixed type, and mixed use developments, where a variety of housing types and sizes can comfortably co-exist.

Housing Affordability Housing affordability is expressed as a ratio of housing cost to household income, but the accepted guideline is that housing should not cost more than 30% of the total household income. Housing within this range is termed “affordable housing,” “low/moderate income housing,” and/or “workforce housing.”

The baseline used to determine affordability is the HUD (U.S. Department of Housing and Urban Development) Area Medium Income (AMI), which for 2012 is $69,900 for the Virginia Beach-NorfolkNewport News MSA (Metropolitan Statistical Area). Within this affordable range, 80-120% AMI is considered to be moderate income ($55,920-$83,800), 50-80% is considered to be low income ($34,950$55,920), and 30-50% is considered to be very low income ($20,970-$55,920). When you look at the 5080% of AMI range, this roughly equates to a house value of $150,000-$250,000.

A large percentage of the City’s existing housing stock (excluding rental apartments) falls within this low income affordable range (50-80% AMI), and this is shown on Table 8-5, Housing in Affordable Range, along with figures for James City County and York County. The City’s property tax records, based on the July 1, 2012 reassessment, listed 3,143 taxable parcels for single-family, duplex, condominium and townhouse dwellings. For the 50-80% of AMI range (house values of $150,000-$250,000), there are 1,016 existing dwelling units in the affordable range, which represents 32% of the City’s housing stock (excluding rental apartments).

Table 8-5: 2012 Housing in Affordable Range Williamsburg Range

$100,000 or less $150,000 or less $200,000 or less $250,000 or less

Number

James City County

Percent

253 722 1,349 1,738`

8.1% 23.0% 42.9% 55.3%

Number

Percent

687 3,039 6,393 10,218

2.6% 11.5% 24.3% 38.8%

York County Number

168 1,971 4,317 8,079

Percent

0.8% 9.6% 21.1% 39.5%

Source: 2012 Property Tax Records for Williamsburg, James City County and York County

Table 8-6: 2012 Housing Values Williamsburg Range

$100,000 or less $100,000-$150,000 $150,000-$200,000 $200,000-$250,000 $250,000 or more Total

Number

253 469 627 389 1,405 3,143

James City County

York County

Percent

Number

Percent

Number

Percent

8.1% 14.9% 19.9% 12.4% 44.7% 100.0%

687 2,352 3,354 3,825 16,096 26,314

2.6% 8.9% 12.7% 14.5% 61.2% 100.0%

168 1,803 2,346 3,762 12,371 20,450

0.8% 8.8% 11.5% 18.4% 60.5% 100.0%

Source: 2012 Property Tax Records for Williamsburg, James City County and York County

Encouraging Affordable Housing Through the efforts of the Williamsburg Redevelopment and Housing Authority (WRHA), the City has 104 subsidized rental units managed by WRHA, plus 75 single family lots that have been developed and sold through the efforts of the WRHA (Crispus Attucks and Strawberry Plains Subdivision). The City administration has worked closely with WRHA in obtaining Community Development Block Grants for 2013 Williamsburg Comprehensive Plan

Chapter 8 – Neighborhoods and Housing 8-31

several areas: Wales Subdivision, Strawberry Plains Subdivision and Braxton Court. Most recently, the City applied in March 2011 for a grant to enlarge the Blayton Building, proposing a new building with 38 senior apartments. Unfortunately, the grant was not funded.

The existing Zoning Ordinance contains many provisions that encourage innovative housing and could reduce costs for new housing. Cluster subdivisions are allowed by right in the RS-1, RS-2, RM-1 and RM-2 Districts, and the cluster subdivision density in the RS-2 District can be increased from 3 to 6 dwelling units/net acre with a special use permit. The PDR Planned Development Residential District encourages innovative and creative residential design with a variety of housing types, and was used by the Brandywyne and Capitol Landing Green subdivisions. The PDC Planned Development College District encourages student housing in areas designated as Downtown Commercial land use, and was used for the Tribe Square mixed use project on Richmond Road across from the main campus. The PDU Planned Development Urban District encourages multifamily housing in an evolving urban mixed use area in close proximity to the College of William and Mary (Midtown Planning Area), and was used by the City Lofts student apartment project on Richmond Road.

Zoning proffers can also be used to increase the supply of affordable housing. When the Village at Quarterpath was rezoned for a higher density, the developer proffered that 10% of the dwelling units (12 units out of a total of 119) would be sold for $220,000 or less, which is in the range of affordable housing identified in the Housing Affordability section on page 8-31. As of July 2012, 14 townhouses in this development have been sold for less than $220,000, and six have been sold for less than $200,000. This is a model that could be used for other new developments that require rezoning for increased density.

The 2012 Comprehensive Plan recommends a number of new initiatives that could increase the affordable housing supply: • •

•

•

•

Increasing housing in the Downtown Planning Area. This adds a potential for 100 to 200 new dwelling units in the downtown area.

Allowing residential density to be increased with a special use permit in the Downtown Planning Area (Downtown Commercial and Mixed Use land use) and in the Midtown Planning Area (Urban Commercial and Urban Residential land use) provided that its scale and character properly relates to the surrounding areas and neighborhoods.

Positioning the Midtown Planning Area as a location for new student housing. Through the redevelopment of existing shopping centers and apartments in this area over time, there could be a potential for 300 or more new dwelling units with an emphasis on student housing. This could free up affordable housing in existing neighborhoods if students move from existing single family housing into new apartments that are designed to address student needs. Providing more student housing is important, particularly since the Housing Needs Assessment noted that college students help to drive up housing costs.

Designating the area between Penniman Road and the CSX Railroad in the Northeast Triangle Planning Area as Mixed Use land use. This area has potential for a high quality mixed use development with a major residential component, with possibilities for both senior and student housing.

Taking advantage of zoning proffers for the provision of affordable housing when property is rezoned to a higher density.

Another available option that is authorized by the State Code is the provision of density bonuses to encourage the provision of affordable housing (both owner- and renter-occupied). Up to a 30% density increase can be approved, and up to 17% of the total units approved can be required to be affordable dwelling units. If the density increase is less than 30%, the same 30% - 17% ratio must be maintained.

This means that for a 20% density increase, 11% of the total dwelling units must be affordable; and that for a 10% density increase, 6% of the total dwelling units must be affordable. The State Code states that “when establishing an affordable housing dwelling unit program, the sales and rental price for affordable Chapter 8 – Neighborhoods and Housing

2013 Williamsburg Comprehensive Plan 8-32

dwelling units with a development shall be established such that the owner/applicant shall not suffer economic loss as a result of providing the required affordable dwelling units.” The density bonus program, as outlined in the State Code, is a voluntary program that can be used for new development. For Williamsburg, the specific Comprehensive Plan recommendations listed above are a better way to encourage affordable housing than establishing a new density bonus program.

Potential Affordable Housing Locations There are several locations in the City that are suitable for affordable housing, which are listed below and shown in Map 8-12, Affordable Housing Locations: •

•

•

•

The undeveloped portion of the Wales subdivision on Ironbound Road (page 8-24) will support 19 additional single-family dwellings at a Medium Density Single Family Detached density of 5 dwelling units/net acre, and would build on the upgrades made to the existing subdivision by a Community Development Block Grant in 1996. If future studies determine that a higher residential density is suitable for this area, up to 53 dwellings could be allowed at a High Density Multifamily Residential density of 14 dwelling units/net acre. This requires an amendment to the Comprehensive Plan and a rezoning, which provides an opportunity for proffers for affordable housing. A plus for this area is that it is within walking distance of the High Street development.

The Mixed Use area on Strawberry Plains Road south of Berkeley Middle School (page 8-22) will support up to 140 dwelling units of various types in a mixed use context, or a lesser number of houses if developed as a single-family subdivision to match the existing Strawberry Plains Redevelopment Area. College student housing and senior housing could also be a component of this development. This area is within walking distance of Berkeley Middle School, the Strawberry Plains Community Park to the south, and the New Town development in James City County, and is adjacent to the College of William and Mary. A rezoning is required to implement the higher density, and proffers could be submitted to guarantee affordable housing.

The Williamsburg Redevelopment and Housing Authority’s Blayton Building property in the Downtown area at 613 Scotland Street (page 8-15) provides the only senior specific housing in the City. This property is designated as Mixed Use land use, allowing a base density of 14 dwelling units/net acre, and increased density with a special use permit provided that the scale and character of the project properly relates to the surrounding neighborhoods. This could allow the Blayton Building to be expanded from the existing 38 subsidized apartments for low and moderate income seniors and disabled persons, either as a residential or as a mixed use development with senior housing as a major component.

A 12 acre undeveloped parcel in the Highland Park neighborhood (page 8-28) is located on the east side of North Henry Street north of the 29-unit WRHA subsidized apartment complex on Dunning Street. This land has the potential to be developed as a single family detached subdivision similar in character and quality to the Crispus Attucks and Strawberry Plains subdivisions. The topography of the site will require careful placement of roadways and the maintenance of proper screening from Route 132, which is designated as a Greenbelt street, and the cluster subdivision provisions in the RS-2 District would need to be used. This area is within walking distance of the downtown area and the Colonial Williamsburg Historic Area.

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Affordable Housing Locations 1.

2.

3.

4.

5.

6.

7.

8.

9.

10.

11.

8

Existing Sylvia Brown Apartments (WRHA) Strawberry Plans Subdivision (WRHA) Dunning Street Apartments (WRHA) Crispus Attucks Subdivision (WRHA) Blayton Building (WRHA) Mimosa Drive Apartments (WRHA) Village at Quarterpath (zoning proffers) Potential Wales Subdivision (zoning proffers) Mixed Use Area (zoning proffers) Blayton Building (WRHA) Highland Park Parcel (cluster subdivision)

1 11 3 10

9

4 5

2 6

7

Map 8-12

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2013 Williamsburg Comprehensive Plan 8-34

Chapter 9 Institutions Since its establishment in 1699, Williamsburg has been defined by its major public institutions. The College of William and Mary and Bruton Parish Church preceded the City and were its first institutional partners. The colonial government was based here from Williamsburg’s founding in 1699 until the capital was moved to Richmond in 1780. The Publick Hospital, which became Eastern State Hospital, was a major presence in the City from 1773 until completing its move to James City County in 1970.

Finally, the Colonial Williamsburg Foundation traces its origin to 1926 when John D. Rockefeller, Jr. began the restoration of the Colonial Capital. The College and Colonial Williamsburg comprise 43% of the City’s total land area. This chapter will discuss the impact of these two institutions on the City.

THE COLLEGE OF WILLIAM AND MARY The College of William and Mary, one of the nation’s premier state-assisted liberal arts universities, has played an integral role in the City from the start. The College was chartered in 1693 by King William III and Queen Mary II, and is the second oldest educational institution in the country. Today, College enrollment is 8,200 students, projected to grow to 8,400 students by 2015. The College provides highquality undergraduate, graduate and professional education, and is comprised of the Schools of Arts and Sciences, Business Administration, Education, Law, and Marine Science. The College had 595 full-time faculty members and 246 part-time faculty members in 2011.

The centerpiece of the College is the Wren Building, attributed apocryphally to the English architect Sir Christopher Wren. It is the oldest academic building in continuous use in the United States, constructed between 1695 and 1699, prior to the founding of Williamsburg. The Wren Building, together with the Brafferton (1723) and the President’s House (1732), comprise the original campus of the College. The restoration of the Wren building was the first project undertaken in Williamsburg by John D. Rockefeller, Jr. Along with the restored Colonial Williamsburg Historic Area, this original campus is a character defining feature of Williamsburg.

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Physical Improvements The original campus served the needs of the College from 1693 until 1920. From 1920 until 1950, the “Old Campus” was developed west of the Wren Building to the Crim Dell area. The “New Campus” developed in the 1960s with buildings of a modern design. Strategic infill took place between 1980 and 2002. Since 2005, William and Mary has completed construction of the Jamestown Residence Halls on Jamestown Road which house 388 students; the new School of Business at the northwest corner of Jamestown Road and Ukrop Way which provides 166,000 square feet of classroom, office and meeting spaces; a new Parking Garage on Campus Drive adjacent to Adair Gymnasium; the 114,000 square foot School of Education on Monticello Avenue; the Integrated Science Center Phases I & II on Landrum Drive; the Cohen Career Center adjacent to the Sadler Center; and the Jimmy Laycocke Football Facility on Gooch Drive. During this period, the College also renovated the Lake Matoaka Amphitheater. The College will complete construction in August 2013 of eleven new Fraternity Houses along Ukrop Way that will increase the residential housing capacity by 187 beds. Within the next five years, it is anticipated that Phase III of the Integrated Science Center on Landrum Drive will be completed. Additional work will include the renovation of Tucker and Tyler Halls on the old campus.

Map 9-1 William and Mary Main Campus

Chapter 9 – Institutions

2013 Williamsburg Comprehensive Plan 9-2

The Student View In anticipation of the 2006 Comprehensive Plan, the Sharpe Scholars completed three projects for the City: Analysis of Off-Campus Housing in 2002, the development of an Off-Campus Housing web site in 2003, and a Student Survey in 2004. All three of these studies provided many insights about the City from the student perspective, important for the City to know since approximately one-half of the City’s population is made up of students at the College. In addition to these studies, the opinions of William and Mary students were actively solicited during the preparation of the 2006 Comprehensive Plan. For the 2012 Comprehensive Plan, Planning staff met with Student Assembly representatives in the early stages of the process, and a Planning Commission work session with Student Assembly representatives was held in September 2011. In addition, a student was appointed as a member of Planning Commission in December 2011, which has provided a valuable student insight in the preparation of the 2012 Comprehensive Plan Update.

Planning Issues The College, as an arm of the Commonwealth, is exempt from City land use regulation. This makes it important that the College and the City work together to preserve Williamsburg’s very special character.

The City does not wish to interfere with the College’s ability to plan and decide on land use issues interior to the campus, but becomes concerned when these issues affect adjoining City neighborhoods, commercial areas and historic areas. While many college towns have given up on close-in residential neighborhoods adjacent to campus, Williamsburg will not surrender the character and livability of these valuable and historic neighborhoods.

Architectural Character. The architectural character of the College is of utmost importance to both the College and the City. Recognizing the importance of this issue, the College developed a Campus Design Guidelines Report in May, 2003. This document formulates design guidelines to help reestablish the consistency of planning and design principles exemplified in the Old Campus, and envisions “a unified campus image and character based on the historic expression of the Old Campus and the Sunken Garden Quadrangle, formulated on a new framework of clearly organized pedestrian pathways and public spaces.

The disparate images portrayed by multiple existing campus precincts will be consolidated into a seamless transition between three newly defined campus landforms: North Campus, South Campus and West Woods.” The general architectural framework in this report echos the urban design concerns expressed in Chapter 5 – Community Character as well as in the Design Guidelines adopted by the City’s Architectural Review Board. The College and the City need to work cooperatively together to make sure that new buildings constructed on the campus complement the character of the surrounding City neighborhoods, and that new construction in the City does the same for the character of the College. The area adjoining the Old Campus is located in the City’s Architectural Preservation District, and the New Campus adjoins the Corridor Protection District along Jamestown Road and Monticello Avenue.

Student Housing. The College had a total enrollment in 2011-12 of 8,200 students, which includes 6,071 undergraduates and 2,129 graduate students. Of the 6,071 undergraduates, 5,967 were enrolled as full time students (99%). Of the 2,129 graduate students, 1,629 were enrolled as full-time students (80%).

On-campus housing is provided for 4,381 of the 5,987 full-time undergraduates (73%), and for 239 of the 1,697 full-time graduate students (14%). For the entire student body, 4,620 full-time students are housed on-campus (63%).

There will be a net increase of 187 beds for undergraduates when the new fraternity complex is completed in August 2013. This will increase undergraduate beds to 4,568, which will accommodate 74% of the undergraduates anticipated for the 2015-16 school year. Undergraduate enrollment is projected to grow to 6,200 students in 2015-16 school year, a 2% increase over the 2011-12 enrollment of 6,071 undergraduates.

There is a great demand for student housing on campus and in the area surrounding the College, which has an impact on the largely single family neighborhoods adjacent to the College along Richmond Road 2013 Williamsburg Comprehensive Plan

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and Jamestown Road. It is the responsibility of the College to provide an appropriate amount of student housing on the campus. Additionally, City regulations should be developed to encourage appropriate student-oriented housing off-campus to supplement the housing provided by the College. To implement these two goals, the Planning Department worked closely with the College in the planning for the Tribe Square project, which was completed in 2011 and provides 56 student beds in 14 four-bedroom apartments. The City also worked with the developer of the Prince George Commons project at 521 Prince George Street, which received site plan approval in 2011 and will provide seven one-bedroom apartments on the second floor; and with the developer of the City Lofts project at 1406 Richmond Roads which was approved in 2012 and will provide 143 student beds in 94 one-bedroom apartments. In addition to these projects, there are other options that can help meet the need for student housing: • Construction of additional student housing on the main campus.

• Construction of new multifamily units in the Midtown Planning Area. City Lofts was approved in 2012, and provides 94 one-bedroom apartments to house 143 students. Other future opportunities include adding student apartments as a part of a redevelopment of the Williamsburg Shopping Center, and redeveloping all or a portion of the Lawson Apartments on Mount Vernon Avenue for higher density student apartments. See Chapter 10 – Commercial and Economic Development for more detailed information on the Midtown Planning Area.

• Construction of new multifamily units planned for High Street Williamsburg, Quarterpath at Williamsburg, and in the Downtown area. While these are not planned specifically as student housing, these new units will give students wishing to live off-campus additional options outside of the traditional close-in City neighborhoods. See Chapter 10 – Commercial and Economic Development for more detailed information on these areas.

• Using the Dillard Complex for student housing or student apartments. The existing buildings could be either renovated or demolished and redeveloped. This area is connected to the main campus by Treyburn Drive, and is located next to the mixed-use High Street Williamsburg development. It is also served by Williamsburg Area Transport bus service, including the Williamsburg Trolley.

Commercial Development Adjacent to the Main Campus. One of the successes of the City’s recent planning efforts is the redevelopment of the College Commercial area on the north side of Richmond Road between Armistead Avenue and Scotland Street. This area is well located to serve the needs of the large number of students on the main campus. New businesses that have located in this area are the Wawa convenience store (2001), the four restaurants at Tribe Square (2011), the restaurant at the Cook Building (2012), and Prince George Commons (approved 2009, awaiting construction). Redevelopment in this area should be done carefully and with great sensitivity to the existing historic character. The City’s Architectural Review Board should closely review the design of any new proposed building before approving the demolition of existing buildings to make sure that the proposal conforms to the City’s Design Guidelines.

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Tribe Square

Other nearby locations with potential for commercial expansion that will also serve student needs are the Arts and Cultural District Mixed Use area between Brooks Street and the Williamsburg Shopping Center, and the Urban Commercial area centered around the Williamsburg and Monticello Shopping Centers (see Chapter 10 – Commercial and Economic Development).

The College administration and the William and Mary Real Estate Foundation should work closely with the City’s Planning Department and Economic Development Manager to help encourage appropriate redevelopment in these areas.

Traffic and Parking. Traffic flow and parking in and around the College is an important concern for the City, and resulted in the Jamestown Road Area Traffic and Parking Study, prepared for the City and the College by Kimley Horn and Associates in 2004. Issues that were addressed by the study included improvements to sidewalks and crosswalks, geometric improvements to the Ukrop Way/Jamestown Road intersection, improvements to the residential permit parking program, construction by the College of satellite parking when the Business School is relocated to Jamestown Road, consideration of traffic calming measures for the Griffin Avenue/Newport Avenue cut-through traffic, and consideration of a roundabout at the College Corner intersection. The College Corner Transportation Study in 2005 further studied the College Corner intersection, and recommended that a roundabout not be constructed because vehicular/pedestrian conflicts make it operationally difficult. The College and the City should work closely together on any future projects that create traffic and parking impacts on City neighborhoods adjoining the campus.

Pedestrian and bicycle facilities. Pedestrian and bicycle facilities are an important part of the College, and several improvements and expansions to the existing system are needed: • High Street Williamsburg is a major destination for students. A bicycle and pedestrian link has been completed from the main campus to the new School of Education, but there is no connection from the School of Education to the sidewalk on Treyburn Drive, which connects to High Street.

Sidewalk needs to be extended all the way to Monticello Avenue, and a signalized pedestrian crosswalk at the Treyburn/Monticello Avenue intersection. The College will need to work with the Virginia Department of Transportation to implement this improvement, since VDOT maintains and controls the intersection. A connection also needs to be made at the north end of Treyburn Drive at the Ironbound Road intersection, connecting the bicycle and pedestrian facilities to the Dillard Complex and Plumeri Park.

• New Town is another student destination now served by bike lanes and Williamsburg Area Transport buses. There is a need for the College to design and construct a paved multiuse trail paralleling Monticello Avenue and connecting to the existing sidewalk on Compton Drive to provide a connection from the main campus to this activity center. This trail should also be extended across Compton Drive to connect with the entrance to the School of Education at Treyburn Drive.

• Sidewalk is needed along the north side of Jamestown Road in front of Phi Beta Kappa Hall.

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Map 9-2

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THE COLONIAL WILLIAMSBURG FOUNDATION Colonial Williamsburg has attracted more than 53 million visitors since 1932. This 301 acre area encompasses the majority of the 18th Century Colonial Capital, established in 1699. Williamsburg flourished for the next 80 years, until the capital was moved to Richmond in 1780. The removal of the capital began a period of decline until 1926 when John D. Rockefeller, Jr. inspired by Reverend W. A. R. Goodwin, began the restoration of the colonial city. The Colonial Williamsburg Historic Area and its surrounds have over 620 structures dating from the late 17th through the 21st century that contribute to its National Historic Landmark District designation. Of these structures, 88 are considered to be original, with additional structures either having been built on original foundations, containing original elements, or built based on other evidence of their existence. Notable buildings include the Governor’s Palace, the Capitol, the Courthouse, Bruton Parish Church, Raleigh Tavern and the Powder Magazine. Eighty acres of gardens and greens have also been recreated. The Colonial Williamsburg Historic Area is the centerpiece of the City’s Architectural Preservation District (see Chapter 6 – Community Character).

Map 9-3

The Colonial Williamsburg Foundation preserves and interprets the Historic Area, as described by Colonial Williamsburg Foundation President Colin Campbell: The Historic Area is the core of the Colonial Williamsburg Foundation. It is the focus and a resource for our education efforts, indeed for everything we do. It is a remarkable collection of original buildings and reconstructions, trade sites and shops, greens and gardens, livestock and rare breeds, coaches and wagons, four taverns working in 2013 Williamsburg Comprehensive Plan

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eighteenth-century fashion, and three-hundred-year old boulevards and byways. No wonder that, when he visited the Williamsburg Restoration, President Franklin Roosevelt proclaimed our central thoroughfare, the mile-long Duke of Gloucester Street, “The most historic avenue in all America.”

In 2012 the Foundation’s mission expanded to include its role as America’s center for history, citizenship and democracy, reflecting the evolution of programming over the previous decade and emphasizing a more significant international presence.

The Foundation operates for-profit subsidiaries including hotels, restaurants, conference facilities and golf courses; and sells licensed products and reproductions. The Foundation also operates the DeWitt Wallace Decorative Arts Museum, the Abby Aldrich Rockefeller Folk Art Museum, Bassett Hall and the John D. Rockefeller Jr. Library.

The Historic Area The Colonial Williamsburg Historic Area defines the character and drives the economy of the City. Initially conceived as areas on and near Duke of Gloucester Street with concentrations of restored buildings, the Historic Area has evolved and grown since the Restoration began in 1926. In 1939, formal boundaries of the “Restored Area” were established, which included areas along Duke of Gloucester, Francis and Nicholson Streets, and the adjoining historic campus of the College of William and Mary.

This was expanded in 1949 to include Waller Street and more of the east-west streets. The official name was changed to the “Historic Area” in 1962, and 1968 saw an expansion to include the Public Hospital and Custis blocks, the Timson house and several other areas. In 2002, 128 acres were added to the Historic Area, consisting of areas adjacent to the Custis garden site and the Williamsburg Inn, Bassett Hall and its surroundings, and the pasture northwest of the Timson House. In 2009, Duke of Gloucester Street was designated as one of America’s Great Streets by the American Planning Association.

The City’s planning and zoning regulations have always kept the protection of this important national resource as a high priority. The “Historic Colonial Area” zoning district was established with the City’s original zoning ordinance in 1947, and enabled the Board of Zoning Appeals to permit the restoration or reconstruction of colonial buildings, and to allow their uses for uses that existed in the 18th Century.

Additional controls were administered by a Board of Architectural Consultants established in 1958, which approved the architectural design of buildings. The regulations were refined to their current state in 1991, when a separate “Colonial Williamsburg Historic Area” zoning district was created, and when the Board of Architectural Consultants became the Architectural Review Board, reviewing the architectural character of the Architectural Preservation District which included the Historic Area.

The interpretation of the Historic Area is Williamsburg’s most important attraction, illustrated by Colonial Williamsburg’s credo: “That the future may learn from the past.” Colonial Williamsburg, along with other history museums nationwide, is dealing with changing demographic and public tastes, competition with other vacation destinations, and a decline in the appeal of historic attractions. This is Chapter 9 – Institutions

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being addressed by the evolution of interpretative programs such as Revolutionary City, and the introduction of new programs such as RevQuest: The Lion and the Unicorn, updated use of technology (web sites, social networking, webcams), and continual reinvestment in the physical aspects of the Historic Area. Two new additions to the Historic Area, R. Charlton’s Coffeehouse and the Anderson Blacksmith Shop and Public Armoury, have been well received by visitors.

Resort Facilities Colonial Williamsburg offers 1,057 hotel rooms in five diverse facilities, including 26 Colonial Houses located in the Historic Area. A 20,000 square foot spa and fitness center, 45 holes of golf, tennis and other recreational facilities are also offered. In addition to its four historic taverns, Colonial Williamsburg operates two hotel restaurants and one freestanding restaurant.

The majority of the resort activities are located south of the Historic Area between South England Street and Quarterpath Road, and include the Williamsburg Inn, the Williamsburg Lodge and Conference Center, Spa and the Golden Horseshoe golf courses. In the past, this area has been designated as a combination of Colonial Williamsburg Support land use (hotel and conference facilities) and Parks, Parkway, Recreation land use (golf courses). To more clearly differentiate this area, it is now designated as Colonial Williamsburg Resort land use. This land use will be implemented by the existing MS Museum Support and RS-1 Single Dwelling zoning districts.

Support Facilities Supporting the Historic Area is a wide array of facilities, including the Visitor Center on Visitor Center Drive, Bruton Heights School Education Center north of the Historic Area, the Stable complex on Lafayette Street, and the Vehicle Maintenance Facility on Route 60 East. A new stable and pasture on the north side of Bypass Road near the Visitor Center are planned to open in 2013. These uses are designated as Colonial Williamsburg Support land uses, implemented by the MS Museum Support zoning district.

Planning Issues The Colonial Williamsburg Foundation is subject to the City’s land use regulations, and it is important for the Foundation and the City to work together to preserve the special character of both the City and the Colonial Williamsburg Historic Area. The importance of this cooperative relationship is illustrated by the fact that the Foundation is both the City’s largest taxpayer and the largest property owner.

Architectural Character. The maintenance of the architectural character of the Historic Area and the surrounding area is a critical planning issue. Over the years, the City has built upon the skill and expertise of Colonial Williamsburg staff, supplementing their knowledge and expertise in the restoration of the Historic Area with complementary City regulation of land use and architectural character.

While the Foundation’s stewardship of the Historic Area is unmatched, the continued disposition of properties surrounding the Historic Area makes the City’s role in protecting its setting even more important. The City’s Architectural Review Board needs to work closely with developers to ensure that new buildings constructed along the edges of the Historic Area complement its quality and character.

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Open Space. The Colonial Williamsburg Historic Area is an essential element of the City’s open space system, particularly in its relationship to the Downtown area. Coupled with the campus of the College of William and Mary, the 301 acre Historic Area provides the City with a quantity and quality of open space that is unmatched by any other City in the Commonwealth, if not the country.

Merchants Square. Merchants Square is the City’s premier commercial area, ideally situated between the Colonial Williamsburg Historic Area and the College of William and Mary. It was developed by Colonial Williamsburg in the 1930s, and has evolved into both a tourist shopping area and a regional shopping and dining destination. Merchants Square, the Williamsburg Lodge and the Williamsburg Inn now comprise a historic district recognized on the National Register of Historic Places.

The City has been involved in planning for this area since the 1953 Comprehensive Plan, and the most recent City activities in the area are the construction of the Prince George Parking Garage and the completion of streetscape improvements for Prince George Street and North Henry Street.

Chapter 10 – Commercial and Economic Development proposes zoning changes for Merchants Square and the areas to the north and south that will provide opportunities for increasing the number of permanent residents, thereby enhancing the economic and social vitality of the downtown area, and enabling it to continue to function as a true mixed use development.

Traffic and Parking. Traffic flow and parking in and around the Historic Area and Merchants Square is important both for the Foundation and the City. Parking has long been a cooperative venture, with the City policing parking lots that are owned and maintained by the Foundation. A traffic study for the Center City area was prepared in December 1995 by Desman Associates, and led to a number of improvements, the most notable being the 362 space Prince George Parking Garage. Improved directional signage has also been provided for the parking Merchants Square parking facilities.

Prince George Parking Garage

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Chapter 10 Commercial and Economic Development Through the difficulties of the recession of 2008, the City has continued to maintain its position as a destination market with the premier institutions of Colonial Williamsburg and the College of William and Mary. Williamsburg relies on tourism and its related businesses as a primary source of both employment and revenue. Due in part to this tourism connection, the City was able to generate over $23,935 in per capita retail sales in 2011, the seventh highest among Virginia localities.

There have been many commercial projects in the City since the adoption of the 2006 Comprehensive Plan, which include: Walgreen, Richmond Road (2007); Quarterpath Crossing Shopping Center, Quarterpath Road/Route 199 (2008); High Street, Richmond Road (2009); City Green, Richmond Road (2009); Chipotle Restaurant, Richmond Road (2010); Bangkok Garden, Richmond Road (2010), Tribe Square, Richmond Road (2011); CVS, Richmond Road (2011); Cooke Building, Scotland Street (2012); and DoG Street Pub, Duke of Gloucester Street (2012).

Although several of these projects have been large developments within the context of the City’s commercial areas, they are small relative to the recent major commercial developments in James City and York Counties. James City County projects include the Monticello Avenue commercial area on either side of Route 199, New Town on Monticello Avenue and Ironbound Road, Williamsburg Premium Outlets on Richmond Road, and the new Williamsburg Pottery on Richmond Road. York County projects include the Mooretown Road/East Rochambeau Drive commercial area near Route 199 north of Williamsburg, and Marquis on Route 199 southeast of Williamsburg.

While recent commercial development and retail growth in the neighboring counties have outpaced that in Williamsburg, the City is still a major player in the regional marketplace. But with limited land available for commercial expansion, the major mixed use developments of Quarterpath at Williamsburg and High Street, as well as redevelopment opportunities throughout the City, remain key to the City’s economic vitality. Great care needs to be taken by the City to recognize and stay on top of the ever-changing dynamics of the market and to respond to them in an appropriate manner (i.e. find and fill market niche opportunities). The City must commit itself to doing this in order to maintain its status as the economic hub of the region and a trendsetter among successful tourism-supported communities in the country.

Restaurants and lodging establishments continue to be an important component of the tourist segment of the City’s economy. The City has a total of 95 restaurants. Construction has been steady over the years, with 56 new restaurants added since 1975. Twenty-two restaurants have been added since the adoption of the 2006 Comprehensive Plan, representing almost 25% of the current total.

The City has 76 lodging establishments with a total of 4,915 rooms. Hotels and motels comprise the majority, with a total of 4,694 rooms in 46 hotels and motels. Between 1975 and 1987, there was a gain of 1,631 hotel and motel rooms. Hotel construction ceased between 1988 to 1995. Between 1996 and 2006, the City’s room supply was modernized and upgraded, with a gain of 375 hotel rooms (711 rooms were demolished or converted). Between 2007 and 2012, no new hotels were constructed. However, 276 rooms were replaced along Richmond Road with different types of development (City Green, Chipotle Restaurant, CVS Pharmacy and City Lofts student housing). The City purchased two motels for future redevelopment – the 25 room Tioga Motel on Richmond Road was demolished and the property awaits redevelopment, and the Lord Paget Motel on Capitol Landing Road is vacant and offered for sale.

In addition to hotels and motels, there are 28 bed and breakfast establishments with a total of 91 rooms.

Two timeshare developments are located on Richmond Road and York Street with a total of 123 rooms.

Two approved timeshare projects on Penniman Road and Richmond Road have not been constructed, and together they have 464 potential new rooms.

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COMMERCIAL AND ECONOMIC DEVELOPMENT PLAN The 2012 Comprehensive Plan’s Commercial and Economic Development Plan is detailed in the following sections of this chapter, and is summarized below: 1. Maintain the Merchants Square area as a high quality mixed use commercial area serving residents, college students and visitors. Merchants Square and the surrounding mixed use areas are strategically located between the Colonial Williamsburg Historic Area and the College of William and Mary, and are distinguished by high quality and historically important architecture.

Commercial establishments, restaurants, residences, and high quality infrastructure creates a vibrant and walkable urban area. This area is served by ample on and off-street parking and both Williamsburg Area Transport (including the Williamsburg Trolley) and Colonial Williamsburg bus systems.

2. Encourage businesses to locate adjacent to the College of William and Mary. These businesses will serve the needs of the 8,200 students at the College, as well those of residents and visitors.

They should be located adjacent to the College, primarily on Richmond Road and Prince George Street between Armistead Avenue and Scotland Street. The Midtown Planning Area is an important secondary area, particularly the Arts and Cultural District on Richmond Road between Brooks Street and Williamsburg Shopping Center.

3. Promote the Midtown Planning Area as a major redevelopment area. The Midtown Planning Area has the potential to become a multifaceted urban mixed use neighborhood. Its location close to the downtown area and to the College of William and Mary should support specialty commercial uses, and there is potential for the redevelopment of the two existing shopping centers. Increasing the residential component of this area is important, and it is well positioned to become an important location for college student housing. The Arts and Cultural District is well positioned to support the City’s creative economy, and is also a transition area between automobile-oriented commercial to the west and residential uses to the east.

4. Maintain the City’s Corridor Commercial areas as the primary location for tourist-oriented businesses. The primary tourist-oriented areas are Richmond Road west of Bypass Road, York Street, Second Street and Capitol Landing Road. These areas, along with the Colonial Williamsburg Foundation hotels around the Historic Area, provide locations for the majority of the City’s lodging and restaurant businesses. Both new development and redevelopment should be encouraged in these areas. When housing is provided as part of a mixed use project, no more than 67% of the floor area should be devoted to residential use.

5. Support development of High Street and Quarterpath at Williamsburg as the City’s primary mixed use developments. High Street is a high quality shopping and entertainment area, anchored by a multiplex cinema, and Quarterpath at Williamsburg will be a mixed use area anchored by Doctors’ Hospital and its adjacent medical campus. Both of these master planned developments integrate residential and non-residential uses.

6. Provide opportunities for mixed use development on Penniman Road. A 20 acre Mixed Use area between Penniman Road and the CSX Railroad is strategically located adjacent to Corridor Commercial areas and within walking distance of Colonial Williamsburg and the downtown area.

It has the potential for a high-quality mixed use development with a major residential component.

7. Maintain appropriately located areas for office use throughout the City. These areas provide needed transition uses between major commercial areas and residential areas. Primary office areas are located along the John Tyler Lane/Strawberry Plains Road corridor and along Capitol Landing Road. Office uses can also be a part of mixed-use areas.

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DOWNTOWN PLANNING AREA The Downtown Planning Area has Merchants Square at its center, and extends north across the CSX Railroad to the Governor’s Inn, south to Mimosa Drive, and west along Richmond Road to Virginia Avenue. It is an authentic mixed use area combining retail, office, museum, residential and educational uses. This area has evolved since the City’s establishment in 1699, and has the authenticity and character that neo-traditional plans try to emulate but cannot duplicate.

The irreplaceable charm of this area is a combination of 300 years of history, the quality and scale of the buildings (both historic and modern), and the quality of the streetscape. This area brings together all of the major character defining features of the City: Colonial Williamsburg, the College, the Municipal Center, and diverse residential neighborhoods. The challenge for the City is to allow new development and redevelopment in the Downtown area while preserving its historic character and its mix of residential and commercial uses.

The size of the Downtown Planning Area, is 190 acres, of which 16% is commercial, 2% environmental and sensitive areas, 23% institutional, 20% public and semi-public, 1% parks and open space, 11% residential, 21% rights-of-ways and 6% vacant properties. Residential uses located in the Map 10-1 Planning Area include the single family neighborhoods of Braxton Court and Crispus Attucks as well as single family and multifamily housing located throughout the Downtown area.

Non-residential uses located throughout the Downtown Planning Area include 76 offices, one bank, three hotels, 23 restaurants, two schools, four church use buildings, nine municipal buildings, three museum/gallery/art use buildings and one utility building. And although not in this Planning Area, the historic campus of the College is directly to the west (Wren Building, President’s House and Brafferton), and the Colonial Williamsburg Historic Area adjoins to the east.

The Downtown Planning Area has several commercial and mixed use areas with distinct characteristics: •

The Merchants Square area is bounded by Prince George, Henry, Ireland and Boundary Streets, and includes retail shops, the College bookstore, restaurants and offices. Parking is provided by internally located parking lots, the Prince George Parking Garage and the P6 Parking Lot south of Francis Street. Merchants Square was developed by the Colonial Williamsburg Foundation in the 1930s as a shopping center to relocate local businesses and services from the Historic Area. It was one of the first planned shopping centers in the United States and still serves as an active retail and office center. As Merchants Square evolved into a tourist district, these local

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businesses and services were relocated beginning in the 1950s to the Williamsburg Shopping Center and the Municipal Center. Duke of Gloucester Street was closed to vehicular traffic in the 1970s and Merchants Square became more pedestrian oriented. Expansion took place in the early 1990s with the conversion of the old Post Office at the corner of Francis and Henry Streets to shops and a restaurant, and again in 2004 with the construction of the Corner Building at the corner of Duke of Gloucester and North Boundary Streets and the City’s Prince George Parking Garage. Merchants Square is one of three identified historic areas in the Downtown Planning Area (see Chapter 5 Community Character), and was named to the National Register of Historic Places in June 2006.

•

The College Commercial area is located on Richmond Road, Scotland Street and Prince George Street between the Richmond Road/Scotland Street intersection and Armistead Avenue. This area, as demonstrated by its existing restaurants, Wawa convenience store and Tribe Square, has the ability to serve the major concentration of college students across Richmond Road on the main campus of William & Mary and in nearby residential areas, as well as the City’s residents and visitors. In addition to the existing commercial uses, Prince George Commons, a mixed-use development with 9,800 square feet of commercial floor area and seven apartments, has been approved on the northeast corner of Armistead Avenue and Prince George Street. The Triangle Building on the opposite side of Armistead Avenue, owned and managed by the Williamsburg Redevelopment and Housing Authority, has potential for attracting new tenants to the area.

Because of its historic character, great care needs to be taken in the design of new commercial buildings and the reuse of existing buildings in the College Commercial area. As stated in the Architectural Review Board’s Design Review Guidelines, the proper balance must be maintained between preserving buildings that make important contributions to the history and character of the City and surrounding neighborhoods, and allowing for new development.

•

The Municipal Center area is located north of Scotland Street in the area roughly bounded by Armistead Avenue, North Henry Street, and the CSX Railroad. It is organized around City Square, and includes numerous public uses: Williamsburg Library, Stryker Building, Community Building, City Square Parking Terrace, Police Station, Fire Station, Municipal Building, Transportation Center, and Post Office. It also includes two private office buildings adjacent to the Parking Terrace, and one vacant lot for future private development.

•

The North Henry/North Boundary Street area is centered on Scotland Street. Several buildings have been adaptively reused as offices and a Montessori School. An important building available for adaptive reuse is the former Health Evaluation Center, a 23,750 square foot building on North Henry Street. This area provides a transition between the Merchants Square commercial uses and the residential uses on the east side of North Henry Street, and is served by the major infrastructure improvements that the City completed in the City Square and Prince George Street areas, including the City Square Parking Terrace and the Prince George Parking Garage.

•

The South Henry/South Boundary Street area is located along South Henry Street and South Boundary Street between Ireland Street and the South Boundary/South Henry Street intersection.

It is bracketed on the east by the Art Museums of Colonial Williamsburg and the Marshall-Wythe School of Law. Major uses include the Verizon switching center on South Henry Street and the Digges Building, an office and residential building at the northwest corner of South Henry and South Boundary Streets. As with the Mixed Use area to the north of Merchants Square, this is a transitional area between the Merchants Square commercial uses and the residential uses south of South Boundary Street.

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Map 10-2

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Infrastructure Improvements Major infrastructure improvements in the Downtown Planning Area have included the reconstruction of North Henry Street between Prince George Street and Lafayette Street in 1994, the construction of City Square and the City Square Parking Terrace in 1998 and 1999, the construction of the Prince George Parking Garage in 2004, and the reconstruction of Prince George Street between North Henry and North Boundary Street, and of North Boundary Street between College Corner and Scotland Street, in 2004 (this included narrowing Prince George Street and widening the sidewalks).

The next major infrastructure improvement proposed is the continuation of the Prince George Street improvements from North Boundary Street to Armistead Avenue, to be done in conjunction with the construction of Prince George Commons on the northeast corner of Prince George Street and Armistead Avenue. This will have the same character as the improvements made east of North Boundary Street, and will include narrowing Prince George Street by eliminating parking on the north side, widening the north sidewalk to 13 feet and the south sidewalk to five feet and bricking both sidewalks, installing new street lights and planting new street Map 10-3 trees. The Prince George Armistead Avenue Commons developer will Sidewalk Improvements contribute to the construction of brick sidewalks and Prince George Commons associated curbs and gutters, Prince George which was proffered when the Parking property was rezoned.

Garage (2004)

Prince George Street Reconstruction Street Reconstruction in conjunction with Prince George Parking Garage (2004)

Sidewalk improvements are also programmed for Prince George Street from Armistead Avenue west to Scotland Street, which will improve pedestrian access between the College Commercial area and Merchants Square.

Scale and Character The Downtown Planning Area’s residential component is an essential part of its scale and character, and helps make downtown Williamsburg a vibrant area for both living and shopping. There are two parts to scale and character, and both need to be considered in planning for the future of the downtown area.

The first part is building massing and location, which is primarily governed by zoning regulations for building setback, height and parking. The most urban section is the Downtown Commercial area, which does not require building setbacks except along Richmond Road and Lafayette Street. This allows for a lively character as seen along Prince George Street, which is full of sidewalk cafes and activity.

Residential setbacks prevail in the Mixed Use, Downtown Residential, Medium Density Single Family and Medium and High Density Multifamily areas, providing a more residential setting than the Downtown Commercial area. A 35 foot height prevails throughout the Downtown Planning Area (except for the small PDC District), helping to unify the overall scale of the area.

The second part is density, which must fit within the building envelopes delineated by the zoning restrictions. High density can fit within the small scale character of downtown Williamsburg, as shown by the 54.5 dwelling units/net acre of the six apartments in the Sacalis Building at 433 Prince George Street, and the 60.5 dwelling units/net acre of the 26 unit King and Queen Apartments at 732 Scotland Street. Two things are important to note – these high densities fit comfortably in buildings of the proper scale for Williamsburg’s downtown, and these high density buildings are interspersed with lower density residential areas and commercial and institutional areas with no residential uses without any significant Chapter 10 – Commercial and Economic Development 10-6

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difference in outward appearance. This dispersal of various residential densities throughout the Downtown Planning Area results in an overall existing residential density of 1.7 dwelling units/acre, and with a variety of housing types and densities that are appropriate for downtown Williamsburg.

The residential densities that are now allowed in the Downtown Planning Area range from 8 to 14 dwelling units/net acre, but higher densities are appropriate in some areas, particularly for multifamily residences. To encourage appropriate downtown residential growth, a uniform base density of 14 dwelling units/net acre should be established for the Downtown Commercial and Mixed Use land use categories (implemented by the B-1 Downtown Business District and LB-1 Limited Business Downtown District), with increased density allowed with a special use permit. Specific limitations for density increases are not listed because they cannot address the unique characteristics of individual sites or housing types, nor the fact that some properties can support more density than others. All of these characteristics, as well as the quality of the building and site design and how they relate to the immediate surroundings and to the Downtown Planning Area as a whole need to be taken into consideration when ruling on the special use permit.

The Williamsburg Redevelopment and Housing Authority’s Blayton Building at 613 Scotland Street provides the City’s only senior specific housing, with 38 subsidized apartments for low and moderate income seniors and disabled persons on a large lot with potential for expansion. As noted in Chapter 3 Population, there will be an increased need for additional senior housing in the future. The 2010 Census shows significant increases in the 65-74 age group because of the aging of the post-war baby boom generation. More than 23% of the City’s non-student population is 65 or older, significantly higher for Williamsburg than in the surrounding region (19%), Hampton Roads (14%) or the State (14%). To help satisfy the need for senior housing, the Blayton Building lot should be designated Mixed Use land use, which allows a base density of 14 dwelling units/net acre, with increased density allowed if the scale and character of the project properly relates to the surrounding neighborhoods and to the Downtown Planning Area. This also allows the option of a mixed use development on the property with senior housing as a major component. These new provisions will allow senior apartments at the Blayton Building to be substantially expanded from the existing 38 dwelling units on the 3.87 net acre site.

The scale and character for the residential areas in the Downtown Planning Area are discussed in Chapter 8 – Neighborhoods and Housing, on page 8-14.

There are currently 234 dwelling units in the Downtown Planning Area, resulting in an overall residential density for the area of 1.7 dwelling units/acre. The ability to increase residential density above 14 dwelling units/net acre in the Downtown Commercial and Mixed Use areas with a special use permit and above 8 dwelling units/net acre with a special use permit in the Downtown Residential area, plus the additional dwelling units that are possible for the Blayton Building, could add 200 or more new dwelling units to the Downtown Planning Area. This would result in more than 400 dwelling units in the Downtown Planning Area, increasing the overall density to more than 3 dwelling units/acre. This is in keeping with the scale and character of the Downtown Planning Area.

Future Land Use Recommendations for Commercial and Mixed Use Sub-Areas 1. Merchants Square and College Commercial Areas.

• The existing Downtown Commercial land use designation should be continued, implemented by the B-1 Downtown Business District. The base residential density should be 14 dwelling units/net acre, with additional density allowed with a special use permit.

• The existing zoning designations for the Williamsburg Presbyterian and Williamsburg Baptist Churches, for the Bruton Parish Rectory at 314 Prince George Street, and for the area bounded by Armistead Avenue/Scotland Street/North Boundary Street, should be changed from RDT Downtown Residential District and LB-1 Limited Business Downtown District to B-1 Downtown Business District.

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2. North Henry/North Boundary Street Area. The existing Mixed Use land use should be continued, implemented by the LB-1 Limited Business Downtown District. The base residential density should be 14 dwelling units/net acre, with additional density allowed with a special use permit.

4. Blayton Building lot.

• The Blayton Building lot, which now provides 38 one-bedroom low and moderate income senior apartments, should be changed to Mixed Use land use, implemented by the LB-1 Limited Business Downtown District, with a base residential density of 14 dwelling units/net acre, and increased density with a special use permit.

• The small B-1 Downtown Business District area to the west of the Blayton Building, originally intended for parking for the Triangle Building, should be changed to the LB-1 District to match the rest of the property.

• To allow for future expansion of senior housing on the Blayton Building lot, provisions should be added to the LB-1 District to allow senior housing with reduced off-street parking requirements with a special use permit.

• A new definition for “Senior housing” should be created to replace the existing definition for “Housing for the elderly and physically handicapped.”

Map 10-4 • The 1.2 acres of land between the First Baptist Church parking lot and Crispus Attucks subdivision should remain Park, Parkway, Recreation land use, and developed as landscaped open space and recreation area in conjunction with the Blayton Building expansion.

5. South Boundary/South Henry Street Area north and south of Newport Avenue. The area on the west side of South Henry Street between Ireland Street and South Boundary Street should be changed from Office land use, implemented by the LB-3 Limited Business Residential District, to Mixed Use land use, implemented by the LB-1 Limited Business Downtown District. This will match the Mixed Use area north of Merchants Square, and will allow additional flexibility for development and redevelopment in this two block area. The base residential density should be 14 dwelling units/net acre, with additional density allowed with a special use permit. Since this area is adjacent to the P6 pay parking lot at the corner of South Henry and Ireland Street, the Downtown Parking District should be extended to include this Mixed Use area in the flexible parking regulations that apply to the majority of the downtown area.

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The Downtown Planning Area Future Land Use Map (Map 10-5) illustrates these recommendations.

Map 10-5

2013 Williamsburg Comprehensive Plan

Chapter 10 – Commercial and Economic Development 10-9

MIDTOWN PLANNING AREA The Midtown Planning Area is located at the intersection of two of the City’s major entrance corridors – Richmond Road and Monticello Avenue. It is made up of five major components: the Arts and Cultural District centered on Richmond Road and Lafayette Street between Brooks Street and the Williamsburg Shopping Center; the Shopping Centers Area that includes the Williamsburg and Monticello Shopping Centers; the Richmond Road Corridor between Monticello Avenue and Bypass Road; the Urban Residential Area along Mount Vernon Avenue and New Hope Road, and the College Area that is centered on William and Mary’s School of Education. The Midtown Planning Area abuts the CSX Railroad and York County to the north, the College of William and Mary to the south, the residential neighborhoods of College Terrace and West Williamsburg Heights to the east, and the High Street Mixed Use development and the Richmond Road commercial corridor to the west.

The size of the Midtown Planning Area is 151 acres, of which 44% is commercial, 9% environmental and sensitive areas, 11% institutional, 2% public and semi-public, 2% parks and open space, 17% residential, 13% rights-of-ways and 2% vacant properties.

Map 10-6

Residential uses located in the Midtown Planning Area are discussed in Chapter 8 – Neighborhoods and Housing. The non-residential uses located throughout the Midtown Planning Area include: seven restaurants, two hotels, fourteen retail establishments, two shopping centers, four banks, 21 offices, two convenience establishments, one timeshare, one nursing home and one community pool.

A discussion of the major commercial and institutional areas in the Midtown Planning Area follows: •

The Arts and Cultural District along Richmond Road and Lafayette Street was established by City Council in February 2011 as a way to encourage and enhance the City’s creative economy as an economic development initiative. This follows state legislation passed in 2009 that enabled the creation of Arts and Cultural Districts, allowing the City to provide tax rebates, grants, technical assistance and other incentives to attract and grow the creative economy and the arts.

Research shows that having a group of artists and creative professionals live in one area has great economic and culture spinoffs - revitalizing the area and creating demand for additional artists/creative businesses (possibly including coffee shops, galleries, small theaters, music clubs, artist co-ops, other live/work spaces, studios, wine bars, etc.). Since the creation of the District in 2011, five creative economy businesses have located in the district and created a total of 28 jobs.

An artist demand survey completed by Artspace in 2012 shows demand for live/work and stand

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alone workspace for creative professionals in the District, and the City’s Economic Development Authority will look for redevelopment opportunities to provide these spaces.

The Arts and Cultural District is composed of two major areas. The first is the Mixed Use area along Richmond Road between Brooks Street and the Williamsburg Shopping Center that is implemented by the LB-2 Limited Business Neighborhood District. The LB-2 District allows a mixture of office, commercial and residential uses; and, in keeping with the urban mixed use character of the area, allows studios and workshops for artists and artisans with a special exception permit from the Board of Zoning Appeals. The second area is the Medium Density Single Family Detached Residential area between the LB-2 area and the CSX Railroad, discussed in Chapter 8 - Neighborhoods and Housing, page 8-17.

There are two vacant parcels in the District that have development potential: the 0.69 acre Tioga parcel at 906 Richmond Road and a 0.58 acre parcel on a portion of 727 Richmond Road.

The 0.89 acre Super 8 Motel at 1233 Richmond Road has redevelopment potential. The parcels are shown on the Map 10-8 below.

Map 10-7

Map 10-8

2013 Williamsburg Comprehensive Plan

Chapter 10 – Commercial and Economic Development 10-11

•

The Shopping Centers Area is anchored by two neighborhood shopping centers. Williamsburg Shopping Center fronts on Richmond Road and Monticello Avenue, and was built by the Colonial Williamsburg Foundation in the 1950s to provide space for commercial growth in the area, and has been expanded several times. This 255,968 square foot shopping center contains two department stores, the City’s only centrally located grocery store, a hardware store, bookstore, several restaurants and assorted retail and service uses. The 78,396 square foot Monticello Shopping Center, contains a variety of retail, service and restaurant uses, and a movie theater has been converted to a church. West of the shopping centers along Monticello Avenue are four medical office buildings, a small apartment building and two retail stores.

The 19.2 acre Williamsburg Shopping Center has potential for a major redevelopment as a mixed use project. However, any redevelopment should retain an appropriate mix of retail space to serve the needs of the downtown area. These neighborhood commercial uses, particularly the grocery store and the hardware store, make an important contribution to the livability of the downtown area. To encourage mixed use redevelopment, the base residential density should remain 14 dwelling units/net acre, but additional density should be allowed with a special use permit. The primary consideration for the approval of increased density should be how the scale and character of the proposed project relates to its immediate surroundings and to the Midtown Planning Area as a whole. Multifamily dwellings should continue to be allowed with a special use permit so that impacts to the surrounding commercial areas can be considered.

The location of the Williamsburg The proximity of the Williamsburg Shopping Center to the College and its location on existing bus routes make it a desirable location for student housing.

The Tribe Square model with commercial on the first floor and student apartments on the upper floors is an example of what could be done with a portion of this property. Student dwellings should be added to the B-3 District as a special use permit use, with a permitted dwelling unit occupancy of two unrelated persons in an efficiency or one bedroom dwelling unit, and four unrelated persons in a two or more bedroom dwelling unit. Senior housing is another possibility for similar reasons, and should be allowed with reduced parking requirements with a special use permit.

Map 10-9

Improvements may be needed to Monticello Avenue with redevelopment – the Hampton Roads Transportation Planning Organization’s Comprehensive Transportation Study (Appendix A2) shows that Monticello Avenue adjacent to the Williamsburg Shopping Center currently has moderate congestion (LOS D) and is projected to have severe congestion in 2034 (LOS E or F).

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Special use permits should be required for any major redevelopment so that traffic and other impacts can be properly evaluated.

While the Monticello Shopping Center (5.7 acres) is much smaller than the Williamsburg Shopping Center, it also has future potential for redevelopment. As with the Williamsburg Shopping Center, redevelopment should be accomplished with minimal loss of existing commercial floor area.

•

The Richmond Road Corridor extends from Monticello Avenue northwest to Bypass Road. This section of the Richmond Road corridor is a logical extension of the urban character of the Shopping Centers Area – buildings are closer together and closer to the street, and the predominant character defining feature of the street is buildings and sidewalks rather than parking lots. There are three vacant parcels in the Richmond Road Corridor that have potential for new development. The old Princess Anne Motel, on a 5.6 acre parcel located at 1350 Richmond Road and now closed, is a prime parcel for redevelopment, and its size makes a mixed use project a possibility. All of these properties have potential for new commercial uses that will add to the vitality of the corridor.

Map 10-10

•

The Urban Residential Area is discussed in Chapter 8 – Neighborhoods and Housing, page 8-16.

•

The College Area anchors the southwestern edge of the Planning Area, centered around the William and Mary School of Education. The College owns vacant land adjacent to the School of Education that can be developed in the future, possibly for additional student housing. A nursing home and an office building are located on Mount Vernon Avenue and have redevelopment potential, either separately or in conjunction with the Williamsburg Shopping Center.

Improvements to pedestrian facilities are needed in this area – a new multiuse trail and sidewalk connects the School of Education with the main campus via Compton Drive, but there is not an adequate pedestrian connection between the School and the Monticello Avenue/Treyburn Drive intersection. This intersection, which is controlled by the Virginia Department of Transportation, could provide an important pedestrian connection to High Street and the Lawson Apartment area.

In addition, a sidewalk or multiuse trail is needed between the entrance to the School of Education and Compton Drive – this could tie in to a future multiuse trail connecting Compton Drive with New Town in James City County.

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Chapter 10 – Commercial and Economic Development 10-13

Map 10-11 Map 10-11

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Infrastructure Recommendations The following infrastructure improvements are recommended for the Midtown Planning Area: • Sidewalk improvements.

To improve pedestrian accessibility, sidewalks should be provided within the existing rightof-way on both sides of all streets in the Arts and Cultural District. Approximately 3,600 linear feet of sidewalk is needed and should be seen as a long term goal for the area, depending upon the constructability of individual segments.

Pedestrian crossings need to be provided across Monticello Avenue to connect the Williamsburg Shopping Center with the commercial area to the north. Locations that should be considered are Garrison Avenue and the traffic light between the two shopping centers.

The College of William and Mary needs to extend a sidewalk from the School of Education to the Monticello Avenue/Treyburn Drive intersection. A signalized pedestrian crossing of Monticello Avenue at Treyburn Drive needs to be coordinated with the Virginia Department of Transportation, which has responsibility for this intersection.

A sidewalk or multiuse trail needs to be constructed between the entrance to the School of Education and Compton Drive, where it could connect to a future multiuse trail connecting to New Town in James City County.

• Street improvements.

Improvements to Monticello Avenue may be needed if there is a major redevelopment of the Williamsburg Shopping Center, and this should be a part of the redevelopment project.

RECOMMENDED INFRASTRUCTURE IMPROVEMENTS Sidewalks Crosswalks Street Improvements

Map 10-12

2013 Williamsburg Comprehensive Plan

Chapter 10 – Commercial and Economic Development 10-15

Future Land Use Recommendations 1. Arts and Cultural District • The existing Mixed Use land use designation along Richmond Road between Brooks Street and the Williamsburg Shopping Center should be continued, implemented by the LB-2 Limited Business Neighborhood District. A variety of residential uses (single family, duplex, townhouses and multifamily) should be allowed with a base density of 8 dwelling units/net acre, and up to 14 dwelling units/net acre with a special use permit. The mix of permitted commercial uses should be designed to allow the Arts and Cultural District to achieve its potential as a vibrant, mixed use area of the City, within walking distance of downtown and the College, and should include banks, bake shops, hotels with 10 or less rooms, museums and art galleries, offices, restaurants and retail stores. To ensure compatibility with surrounding neighborhoods, special use permits should be required for buildings with a floor area exceeding 10,000 square feet, and for uses such as townhouses, multifamily dwellings, hotels with more than ten rooms, larger restaurants, and other uses of similar intensity.

• The Midtown Parking District should be continued, establishing a uniform parking requirement for non-residential uses. This added flexibility will help the Arts and Cultural District achieve its potential as a vibrant mixed use area.

• Lafayette Street through the Arts and Cultural District (and extending to York Street) should be designated as an Entrance Corridor, connecting the existing Richmond Road, Monticello Avenue, Page Street and York Street corridors (see Chapter 5 – Community Character). This designation will allow the existing Architectural Preservation AP-3 District that encompasses the West Williamsburg neighborhood to be changed to the Corridor Protection District, matching the Corridor Protection District along Richmond Road. This will allow additional flexibility in architectural design for the entire Arts and Cultural District.

• The Arts and Cultural District should be specifically reviewed as part of the Architectural Design Guidelines review following the adoption of the Comprehensive Plan. The special nature of this area should be considered, since this is a transitional area between the urban commercial land use to the west and the single family residential land use to the east. The Design Guidelines should include a special section in the Corridor Protection District detailing standards for this area, and recognizing its important transitional character. Sign design guidelines should also be developed to recognize both the transitional and creative character of the Arts and Cultural District.

2. Richmond Road Corridor and Shopping Centers Area • The existing General Commercial land use designation should be changed to Urban Commercial land use. To implement this change, the B-3 General Business District should be renamed B-3 Urban Business District. Automobile oriented uses such as service stations and motor vehicle service establishments should be removed from the new district since they are incompatible with the urban character of this area. The Midtown Parking District should be extended to this area to provide the same flexibility that exits in the Arts and Cultural District. The commercial floor area requirement for mixed use projects should remain at 33% to maximize commercial floor area. To encourage mixed use redevelopment, base residential density should remain 14 dwelling units/net acre, but additional density should be allowed with a special use permit. Multifamily dwellings should be allowed with a special use permit so that impacts to the surrounding commercial areas can be considered. Student dwellings should be added as a special use permit use with permitted dwelling unit occupancy of two unrelated persons in an efficiency or one bedroom dwelling unit, and four unrelated persons in a two or more bedroom dwelling unit. Senior housing with reduced parking requirements should be allowed with a special use permit. Building height should remain 45 feet.

The Midtown Planning Area Future Land Use Map (Map 10-13) illustrates these recommendations.

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Map 10-13

2013 Williamsburg Comprehensive Plan

Chapter 10 – Commercial and Economic Development 10-17

NORTHEAST TRIANGLE PLANNING AREA Vision Statement Our vision for the Northeast Triangle recognizes that this is a diverse section of the City of Williamsburg with both residential neighborhoods and commercial districts that offer opportunities for new development and redevelopment. We believe that thoughtful investments in infrastructure and landscaping will make the area a livelier and more desirable place to live, work, and visit.

Accessibility for drivers, pedestrians, and cyclists should be improved to ensure that the area can attract and retain a wide range of community-oriented businesses that meet the increasing needs of residents and provide enticements for visitors. Guidelines need to be developed to create a streetscape that is more inviting and safe. As this area evolves the City needs to continue to be respectful of the natural assets of the area as well as the area’s role in history, preserving and developing them where appropriate to share them with the wider community.

- Northeast Triangle Focus Group, November 2011 The Northeast Triangle Planning Area is a diverse area with concentrations of singlefamily detached dwellings, condominiums, apartments, townhouses, and commercial uses. It has been developing for over 300 years, and is centered on Capitol Landing Road (the historic connection between the colonial port on Queen’s Creek and Colonial Williamsburg), and on Page Street and Second Street, all of which are designated by the Comprehensive Plan as Entrance Corridors. Other major streets are Penniman Road and Merrimac Trail. This area abuts York County to the north and east, the CSX Railroad to the south, and land owned by the Colonial Williamsburg Foundation on the west. The size of the Northeast Triangle Planning Area is 566 acres of which is 14% is commercial, 16% environmental and sensitive areas, 4% institutional, 2% public and semi-public, 2% parks and open space, 23% residential, 21% rights-of-ways and 18% vacant.

Non-residential uses located throughout the Northeast Triangle Focus Area include 15 hotels with 1,009 rooms, nine restaurants, nine automotive businesses, six retail establishments, one shopping center, one bank, one medical office, seven office buildings, two multi-use buildings, two storage/warehouse buildings, and two churches.

Chapter 10 – Commercial and Economic Development 10-18

Map 10-14

2013 Williamsburg Comprehensive Plan

Map 10-15

2013 Williamsburg Comprehensive Plan

Chapter 10 – Commercial and Economic Development 10-19

This area was subject to a comprehensive study in 2011 by the Northeast Triangle Focus Group, seven citizens appointed by City Council. Much of the analysis and recommendations in this section are based on the report of the Focus Group. In addition, the Northeast Triangle and Surrounding Area was one of the four geographic areas that were selected for Community Forums as a part of the 2012 Coordinated Comprehensive Plan Update organized by Williamsburg, James City County and York County. This Community Forum was held on February 27, 2012, and a joint Planning Commission work session to discuss the comments made at all of the Community Forums was held on April 30, 2012.

The Northeast Triangle includes three areas that are listed in the Comprehensive Plan as “Notable Features” of the Architectural Preservation District (Capitol Landing/Capitol Landing Road, Capitol Heights on the west side of Capitol Landing Road, and Pine Crest subdivision on the east side of Page Street). These neighborhoods, together with Minor’s Park, help provide a transition between the commercial area of Capitol Landing Road north of the Colonial Parkway and the Colonial Williamsburg Historic Area.

A discussion of the major commercial, office and mixed use areas in the Northeast Triangle Planning Area follows: •

Capitol Landing/Capitol Landing Road was the second port and access road that served Williamsburg in the eighteenth century. Originally called Queen Mary’s Port because of its location on Queen’s Creek (a tributary of the York River), Capitol Landing served the same purpose for the City as College Landing to the south. Public wharves and tobacco inspection warehouses were located at the water’s edge, and nearby were shops, houses, taverns and light manufacturing uses. There are no above-ground remains of these structures in existence, but archaeological remains provide important educational resources. As with College Landing, this port and its access roads were shown on the 1699 plat of the City.

Capitol Landing is listed on the Virginia Landmarks Register. The 1992 Historic Buildings Survey report identifies The Beeches, 1030 Capitol Landing Road, as eligible for individual listing on the National Register of Historic Places.

As tourism developed with the restoration of Colonial Williamsburg, Capitol Landing Road became one of the City’s tourist entrance corridors, and has the largest concentration of hotels in the Northeast Triangle. Capitol Landing Road was deemphasized as an entrance corridor in 1957 when Route 132 was built to provide access to the Colonial Williamsburg Visitor Center.

There are six major parcels along Capitol Landing Road that have potential for development. One of these, the Lord Paget motor court at 901 Capitol Landing Road, was purchased by the City in October 2011 for the primary purpose of allowing time for the best possible outcome on the development or redevelopment of this important parcel.

Map 10-16

The majority of the Planning Area’s single family residential areas are located along Capitol Landing Road, and are discussed in Chapter 8 - Neighborhoods and Housing, pages 8-19 and 820.

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•

Second Street served for many years as the City’s automobile oriented commercial area, and many automobile-related businesses remain along Second Street. This area also hosts seven of the nine restaurant uses in the Focus Area, as well as a variety of retail uses. A new development proposed by Carlton Holdings LLC next to the Velvet Shoestring at 301 Second Street was approved in September 2011, and will have over 20,000 square feet of commercial floor area and 29 townhouse-style condominiums on Penniman Road.

In addition to this parcel, there are three other vacant parcels that have potential for development.

•

Penniman Road is oriented primarily toward the Second Street corridor on the north side. The largely vacant area on the south side east of Page Street and adjacent to the CSX Railroad tracks has been planned for commercial land use since 1968, but has never developed as a viable commercial area because of lack of visibility and access from Map 10-17 both Page Street and Second Street. This area is largely vacant, and adjoins the recommended Corridor Commercial area on Second Street while being within easy walking distance of downtown and the Colonial Williamsburg Historic Area. An 18.1 acre parcel was approved for a 400-unit timeshare development in 2006, but the project was not built. A small mixed-use area is located on Penniman Road at the City line.

Infrastructure Recommendations The Northeast Triangle Focus Group considered possible infrastructure improvements throughout the Northeast Triangle area, and supported the development of a master plan for streetscape and related improvements to enhance the community character of the area. Based on the Focus Group report and additional analysis of the area, the following infrastructure improvements are recommended, and are shown on Map 10-18.

• Underground Wiring on Page Street, Second Street and Capitol Landing Road (focused on removing cross street service lines). Page Street underground wiring is in the CIP for FY13.

• Streetscape improvements that include improved street lighting, clearer and more attractive directional signage (including coordination with VDOT and York County for signage outside of the City limits), and improved landscaping on public and private property.

• Sidewalk improvements to provide better connectivity within the Northeast Triangle, between the Northeast Triangle and downtown, and between the Northeast Triangle and neighborhoods in York and James City Counties. Sidewalks on the south side of Bypass Road between Rt. 132 and Parkway Drive, on Parkway Drive between Bypass Road and Capitol Landing Road, and on York Street between Lafayette Street and the end of the existing sidewalk are in the CIP for FY13.

• Crosswalk improvements to improve pedestrian safety.

• Bike lane improvements to improve safety and connectivity within the Northeast Triangle and neighborhoods in York and James City County. Installing bike lanes on Capitol Landing Road between Merrimac Trail and Page Street requires reducing travel lanes from four to three.

Installing bike lanes on Parkway Drive between Penniman Road and Capitol Landing Road requires reconstructing Parkway Drive between Wyndham Plantation and Capitol Landing Road and eliminating some on-street parking between the Colonial Parkway and Penniman Road.

• Intersection improvements. Three intersections are recommended for further study for improvements that will facilitate and calm traffic movements and improve pedestrian safety.

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Chapter 10 – Commercial and Economic Development 10-21

•

Parks. Capitol Landing Park at Queen’s Creek, has been recommended in every Comprehensive Plan since 1953. The value of creating a park at this site should be better understood and a long term strategy developed for its realization.

Capitol Landing Park

Map 10-18

Future Land Use Recommendations Commercial, Office and Mixed Use Areas 1. Capitol Landing Road Corridor.

• The existing Corridor Commercial land use designation between Merrimac Trail and the Colonial Parkway should be continued, with residential density remaining at 14 dwelling units/net acre. For mixed use development in this corridor, multifamily dwellings (apartments and condominiums) and townhouses should be allowed with a special use permit so that impacts to the commercial corridor can be considered during the approval process.

The commercial floor area requirement for a mixed use project should be continued at the present requirement of 33%, and the commercial floor area must be constructed simultaneously with the construction of the residential floor area. This should be implemented by the B-2 Corridor Business District.

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2013 Williamsburg Comprehensive Plan

•

•

The Office land use designation at the intersection of Capitol Landing Road and Merrimac Trail should be continued, providing a transition between the Low Density Single Family Detached Residential land use to the north and the Corridor Commercial land use to the south. This should be implemented by the LB-4 Limited Business Corridor District.

However, the Office land used to the rear of the Alexander Commons offices at 921 and 925 Capitol Landing Road should be changed to Corridor Commercial land use to match the existing land use to the north and east, and implemented by the B-2 Corridor Business District. The required transitional screening buffer requirements and the existing topography will protect the Woods Drive residential area to the south.

The land used designation for The Beeches, 1030 Capitol Landing Road, should be changed from Low Density Single Family Detached Residential to Mixed Use land use. This historic house, eligible for individual listing on the National Register of Historic Places, should be preserved and incorporated into a redevelopment of the property that preserves the house and utilizes the beautiful environmental character of the land surrounding the house. The Mixed Use land use designation is implemented by a revised LB-3 Limited Business Residential District, but because of the strategic and sensitive location of this property, a rezoning to LB3 should not be approved until an acceptable master plan has been submitted for the property.

2. Second Street.

• The existing Corridor Commercial land use designation should be continued for the Second Street corridor, with residential density remaining at 14 dwelling units/net acre. For mixed use development in this corridor, multifamily dwellings (apartments and condominiums) and townhouses should be allowed with a special use permit so that impacts to the commercial corridor can be considered during the approval process. The commercial floor area requirement for a mixed use project should be continued at the present requirement of 33%, and the commercial floor area must be constructed simultaneously with the construction of the residential floor area. This should be implemented by the B-2 Corridor Business District.

• Revisions to the zoning regulations are needed to address the setback and buffer requirements for the north side of Second Street between Page Street and Parkway Drive, and particularly the area adjacent to Pine Crest Subdivision. The existing setback and buffer requirements are inappropriate for redevelopment of this area.

3. Penniman Road • The south side of Penniman Road should be changed from Corridor Commercial land use to Mixed Use land use. This area has potential for a high quality mixed-use development with a major residential component. Commercial and offices uses could be located along Penniman Road and Page Street adjacent to the Corridor Commercial area, with the interior of the property developed with residential uses. Time shares or hotel use could be part of a mixed use development. Senior housing could be one of the appropriate residential uses because of the proximity of this area to existing commercial uses, Colonial Williamsburg and downtown.

Student housing could be another appropriate residential use because of the relative nearness of the College of William and Mary and the availability of bus transportation. This area has 17.8 net developable acres, which could allow up to 249 dwellings units at a density of 14 dwelling units/net acre. The existing B-2 zoning should remain in place until a satisfactory plan is submitted for a mixed use development. The Mixed Use land use designation would be implemented by a revised LB-3 Limited Business Residential District, but because of the strategic and sensitive location of this area, a rezoning to LB-3 should not be approved until an acceptable master plan has been submitted for the property.

The Northeast Triangle Planning Area Future Land Use Map on the following page (Map 10-19) illustrates these recommendations.

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Chapter 10 – Commercial and Economic Development 10-23

Map 10-19

Chapter 10 – Commercial and Economic Development 10-24

2013 Williamsburg Comprehensive Plan

MAJOR MIXED-USE DEVELOPMENTS Quarterpath at Williamsburg Quarterpath at Williamsburg is a 328 acre mixed-use development proposed by Riverside Healthcare Association, located on the east side of Quarterpath Road between the Colonial Williamsburg Foundation Nursery and Quarterpath Road. This area is located on the largest tract of undeveloped land under a single ownership in the City, and is being developed as a planned mixed use community with a well designed mix of uses. The final details for Quarterpath at Williamsburg will be determined as the development and site plans are finalized, governed by the ED District zoning regulations.

The development is anchored by Doctors’ Hospital of Williamsburg, a 50 bed facility opening in early 2013. Other components of the project include a medical office campus surrounding the hospital, a mixed use commercial and residential area centered on a large Village Green on Battery Boulevard; corporate, office and retail areas; and a Redoubt Ridge residential village north of Tutter’s Neck Pond. When completed, it is anticipated that Quarterpath at Williamsburg will have 400,000 square feet of medical use, 140,000 square feet of retail and restaurant use, and 595,000 square feet of office use, plus up to 1,467 dwelling units. The residential component of Quarterpath at Williamsburg is discussed in detail in Chapter 8 - Neighborhoods and Housing, pages 8-21 and 8-22.

Map 10-20

Major infrastructure improvements are needed as this area develops. The Quarterpath Road/Route 199 intersection was reconstructed in 2008, and Battery Boulevard, a major east-west collector road that has been shown in the Comprehensive Plan since 1989, will be completed in early 2013. Redoubt Road, a major north-south collector road, will provide a connection between York Street and Route 199 when completed. Facilities for bicycles and pedestrians will be integrated into the final design, and will connect to a multiuse path between York Street and Battery Boulevard, which will provide connections to the downtown area as well as to adjacent development in James City County. Major utility improvements for water and sanitary sewer are under construction, including a sanitary sewer pump station connected to the Hampton Roads Sanitation District Force Main along Route 199. A 750,000 gallon elevated water storage tank was constructed on the eastern end of the property to serve the development.

2013 Williamsburg Comprehensive Plan

Chapter 10 – Commercial and Economic Development 10-25

Most of the site is located in Chesapeake Bay Preservation Areas. Tutter’s Neck Pond will serve as the primary stormwater management feature for Quarterpath at Williamsburg, supplemented by stormwater detention facilities and low-impact design construction practices. In addition, substantial buffer areas will be preserved throughout the development. Since Route 199 is designated as a Greenbelt street, a 75 foot greenbelt buffer will be required along its length. Preserving these environmentally sensitive areas will be a benefit both to the environment and to character of the development. In addition, 21.4 acres along Quarterpath Road was dedicated to the City for Redoubt Park, preserving two Civil War redoubts that were part of Williamsburg’s defensive perimeter.

Recommendation. The existing Economic Development land use along Route 199 should be continued, implemented by the ED Economic Development District.

High Street

High Street is a 55 acre mixed use development on Richmond and Ironbound Roads in an area first designated for Economic Development land use in the 1998 Comprehensive Plan. When completed, High Street will have 225,000 square feet of commercial floor area including an eight screen, 1,100 seat multiplex cinema. The major entrance is from Richmond Road, with secondary entrances on Treyburn Drive and Ironbound Road. A parking terrace with 405 spaces is supplemented by over 900 off-street parking spaces. The residential component, when completed, will have 574 multifamily dwelling units (apartments, condominiums and townhouses) located west of the commercial area (191 apartments and 16 townhouses have been constructed). A major stormwater management facility to control runoff and enhance water quality is located on the southern end of the property, and will serve as both an environmental and visual amenity for the development.

High Street anchors this section of Richmond Road, drawing on area residents as well as visitors. A residential density of 12 dwelling units/net acre with accessibility to shopping and entertainment will give this area an urban ambiance. Sidewalks connect High Street with residential areas to the north, west and east, and provide easy access from the College of William & Mary. This area is served by Williamsburg Area Transport, the Williamsburg Trolley and by bike lanes along Treyburn Drive which provide connections to the regional bikeway system.

Recommendation. The existing Economic Development land use should be continued, implemented by the ED-2 Economic Development District.

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OTHER COMMERCIAL AREAS

Mooretown Road

Monticello Ave./ Ironbound Rd.

York St.

Strawberry Plains Rd./ John Tyler Ln.

Jamestown Rd./ Rt. 199

S. Henry St./ Rt. 199

Quarterpath Rd./ Rt. 199

Map 10-21 Other Commercial Areas

Residential Uses in Corridor Commercial Areas While residential uses can be an important part of commercial areas, steps should be taken to ensure that land in the Corridor Commercial areas remains available for commercial development and redevelopment. This is particularly important because only 6% of the City’s land area is currently devoted to commercial use, and only 6% of the City’s vacant land is available for new commercial or mixed use development. Corridor Commercial land developed for mixed use projects should have a limitation on the maximum amount of residential use allowed to preserve the availability of land for commercial uses.

Recommendation. To allow more flexibility and to encourage well-planned mixed use projects, apartments, condominiums and townhouses should be allowed in the B-2 District, but with a special use permit to allow the review of projects on a case by case basis. The residential threshold should remain at 67% of the total floor area on an individual lot, which would allow either one floor of commercial use with residential use above, or commercial use on the front of the property with residential use on the rear.

2013 Williamsburg Comprehensive Plan

Chapter 10 – Commercial and Economic Development 10-27

Richmond Road (Bypass Road to Ironbound Road) This section of the Richmond Road corridor is a transition between the urban character of the Midtown Planning Area and the Corridor Commercial area west of Ironbound Road. When entering Williamsburg, a noticeably more urban character begins at Ironbound Road – buildings are closer together and closer to the street, and the predominant character defining feature of the street is buildings and sidewalks rather than parking lots. This urban character is enhanced by the High Street development, which locates major buildings at the 15 foot setback line with parking lots located beside and behind.

This area was designated by the 2006 Comprehensive Plan as General Commercial land use from Bypass Road to Ironbound Road, and is zoned a combination of B-2 Corridor Business District and B-3 General Business District. The High Street development, which abuts Richmond Road, is designated Economic Development land use and is zoned ED-2 Economic Development District. This section of Richmond Road contains four hotels and 13 restaurants. There is one prime redevelopment parcel in this area – the cleared and vacant former Governor Spotswood Motel property between the Holiday Inn Express and the Sunoco Station at the corner of Ironbound Road. This property ideally situated for new commercial uses that will add to the vitality of the corridor.

Recommendation. The General Commercial land use for this corridor should be changed to Corridor Commercial land use, implemented by the B-2 Corridor Business District but with a 15 foot building setback to recognize the special more urban character of the corridor.

Richmond Road (west of Ironbound Road to the City Limits) The western end of the Richmond Road commercial corridor, from Ironbound Road to the City Limits, has always been a tourist-orient business area. This section of Richmond Road contains eight hotels, 26 restaurants, one shopping center (Patriot Plaza) and various other commercial uses. There are two outparcels in front of Yankee Candle that are available for new development (1.15 and 1.38 acres), as well as a 6.9 acre parcel fronting on Waltz Farm Drive behind Outback Steak House.

This portion of the Richmond Road corridor is ideally situated between the Williamsburg Premium Outlets in James City County and the City’s High Street project, and future redevelopment should take advantage of this location. The large concentration of restaurants makes this the premier dining corridor in the area. The Comprehensive Plans for the City, James City County and York County are consistent in recognizing this area as a major commercial corridor.

Recommendation. The existing Corridor Commercial land use should be continued, implemented by the B-2 Corridor Business District.

Mooretown Road The Mooretown Road commercial area is separated from the rest of the City by the CSX Railroad, and is adjacent to property in James City County and York County. The main use in this area is a four-story self-storage facility. The residential uses in this area (two single-family and two multifamily rental dwellings) are nonconforming, and this property is suitable for redevelopment.

Recommendation. The existing Corridor Commercial land use should be continued for this area, implemented by the B-2 Corridor Business District.

York Street York Street is primarily a tourist-oriented commercial area, including five hotels, one time-share and two restaurants. This will be an important connecting route between the downtown area and the Quarterpath at Williamsburg development in the future.

Recommendation. The existing Corridor Commercial land use should be continued for this area, implemented by the B-2 Corridor Business District.

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2013 Williamsburg Comprehensive Plan

Quarterpath Road/Route 199 Intersection The west side of this intersection is the location of Quarterpath Crossing, a 95,000 square foot shopping center built in 2008, and anchored by a Harris Teeter supermarket. The east side serves as an entrance to the Quarterpath at Williamsburg development, and there is a nine developable parcel located at the northeast corner of Quarterpath Road and Battery Boulevard.

Recommendation. The existing Economic Development land use should be continued, implemented by the ED Economic Development District.

South Henry Street/Route 199 Intersection A small office area is located just north of the South Henry Street and Route 199.

Recommendation. The existing Office land use designation should be continued, implemented by the LB-4 Limited Business Corridor District.

Jamestown Road/Route 199 Intersection A small commercial area is located at the corner of Jamestown Road and Route 199, primarily serving neighborhood shopping needs with businesses including a drug store, two banks and a convenience store.

Recommendation. The existing Corridor Commercial land use on the northwest, southwest, and northeast should be continued, implemented by the B-2 Corridor Business District. The existing Office land use designation on the southeast corner should be continued. The three acres of existing Office land use that fronts on Mill Neck Road should be continued, implemented by the LB-4 Limited Business Corridor District.

John Tyler Lane/Strawberry Plains Road Three office areas are located along the John Tyler Lane and Strawberry Plains Road corridor: Governor Berkeley Professional Center, Mount Pleasant Professional Center, and offices south of Berkeley Middle School. These areas are located close to both the Route 5 and Route 199 corridors, and near the office area at Monticello Avenue and Ironbound Road.

Recommendation. The existing Office land use should be continued for the Mount Pleasant and the Governor Berkeley Professional Centers. The existing Mixed Use land use south of Berkeley School should continued, to be implemented by the LB-2 Limited Business Neighborhood District.

Monticello Avenue/Ironbound Road Intersection The northeast corner of Monticello Avenue and Ironbound Road is planned as one of the three economic development areas in the City. Because of environmental constraints, future development is proposed only for the western part of the property adjacent to Ironbound Road – the remainder of the property is defined by steep slopes, a tributary to College Creek, and an area defined by the 1994 Natural Areas Study prepared by the Virginia Department of Conservation and Recreation as an exemplary occurrence of a southern mixed hardwood forest, reported to be one of the best examples of such a natural community in all the Commonwealth. In addition to maintaining the existing vegetation on the sensitive environmental areas to the east, a 75-foot greenbelt buffer should be maintained along Monticello Avenue, and only a single vehicular access point should be allowed from each street. This 24 acre parcel is owned primarily by the College of William & Mary, and is located in College’s North College Woods.

This property is directly across Ironbound Road from the Williamsburg-James City County Courthouse and James City County’s New Town mixed use development, which makes this an ideal location for office or research and development uses. The City should work with the College to market and develop the property into appropriate economic development uses that are compatible with New Town and will provide increased employment opportunities in the region. At a floor area ratio of 0.25, this site could support up to 260,000 square feet of new gross leasable space.

Recommendation. The existing Economic Development land use should be continued for this area, to be implemented by the ED Economic Development zoning district.

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Chapter 11 Infrastructure UTILITIES The location and capacity of municipal water and sanitary sewer systems help to determine the form of the City’s growth, and the control of stormwater runoff helps to protect the environmental qualities which help to make the Williamsburg region so unique.

Water Existing System. The public water system consists of raw water sources, a water treatment plant and a water transmission, distribution and storage system.

Raw Water Sources. The primary raw water source for the City is the Waller Mill Reservoir located northwest of the City in York County. With a surface area of 308 acres, the Waller Mill Reservoir has a capacity of 1.5 billion gallons. The reservoir has an approved safe yield of 3.0 mgd (million gallons per day). In addition to the Waller Mill Reservoir, the City has a well adjacent to the reservoir with a yield of 0.5 mgd, for a total of 3.5 mgd.

To supplement these water sources, the City has a long-term contract with the City of Newport News, whose raw water lines pass through Williamsburg. The contract allows the City to purchase up to 2.0 mgd.

Treatment. The raw water from both the Williamsburg and Newport News systems is purified at the City’s water treatment plant adjacent to the Waller Mill Reservoir. A major renovation was completed in 1998. The water treatment plant is a “conventional” plant which utilizes chemical addition, flash mixing, flocculation, sedimentation, filtration and disinfection to treat the water. The plant currently treats between 2.0 and 3.0 mgd in the winter months and between 3.5 and 5 mgd in the summer months, and is certified to treat up to 7.0 mgd. This system transmits the treated water into the City’s distribution and storage system.

Transmission and Distribution. The water transmission mains in the City system consist of 12-inch, 18-inch and 20-inch lines that carry water from the treatment plant to the distribution system in the City. The major distribution mains are 6-inch, 8-inch and 12-inch lines. Some lines in the older sections of the City are 1-1/2-inch and 2-inch steel lines, and the City is replacing these lines on an as-needed basis.

The water distribution system serves all of the residential and commercial uses in the City. Water is also provided to portions of York County on both a retail and wholesale basis. The City retails residential and commercial water to several areas of the County including Bypass Road, Route 143, Waller Mill Road, Richmond Road and Middletown Farms. The City provides water to Camp Peary in York County through a master meter. The City formerly provided water to portions of James City County at four different master meter locations. The County has developed a desalinization plant and water can be provided by the City on an emergency basis only.

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Storage. The City currently has six tanks with a combined storage capacity of 4.25 million gallons.

Two ground level tanks are located at the filter plant, one 500,000 gallon tank which is the original clearwell and a 1,000,000 gallon tank which was constructed in 1983 and is at the same overflow elevation as the clearwell. Treated water is stored in these tanks and pumped to the distribution system, which includes four additional storage tanks located around the City. The latest 0.75 mg elevated storage tank for the Quarterpath at Williamsburg development was constructed in 2011-12.

An additional storage tank is anticipated in the future at the western end of the City in the Richmond Road/Mooretown Road area.

Water Demand. Through analysis of water billing and water treatment records, the City estimates that the average annual water demand for Williamsburg is 3.2 mgd. The major identified users include Williamsburg’s commercial customers (hotels, motels, restaurants and retail establishments), the College of William and Mary, Colonial Williamsburg and Camp Peary.

Projected Demand. Earlier studies estimated that the 3.2 mgd currently used by the City will increase to 5.0 mgd by the year 2040. The current yield of the Waller Mill Reservoir (and well) is 3.3 mgd.

There is an excess demand for water in the City in the absence of a new raw water supply source.

The City has a long-term contract with Newport News – 2.0 mgd is available until 2024, at which time the amount reduces to 1.0 mgd, but the City has the right to purchase another 1.0 mgd.

Conservation. The City developed and adopted a Water Conservation Plan in 1993, which includes the following water conservation measures: meter calibration and change-out program, metering of all customer connections, plumbing code enforcement, water rates set to reflect the true cost of water, a flat single rate structure, availability fee charges, and outreach programs for water customers. The City provides water conservation kits to help reduce water use. Williamsburg is an active member of the Hampton Roads Water Efficiency Team (HRWET), which is made up of representatives of local government, water suppliers and public information offices. Its mission is “to develop and implement a regional approach to communicating water efficient practices by all residents, businesses and industries in Hampton Roads.”

Future Service Improvements. In sizing the City’s water mains, an attempt was made to provide mains large enough to provide sufficient fire flow to developed areas. The City retains the right to review main sizes as future development occurs to ensure that they are adequately located and sized to provide Insurance Services Office (ISO) recommended fire flows and also meet the normal demands for the area.

In general, water line extensions will be required to serve all future development. Therefore, such extensions will be development-driven and will be extended as warranted by future development patterns.

Based on computer analysis and fire flow tests performed on hydrants throughout the City, several improvements have been made to upgrade the existing distribution system. A water line extension and a 0.75 million gallon water storage tank have just been completed for the Quarterpath at Williamsburg development in the Quarterpath Road/Tutter’s Neck Pond area. Future water system infrastructure improvements include other extensions to serve proposed developments in the City. Water extensions for the Capitol Landing Road/Merrimac Trail development areas are planned. In addition, water line improvements are anticipated in the Bypass Road/Mooretown Road areas of the City’s service area in York County.

Sanitary Sewer Existing System. The Williamsburg Sanitary Sewer System consists of sewer mains and pumping stations that carry wastewater to a regional treatment plant. This system came into existence when the City’s sewerage plant on South England Street was abandoned in April, 1972 after Williamsburg contracted with the Hampton Roads Sanitation District (HRSD) for treatment of sanitary sewage. HRSD built and now operates a large pumping station on the old plant site which pumps untreated sewage to the HRSD Williamsburg Treatment Plant in the Grove area of James City County.

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2013 Williamsburg Comprehensive Plan 11-2

This regional treatment plant operates at a capacity of 22.5 mgd. Given the fact that current demand flows are in the neighborhood of 12-13 mgd, the Williamsburg plant is quite capable of handling current and projected sewage treatment demands generated within the City in the foreseeable future. HRSD has replaced its existing pump station located at the intersection of Route 60 and 132.

While it appears that the HRSD system is capable of handling current and projected sewerage over the planning period, the City must continue to upgrade the existing collection system and plan for the optimal expansion of privately-developed sewage systems. With the continued infill of developed commercial and residential areas, the City must also be careful not to overload existing lines, which are quite old in many instances. In several areas throughout the City, infiltration/inflow (I/I) is a significant problem in the sewer system, as stormwater filters through cracks and other openings into the sanitary sewerage system during heavy storms. This “I/I” problem will only increase in the absence of rehabilitation in the coming years as the City infrastructure continues to age and demand continues to increase. Likewise, HRSD is unable to handle the excessive flows resulting from I/I at their treatment plant.

Future Service Improvements. The City will need to work with the development community as the utility infrastructure is expanded to handle new development. City standards are applied to this new infrastructure to insure compatibility, and these standards will need to be upgraded periodically to take advantage of desirable new technology.

Maintaining the integrity of existing aging infrastructure is a primary mission of the City. The City has joined other jurisdictions in the Hampton Roads Planning District in a regional effort to address sewer system overflows and infiltration/inflow related issues. A long term plan for sewer system rehabilitation and replacement will be developed using a priority system based on age and cost-benefit analysis.

Public Utility Extension Policy Sewer and water extensions in the City have historically been driven by development. Today, few developed areas within the City remain without access to public water and sewer facilities. In fact, the City’s Department of Public Works and Utilities estimates that over 95% of the City’s developed land has access to City water and sewer lines. The City has been active in extending public sewer to areas which were on private septic systems. Currently, only 24 properties are not on City sewer, a significant reduction from the 64 properties identified in the 1998 Plan, and from the 38 properties identified in the 2006 Plan.

However, extension of services to a few areas may need to wait until private development results in the extension of water and sewer mains and the construction of sewer pump stations. Although the existing City Code does not require residents to connect to City sewer and/or water systems if they have a functioning septic and/or well system, it is hoped that once the service extensions are in place, residents will be willing to hook-up to the system, thereby decreasing the potential long term community health risks posed by aging well and septic systems.

Solid Waste Management In an effort to develop an effective regional disposal system, a comprehensive solid waste management plan for the Peninsula has been prepared. In response to this plan, the Virginia Peninsula Public Service Authority (VPPSA) was formed to handle solid waste and refuse for the entire Peninsula. Garbage is collected door to door in the City by a contracted private firm and is transported by truck to the regional landfill in Hampton. The City’s recycling program for residential use, which was one of the first of its kind in the Commonwealth, includes curbside pick-up of glass, aluminum and paper. The reports from this recycling effort indicate that it has been a successful program for the residents of Williamsburg.

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TRANSPORTATION The Transportation section incorporates the Comprehensive Transportation Study for James City County/Williamsburg/York County, dated March 2012, and prepared by the Hampton Roads Transportation Planning Organization, which is included as Appendix 3.

The transportation plan encompasses a variety of transportation modes: roads, sidewalks, bikeways, mass transit, and rail. An efficient transportation system will use all of these modes, providing a variety of options for residents, visitors and businesses. The character of these transportation facilities needs to be compatible with the land uses proposed in the Future Land Use Plan, and should minimize impacts on Williamsburg’s residential and commercial areas.

Road Classification These five levels of road classifications are based on VDOT’s functional classification of City Streets.

• Interstates, Freeways and Expressways. Interstates, freeways and expressways are multi-lane highways, and may have partial or complete control of access and medians separating opposing traffic. Interstate 64 and Route 199 fall under this classification.

• Principal Arterials. The principal arterial is a multi-lane highway, and may have partial or complete control of access and medians separating opposing traffic. Route 60 (Richmond Road/Bypass Road/Page Street/York Street) and the Colonial Parkway, a National Park Service facility, are the City’s principal arterials.

• Minor Arterial Streets. These streets route traffic to and from interstates and major arterials. The minor arterial is intended to handle trips between major traffic generators and to accommodate internal traffic movements (collection and distribution) within a defined area. Minor arterial streets also give access to immediately adjacent lands. Richmond Road east of Bypass Road, Jamestown Road, Ironbound Road, Monticello Avenue, Lafayette Street, North Henry Street/Route 132, Capitol Landing Road north of the Colonial Parkway, Second Street and Merrimac Trail are the City’s minor arterial streets.

• Collector Streets. Collector streets serve to distribute traffic between minor arterial streets and activity centers. While their primary function is to collect relatively high volumes of local residential traffic, the local collector can normally sustain the demands of minor retail, office, and tourism generators or other commercial establishments along its alignment. Collector streets are traditionally two-lane undivided sections (often with turning lanes), with the relatively unrestricted spacing and configuration of access entrances. Longhill Road, Treyburn Drive, John Tyler Lane, South Henry Street, Francis Street, Visitor Center Drive, Penniman Road and Quarterpath Road are the City’s collector streets.

• Local Streets. The fifth category of street is the local street. These streets can be further categorized into sub-collectors, lanes, and places (or cul-de-sacs). Their major purpose is to conduct traffic to and from other higher category streets.

Existing Streets The configuration of the existing major thoroughfare system for Williamsburg gives the appearance of a typical city system of radial and circumferential streets centered on a central business district. The outer circumferential is Route 199 which connects to I-64 both northwest and southeast of Williamsburg. U.S. 60 together with Bypass Road and Lafayette Street form an almost complete inner circumferential. The radial streets within the system are Henry Street (Route 132), which forms a north-south connection between I-64, Bypass Road and Route 199; Jamestown Road, which links Route 199 and the Historic Area; Richmond Road, which links Route 60 and the Historic Area; and Monticello Avenue, which forms a connection between Route 5, Route 199, Ironbound Road and Richmond Road.

Unlike most similarly sized cities, this system is disconnected and often confusing because traffic patterns have been routed around the Historic Area and the College for reasons other than sound traffic conveyance. Although central and attractive as the geographic center of the City, the Historic Area is Chapter 11 – Infrastructure

2013 Williamsburg Comprehensive Plan 11-4

quite different from the typical central business district and yields unique parking requirements and distinct traffic circulation patterns which are uncommon to any other Virginia community. Because of this fact, a number of major thoroughfare improvements of the past have been undertaken with the purpose, at least partly, of relieving the streets of the Historic Area from traffic. These improvements include Bypass Road, Routes 132 and 143, Lafayette Street, and most recently the extension of Route 199.

Improvements since the 2006 Comprehensive Plan Major improvements to transportation facilities have been made since the adoption of the 2006 Comprehensive Plan. The Richmond Road Improvement Project from Brooks Street to New Hope Road, and Treyburn Drive from Monticello Avenue to Ironbound Road were completed in 2006. Improvements to the Monticello Avenue/Ironbound Road intersection were also completed in 2006. Improvements to Quarterpath Road from York Street to the Village at Quarterpath subdivision were completed in 2008.

The reconstruction and improvement of the Quarterpath Road/Route 199 intersection as a part of the Quarterpath at Williamsburg development was completed in 2009. Battery Boulevard, a new collector street that is part of Quarterpath at Williamsburg and connects Quarterpath Road with Route 60 East is under construction and will be completed in early 2013. The reconstruction and widening of Ironbound Road from the Longhill Connector to Strawberry Plains Road, located primarily in James City County, is under construction and will be completed by 2013. These improvements will provide more interconnections and options for travel in the Williamsburg area.

Existing and Projected Traffic Volumes Table 11-1 lists actual and projected weekday traffic volumes for selected streets in Williamsburg, with projected 2034 volumes based on the HRTPO traffic model. Williamsburg experienced a 6.7% growth in vehicle-miles of travel between 2001 and 2010, well below the increase in James City County (24.9%) and in York County (+22.3). Additional details are provided in the Comprehensive Transportation Study for James City County/Williamsburg/York County, which is attached as Appendix C. Table 11-1: Selected Weekday Traffic Volumes, Actual and Projected Street

Location

Bypass Road Bypass Road Cap Landing Rd Henry Street Henry Street Ironbound Rd Ironbound Rd Jamestown Rd Jamestown Rd Merrimac Tr Merrimac Tr Monticello Ave Monticello Ave Page Street Page Street Richmond Rd Richmond Rd Richmond Rd Richmond Rd Route 199 Route 199 Route 199 Second St York St

Richmond Rd to York CL Rt 132 to Parkway Dr Bypass Rd to Merrimac Tr Rt 199 to Ireland St Lafayette St to Rt 132Y James City CL to Longhill Rd Longhill Rd to Richmond Rd Rt 199 to John Tyler Ln John Tyler Ln to Boundary St York CL to Cap Lnd Rd Cap Lnd Rd to York CL Ironbound Rd to Compton Dr Compton Dr to Richmond Rd Cap Lnd Rd to Second St Second St to Lafayette St James City CL to Ironbound Rd Ironbound Rd to Bypass Rd Bypass Rd to Monticello Ave Monticello Ave to Boundary St Jamestown Rd to James City CL Henry St to Mounts Bay Rd Mounts Bay Rd to Rt 60 Parkway Dr to York CL Lafayette St to James City CL

2001 28,684 20,073 8,391 3,874 8,022 7,789 12,335 10,315 11,709 6,329 9,112 n/a 13,944 20,971 20,750 22,401 32,730 20,168 13,180 32,067 30,731 28,732 17,976 17,894

2010

Change 2001-2010

26,802 15,868 n/a 3,801 6,853 9,913 15,292 11,994 13,820 7,217 9,445 17,358 17,074 15,332 15,804 23,783 25,987 19,001 13,511 36,180 33,078 31,169 15,123 13,385

-6.6% -20.9% n/a -1.4% -14.6% +27.3% +24.0% +16.3% +18.0% +14.0 +3.7% n/a +22.4% -26.9% -23.8% +6.2% -20.6% -5.8% +2.5% +12.8% +7.6% +8.5% -15.9% -25.2%

Projected 2034

Change 2010-2034

36,000 30,000 11,000 7,000 13,000 14,000 19,000 13,000 18,000 13,000 15,000 26,000 26,000 32,000 35,000 33,000 45,000 28,000 19,000 49,000 57,000 57,000 24,000 20,000

+34.3% +89.1% n/a +84.2% +89.7% +41.2% +24.2% +8.4% +30.2% +80.1% +58.8% +48.2% +52.3% +108.7% +121.5% +38.7% +73.2% +47.4% +40.7% +35.4% +72.3% +82.9% +58.7% +49.4%

Source: Comprehensive Transportation Study for James City County/Williamsburg/York County, March 2012

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Map 11-1: Thoroughfare Plan Existing

Proposed

Freeway/Expressway Principal Arterial Minor Arterial Collector Local National Park Service

Recommended Transportation Improvements Quarterpath Road area. The most concentrated road improvements in the City are proposed in conjunction with the Quarterpath at Williamsburg development just north of Route 199 between Quarterpath Road and Route 60 East. The design details of these improvements will need to be finalized in conjunction with the development of the site and subdivision plans for the new development. In addition to Riverside Doctors’ Hospital, this area is planned for 400,000 square feet of medical use, 140,000 square feet of retail and restaurant use, 595,000 square feet of office use, plus up to 1,467 dwelling units. The specific improvements needed are described on the following page.

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2013 Williamsburg Comprehensive Plan 11-6

•

•

Battery Boulevard is a major east-west collector street paralleling Route 199, first proposed in the 1989 Comprehensive Plan. It will connect Quarterpath Road with Route 60 East and will be the major collector road serving the entire Quarterpath at Williamsburg project, providing access to Riverside Doctors’ Hospital. Battery Boulevard is under construction and will be completed in early 2013.

Redoubt Road will be the major collector road leading north from Battery Boulevard, extending through the residential area north of Tutter’s Neck Pond to Quarterpath Road. This will provide a secondary access to the non-residential uses along Battery Boulevard.

The center section of Quarterpath Road is proposed to be closed to through traffic when a new northsouth connection is established via Redoubt Road, connecting to Quarterpath Road just north of Redoubt 2, and then following Quarterpath Road to York Street. This alignment, coupled with Battery Boulevard and the improved Quarterpath Road/Route 199 intersection, will provide adequate traffic capacity for Quarterpath at Williamsburg and for the Quarterpath Crossing Shopping Center on the west side of Quarterpath Road. Design details will need to be approved in conjunction with the subdivision and site plan review process to ensure that adequate levels of service are maintained in this area.

This new alignment will allow the preservation of the historic Quarterpath Road trace alongside Tutter’s Neck Pond and Redoubt #1, as well as preservation of the sensitive environmental areas around the Pond and Tutter’s Creek. Most importantly, the historic setting of Quarterpath Road and Redoubt Park will be preserved, greatly enhancing the ability to interpret these sites (Redoubts 1 and 2) from the 1862 Peninsula Campaign. This setting would largely be destroyed if this section of Quarterpath Road were improved as a two-lane collector street as proposed in the 1989 and 1998 Comprehensive Plans.

However, the existing Quarterpath Road right-of-way for this center section should be preserved in the event that unforeseen future needs necessitate further road improvements for this area.

Ironbound Road. The widening of Ironbound Road is proposed between the Longhill Connector and Richmond Road. Ironbound Road is an important connection between Richmond Road and the Ironbound Road/Longhill Road corridor that provides connections to Route 199 and Monticello Avenue.

This project includes widening Ironbound Road from two to three lanes, providing an additional turn lane onto Richmond Road, and relocating and improving the Ironbound Road/Longhill Road intersection. A multi-use trail is proposed on the north side of Ironbound Road, connecting with the existing multi-use trail along the Longhill Connector, and adjoining utility lines will be placed underground. This will provide improved capacity and traffic flow for Richmond Road and the High Street development. By 2034, Ironbound Road is expected to carry 14,000-19,000 vehicles each weekday, up from 10,000-15,000 in 2010. Construction for the first phase of this project is anticipated in 2016, and is the City’s top priority for use of its VDOT Urban Allocation funds, and other funds as they may come available.

Parkway Drive. As a result of the report of the Northeast Triangle Focus Group, it is proposed to reconstruct Parkway Drive between Capitol Landing Road and the entrance to Wyndham Plantation. This will allow the construction of bike lanes, and a sidewalk on the north side of the street, when the street is rebuilt with curb and gutter. Traffic capacity will not be increased, but interconnectivity for pedestrians and cyclists will be improved.

Richmond Road. To increase traffic flow into the Midtown and Downtown Planning Areas, the Richmond Road/Bypass road intersection should be studied to see if it is feasible to convert the center left turn lane into a left turn and through lane, which would add a second eastbound lane going into town.

Additional right-of-way may be needed for this improvement.

Monticello Avenue. As a result of the recommendations for the Midtown Planning Area, it is recognized that major redevelopment of the Williamsburg Shopping Center, Monticello Shopping Center and/or the Lawson Apartments may necessitate improvements to Monticello Avenue between Richmond Road and Treyburn Drive. Any needed improvements should be a part of the redevelopment project.

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Prince George Street. The Prince George Street/Armistead Avenue improvements are a major project in the Downtown Planning Area, and are described in detail on page 10-6. It is identified in VDOT’s Six Year Improvement Program, and includes replacing and widening sidewalks, new curb and gutter, resurfacing, upgrading water and sewer lines and adding new street lights. Construction is scheduled for Fall 2013 at an estimated cost of $594,950.

Traffic Signals. New traffic signals may be necessary in select locations as the City’s growth continues.

Traffic signals should be added only if warranted by new development and/or significant changes in traffic volumes. Improvements in intersection geometry, traffic calming measures and signage may be able satisfactorily address traffic flow issues in lieu of traffic signals. In instances where the installation of a new traffic signal is justified, pedestrian and bicycles accommodations should be considered.

Improved Roads

New Roads

1

7 Battery Boulevard (Quarterpath Rd. to Route 60E) 8 Redoubt Road (Quarterpath Rd. to Battery Blvd.

2 3

11

4

Ironbound Road widening (Richmond Rd. to DePue Dr.) Parkway Drive reconstruction (Capitol Landing Rd. to Wyndham Plantation) Monticello Ave. improvements (if needed) (Richmond Rd. to Treyburn Dr.) Prince George St./Armistead Ave. improvements

Traffic Signals 9 Quarterpath Rd./York St. 10 Second St./Parkway Dr. 11 Richmond Rd./Waltz Farm Dr.

Intersection Improvements 5 6

1

Ironbound Road/Longhill Road Richmond Road/Bypass Road

5 6 2

3

4

10

9

8 7

Map 11-2 Recommended Transportation Improvements

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2034 Hampton Roads Long-Range Transportation Plan The 2034 Hampton Roads Long-Range Transportation Plan (LRTP) was approved by the Hampton Roads Transportation Planning Organization (HRTPO) in January 2012. The purpose of the LRTP is to guide investments in projects designed to meet the transportation goals of the HRTPO: mobility, safety, economic vitality and environmental protection. The LRTP is updated on a quadrennial cycle per federal regulations and encompasses a minimum 20-year time horizon, much longer than the Six-Year Improvement Program (SYIP) and the four-year Transportation Improvement Program (TIP), both important parts of the regional transportation planning process. The next LRTP will be for 2040, and work has already started on this update. More information on the regional transportation planning process, as well as the associated SYIP and TIP, is on pages 21-36 of the Comprehensive Transportation Study for James City County/Williamsburg/York County, which is included as Appendix C. As part of the long range transportation planning efforts, HRTPO forecasts traffic volumes and peak hour congestion levels. These volumes are based on output from the regional transportation model, which estimates raw traffic volumes based on socioeconomic projections as well as the assumption that all of the projects included in the LRTP are constructed. Low to moderate congestion has a Level of Service (LOS) of A, B or C, Moderate Congestion has LOS D, and Severe Congestion has LOS E or F. In 2010, only one roadway segment in Williamsburg was identified with Severe Congestion – Jamestown Road between Lake Matoaka and College Corner.

In 2034, four additional Williamsburg streets are identified with Severe Congestion: Richmond Road from Ironbound Road to Bypass Road and from Monticello Avenue to College Corner, Monticello Avenue, Lafayette Street, South Boundary Street/Francis Street from College Corner to South Henry Street, and Route 199 at Jamestown Road. In addition, Route 199 in James City County is shown with Severe Congestion between Jamestown Road and Route 143. These are shown graphically on Map 11-3: 2034 PM Peak Hour Congestion Levels.

Map 11-3

Source: Comprehensive Transportation Study for James City County/Williamsburg/York County, March 2012

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When looking at these projections, it should be noted that traffic forecasting is not an exact science, and no traffic model is perfect. Long range forecasts of severe future congestion do not necessarily indicate that improvements will be needed or can be made. In Williamsburg, most of the streets that are projected to be severely congested are located in areas with unique historical and cultural features, and streets in these areas cannot be widened without severely impacting community character. Of the five streets projected for severe congestion in 2034, only Monticello Avenue has potential for widening. This makes improvements to pedestrian, bicycle and transit facilities all the more important for accommodating future transportation needs.

Interstate 64 Although not located in Williamsburg, a major deficiency in the regional transportation network is Interstate 64, the major northern gateway into the Historic Triangle and the Hampton Roads region. In 1999 a Major Investment Study was made of the I-64 corridor that identified the need to widen I-64 to six lanes between Richmond and the eastern Route 199 interchange, and to eight lanes (including two HOV lanes) between Route 199 and I-664 in Newport News. This recommendation was endorsed by James City County, Williamsburg and York County, with the proviso that VDOT pay particular attention to preserving the aesthetic value of this scenic corridor. Thirteen years later, no progress has been made toward widening I-64, and VDOT is once again studying the corridor. With this in mind, the Comprehensive Plan supports the widening of I-64 while stressing the need for VDOT to carefully explore the tradeoffs between widening I-64 within the median versus widening along the edge of the right-of-way with the goal of preserving at least some of the wide and partially vegetated median.

Map 11-4

Source: Comprehensive Transportation Study for James City County/Williamsburg/York County, March 2012

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Bicycle Facilities The area’s first bikeway system was developed in 1976 in cooperation with the Virginia Department of Transportation. This plan, as originally designed and installed, was to be the center spoke of a plan that was expected to branch outward throughout James City County and York County, but was never extended. By 1990, bikeway elements had been adopted as a part of each jurisdiction's Comprehensive Plan, but there was no regional effort at implementation of a coordinated regional system. With the adoption of the federal ISTEA legislation (Intermodal Surface Transportation Efficiency Act), there was increased local interest in developing a bikeway plan for the region. The governing bodies of the three jurisdictions authorized the Regional Issues Committee (composed of representatives of all three jurisdictions) to develop a regional bikeways plan in October 1992. Following a series of public meetings, the Regional Bikeway Plan was adopted in June 1993. Following the adoption of the initial plan, the Historic Triangle Bicycle Advisory Committee (HTBAC) was formed to advise the three governing bodies and planning commissions on bicycle issues, and was responsible for the update of the Regional Bikeway Plan in 1998. This update was incorporated into all three jurisdictions’ Comprehensive Plans. HTBAC again assisted the three jurisdictions as the Regional Bikeway Plan was updated as a part of the 2012 Coordinated Comprehensive Plan update process.

Bicycle facilities fall into three basic categories: • Multi-Use Paths are constructed physically separate from the highway. They are usually eight to ten feet wide and are designed to accommodate two-way bicycle traffic. The multi-use path along Quarterpath Road and the Waller Mill Rail are examples of this type of facility. The Virginia Capital Trail, a regional multi-use path in James City County, is a regional example.

• Bike Lanes are constructed adjacent to traffic lanes and are generally delineated by pavement markings. These lanes are typically four to six feet wide and are considerably less costly to construct than multi-use paths. To accommodate two-way traffic, bike lanes must be constructed on each side of the road. Bike Lanes can often be constructed in conjunction with highway construction or repaving projects. Williamsburg examples are Treyburn Drive (new construction) and South Henry Street and Lafayette Street (repaving).

• Shared Roadways are travel lanes that are shared by all users of the roadway. Occasionally, the travel lanes are widened to 14 or 15 feet rather than the standard 12 feet. There are no bikeway pavement markings associated with these facilities, and the roadway may be signed as a bicycle route. Shared Roadways are typically designed on roadways with very light traffic and in developed areas where other modes are not feasible. Portions of Jamestown Road, Richmond Road and Francis Street fall into this category.

Bikeways should also be incorporated into subdivision and site plans when these developments are located along designated bike routes, and should be considered when reviewing rezoning requests and special use permits. Provisions for bicycle parking facilities and accommodations for bicycles at signalized intersections also need to be considered as an integral part of the City’s bikeway facilities.

There are 69 miles of existing bikeway facilities in the three jurisdictions, plus 40 additional miles of shared roadway facilities on roads maintained by the National Park Service (Colonial Parkway, Jamestown Island Tour Roads and Yorktown Battlefield Tour Roads). Many bike lanes in the area have received federal funding through the Transportation Enhancement or CMAQ process. An important part of the bikeway system is the Virginia Capital Trail that, when completed, will connect Williamsburg to downtown Richmond via the Colonial Parkway and 54 miles of multi-use path.

Table 11-2: Recent Bicycle Facility Construction in Williamsburg Project Bike Lanes – Jamestown Road from John Tyler Lane to Ukrop Way Bike Lanes – Penniman Road Bike Lanes – North Henry Street/Route 132 from the CSX Railroad to Bypass Road Bike Lanes – Longhill Road

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Completed 2002 2005 2006 2008

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In spite of the large existing bicycle facility network in the three jurisdictions, the Regional Bikeway Plan has a vision for a much larger, complete system. This would both provide further accommodation of people using bicycles as a means of transportation and recreation, but also make the area more likely to become a destination for bicycle tourism. The complete Regional Bikeway Plan includes proposed multiuse paths, bike lanes and shared roadways, as well as conceptual corridors. Combined, these existing, proposed and conceptual corridors total approximately 400 miles of bicycle facilities for Williamsburg, James City and York County. This will take many decades and millions of dollars to become a reality.

In the shorter term, the Comprehensive Transportation Study for James City County/Williamsburg/York County focused in addressing gaps in the existing system that, if completed, would best connect the existing facilities and creates an integrated system of bikeways throughout the area. The critical gaps identified for Williamsburg are: •

•

•

•

•

•

Capitol Landing Road (Lafayette Street to Merrimac Trail). This provides a connection between the bike lanes on Lafayette Street and the existing bike lanes on Merrimac Trail and Capitol Landing Road, as well as to the planned extension of the Capitol Landing Road bike lanes to East Rochambeau Drive. A possible method of providing this connection would be to reduce the number of lanes on the northern section of Capitol Landing Road from four to three lanes with bike lanes, and to sign the section between the Colonial Parkway and Lafayette Street as a shared facility. Current and future traffic volumes are low enough on the existing four-lane section to not impact congestion levels.

Ironbound Road (Longhill Connector to Longhill Road). This will connect existing bicycle facilities on Ironbound Road, Longhill Road, DePue Drive (Longhill Connector), and Treyburn Drive. A multi-use path should be constructed in conjunction with the widening of Ironbound Road, and this is recommended in the City’s recently completed Ironbound Road Corridor Study.

Jamestown Road (Route 199 to John Tyler Lane). This link would connect the Jamestown Road and John Tyler Lane/Strawberry Plains Road bike lanes to a multi-use path across Route 199 that connects too many neighborhoods and provides access to the Colonial Parkway, and to future planned bike lanes on Jamestown Road west of Route 199. Unfortunately, due to the turn lanes at the Route 199 intersection, there is no room to add bike lanes without widening the road.

Jamestown Road (Ukrop Way to Landrum Drive). This short segment along the William and Mary campus connects the Jamestown Road and John Tyler Lane/Strawberry Plains Road bike lanes with downtown Williamsburg and the College. On-street parking is now permitted on portions of this section of Jamestown Road, and on both sides of the road on Sundays. Bike lanes should be designated on both sides of this section of Jamestown Road, with on-street parking only allowed on Saturday and Sunday mornings for religious services.

Quarterpath Road (Redoubt Park to Battery Boulevard). This facility would connect to the existing multi-use path on the west side of Quarterpath Road that runs from the Quarterpath Recreation Center to Redoubt 2 in Redoubt Park. The existing gravel section of Quarterpath Road between Redoubt 1 and Battery Boulevard will be closed to vehicular traffic and improved as a multi-use path when Redoubt Road, a parallel street, is constructed, preserving the historic and environmental character of the area. This would also enable future connections to bicycle and pedestrian facilities in the adjacent Quarterpath at Williamsburg development. It the future, it may be possible to link this facility with the South England Street/Country Road facility mentioned below, creating a scenic recreational loop.

South England Street/Country Road. This facility would establish an important recreational connection for cyclists and pedestrians between Colonial Williamsburg, the James City County Government Center and Kingsmill, utilizing South England Street as a shared roadway connecting to the former Carter’s Grove Country Road between South England Street and Mounts Bay Road. Implementation will require cooperation between Williamsburg, James City County and the Colonial Williamsburg Foundation.

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In addition to the bicycle facility improvements listed previously, bicycle parking facilities need to be improved. Additional facilities are needed in the Downtown Planning Area (Municipal Center, Merchants Square and College Commercial areas), Midtown Planning Area (Arts and Cultural District, Shopping Centers), and along the City’s commercial corridors. Improved facilities are needed for most public buildings, and bicycle parking facilities could be added to the Prince George Parking Garage and the City Square Parking Terrace. The parking regulations in the Zoning Ordinance should be revised to encourage the provision of bicycle parking facilities.

As a part of the City’s Bicycle Facilities program, recognition should be sought from the League of American Bicyclists for Williamsburg as a Bicycle Friendly Community.

Map 11-5: Williamsburg Bikeways Existing

Proposed

Multi-Use Path Bike Lanes Shared Roadway National Park Service Critical Gap

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Pedestrian Facilities The relatively compact scale of the City has allowed for the development of an extensive network of pedestrian walkways and sidewalks. According to the 2005-2009 American Community Survey (U.S. Census), 26% of workers living in Williamsburg reported that they either walked or biked to work, compared with 1% in James City County, 5.4% in York County, 3.2% in Hampton Roads, 2.6% in Virginia and 3.4% nationwide. This is an increase from the 17% listed for Williamsburg in the 2000 Census, and remains the highest figure for any locality in Hampton Roads. The increasing number of houses proposed for higher density mixed-use developments in the City should increase this number in future years, and reinforces the need to continually plan for improved pedestrian facilities.

Over the past 25 years, the City has filled in many gaps in the sidewalk system, but there are still areas that need sidewalk improvements. It is the City’s responsibility to retrofit existing developed areas with sidewalks, but it is the developer’s responsibility within areas planned for future development. The City’s Subdivision Ordinance requires that sidewalks be built on both sides of public streets, and this is particularly important in conjunction with the trend toward higher density housing. In addition, sidewalks should be provided as an integral part of major street projects. It is also important to plan for interconnections between Williamsburg and the adjoining jurisdictions, and this is particularly evident in the Northeast Triangle Planning Area (see Chapter 10 – Commercial and Economic Development).

Major sidewalk improvements are shown on Map 11-6. Not included are minor infill areas that may exist in individual neighborhoods and are funded as a part of the annual Public Works Department operating budget. These improvements will be implemented both by the City through its Capital Improvement Program, and by new developments adjoining these facilities. Major improvements include: • Improved sidewalks between Merchants Square and the Delly area at Richmond Road and Scotland Street. These will increase pedestrian connectivity to new and proposed commercial uses (Tribe Square, Cooke Building, Prince George Commons) in the area adjoining William and Mary.

• New sidewalks along Lafayette Street on the south side between Harrison and Wythe Avenues, and on the north side between the Municipal Building and Chesapeake Bank, plus improvements on side streets in the Arts and Cultural District and Harrison Avenue, and a multi-use path between Lafayette Street and Richmond Road at Brooks Street to improve pedestrian circulation.

• A new sidewalk on Richmond Road between Patriot Lane and Waltz Farm Drive will fill in the last remaining sidewalk gap on Richmond Road.

• New sidewalks along Governor Berkeley Road between Richmond Road and Longhill Road will improve pedestrian connections for the Skipwith Farms and Longhill Woods area.

• New sidewalks and multi-use path along Compton Drive and Monticello Avenue will improve access from the main campus of William and Mary to the High Street and New Town areas.

These improvements are on the campus of William and Mary and along VDOT maintained Monticello Avenue, and are not directly funded by the City.

• New sidewalks in the Northeast Triangle Planning Area (Bypass Road, Parkway Drive, Merrimac Trail and Penniman Road) will provide increased interconnectivity to existing neighborhoods and to adjoining jurisdictions, as well as safer pedestrian connections from the higher density housing along Merrimac Trail and Parkway Drive into the downtown area.

• New and improved sidewalks on York Street between Page Street and Pocahontas Street, and a multi-use path between Pocahontas Street and Quarterpath Park, will provide new connections.

• New sidewalks and multi-use trails along Quarterpath Road and in the Quarterpath at Williamsburg area will serve this emerging mixed-use area in which over 1,400 homes are planned. This will provide access to planned commercial and medical uses, Redoubt and Quarterpath Parks, and also connections to Colonial Williamsburg and the downtown area.

• A new sidewalk on South Henry Street will provide sidewalk to The Oaks, connecting this townhouse development to the City’s sidewalk system.

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Map 11-6: Major Sidewalk Improvements

New Sidewalks New Sidewalks (with new development) Improved Sidewalks New Multi-Use Path

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Public Transportation Williamsburg Area Transit Authority (WATA) provides public transportation services for Williamsburg, James City County and York County, and has evolved from the James City County Transit Company, created in 1980. In March 2006, the General Assembly authorized the formation of a Regional Transit Authority between James City County, York County, the City of Williamsburg, the College of William and Mary and the Colonial Williamsburg Foundation. The Williamsburg Transit Authority (WATA) was established in August 2008. Local bus, trolley and ADA paratransit services are directly operated by WATA. Through an agreement with WATA, the Colonial Williamsburg Foundation continues to operate service around and throughout the historic Williamsburg area, as well as to historic Jamestown, Jamestown Settlement, and historic Yorktown. The Williamsburg Transportation Center serves as a central transfer point for WATA buses as well as AMTRAK, Greyhound Bus Lines and taxi service. A more detailed discussion of public transportation is presented in Appendix 3, Comprehensive Transportation Study for Williamsburg/James City County/York County, pages 37-44.

Map 11-7: Williamsburg Area Transport Bus Routes

WATA also operates the Williamsburg Trolley between Colonial Williamsburg, Merchants Square, the College of William and Mary, High Street and New Town. The service, provided on a 40-minute basis, is geared toward area visitors, William and Mary students and residents. The College accounted for 42% of all trolley riders in September 2012. Ridership levels have been the highest in the spring and fall when regular semester classes at William and Mary are in session – over 33% of trolley ridership in 2012 was in September, October and November.

Improvements are needed to the number, design and location of bus shelters throughout the City.

Frequency of service and hours of operations should be increased to better serve the community, and a smartphone interface should be developed to provide additional information to patrons.

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Intercity Passenger Rail A main line of the CSX Railroad runs through the City, and passenger access to the railroad is provided at the Transportation Center located at the northern terminus of North Boundary Street and Armistead Avenue. In addition to the existing AMTRAK passenger service, the Williamsburg area will be served in the future by improvements to the existing rail service.

Williamsburg’s City Council has gone on record supporting the addition of high speed rail on the Peninsula, which would be a great benefit to the tourist-oriented economy of Williamsburg.

The Virginia Department of Rail and Public Transportation and the Hampton Roads Transportation Planning Organization (HRTPO) are cooperatively conducting studies to improve intercity passenger rail to the Hampton Roads Region. Expansion of intercity passenger rail is a priority of the Hampton Roads Transportation Planning Organization, and the HRTPO Board approved a resolution in October 2009 supporting the Commonwealth’s efforts to enhance the existing intercity passenger rail service on the Peninsula and to establish high-speed passenger rail service on the Southside.

The Tier 1 Final Environmental Impact Statement for the Richmond to Hampton Roads Passenger Rail Project was issued in August 2012. The Preferred Alternate proposes to provide passenger rail service from Richmond to points southeast ending at Norfolk and Newport News. Service on the Peninsula will continue on the CSX Railroad route with an additional round-trip per day (for a total of three) at conventional speeds of up to 79 mph. The Final EIS estimates that the additional train on the Peninsula would almost double the number of passengers in 2025, from 250,000 passengers per year up to 450,000 passengers per year.

Map 11-8 Preferred Alternative

Source: Richmond/Hampton Roads Passenger Rail Project, Tier I Final Environmental Impact Statement

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Transit Vision Plan The Hampton Roads Regional Transit Vision Plan, February 2011, was developed by the Virginia Department of Rail and Public Transportation, Hampton Roads Transit, and the Williamsburg Area Transit Authority. Its purpose is to provide a concept for a regional rapid transit network that connects major employment and population centers in Hampton Roads. The Plan includes a number of proposed corridors and projects, classified as short range (today to 2015), mid range (2016-2025), long range (2026-2035), or extended range (2035+). Two of these corridors include Williamsburg: Corridor 11Downtown Newport News to Williamsburg, and Corridor A – Downtown Newport News to Toano.

Corridor 11 runs for 31 miles from Williamsburg to Downtown Newport News and commuting demand in the corridor is high. The Transit Vision Plan envisions expanding the existing express bus service along Corridor 11 in the short and mid range, and in the long range recommends replacing express bus service with commuter rail.

Corridor A follows the CSX Railroad corridor from Toano in James City County through Williamsburg to Downtown Newport News. The Transit Vision Plan recommends that commuter rail be operated along the CSX railway in this corridor between Williamsburg and Downtown Newport News in the long range, with service being extended to Lightfoot and Toano in the extended range.

This commuter rail service would replace the express bus service in Corridor 11 recommended for the short and mid ranges.

Commuter rail, which is commonly used for trips that are from 20 to 60 miles in length, consists of heavy rail equipment such as diesel locomotives pulling multiple Map 11-9 rail coach cars. The Virginia Railway Regional Transit Vision Plan Express in Northern Virginia is an example Source: Hampton Roads Regional Transit Vision Plan of commuter rail. Additional details for these recommendations are presented in Appendix 3, Comprehensive Transportation Study for Williamsburg/James City County/York County, pages 45-46.

Air Travel Four airports serve the greater Williamsburg Area – the Williamsburg-Jamestown Airport located in James City County, Newport News/Williamsburg International Airport located in Newport News, Norfolk International Airport, and Richmond International Airport. The Williamsburg-Jamestown Airport, located southwest of the City, is a privately owned general aviation facility which does not offer any commercial passenger or freight services but does offer facilities for owners of private and business aircraft.

Newport News-Williamsburg International Airport’s Master Plan projects passenger enplanements to increase from 520,000 in 2010 to between 622,000 and 1.092 million by 2025. Norfolk International Airport’s Master Plan anticipates significant growth from the current level of 1.7 million enplanements per year up to between 3-3.75 million enplanements per year by 2024. Richmond International Airport’s Master Plan forecasts passenger enplanements to increase from the current 1.7 million to between 2.5 and 3.5 million passengers per year by 2026.

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PARKS AND RECREATION The City maintains a system of public parks and recreational facilities, and the demand for these active and passive recreational areas will increase as the Williamsburg area continues to grow. The physical planning aspects of the Parks and Recreation system will be discussed in the following sections, focusing first on the existing facilities and then on recommended improvements. The location of these parks are shown on Map 11-10.

Existing Facilities Williamsburg’s existing facilities can be divided into two categories based on the types of activities which take place in the parks. Passive Parks are generally utilized or developed for aesthetic beauty or historic interest. Active parks are primarily developed for active recreation and include facilities such as ball fields and tennis courts and/or special facilities for activities such as fishing, cycling and boating.

Passive Parks Berkeley Park. This park is located at the cul-de-sac end of Berkeley Lane, adjacent to Jamestown Road and across from Walsingham Academy. This park was improved in fall 2010 to better serve the surrounding neighborhoods by replacing benches, adding a picnic table, and planting more flowers.

Bicentennial Park. This four acre park is landscaped to provide sitting and strolling areas for residents and visitors, as well as users of the adjacent National Center for State Courts and the Law School. The park’s importance is underscored by its location along the South Henry Street entrance corridor, one of the major routes into the Historic Area. It serves to enhance the visual entrance statement provided to visitors and residents by preserving valuable greenspace along this important entranceway. In the future its importance will be heightened when the adjacent Museums of Colonial Williamsburg are expanded.

College Landing Park. This park is built on the site of one of Williamsburg’s two colonial ports. The historic two-acre site has been developed to provide for aesthetic and recreational opportunities. It includes a scenic overlook, a marsh walk, a boat access for shallow draft boats, a picnic area and parking facilities.

Minor Park. This 0.17 acre facility, purchased by the City in 1987, has been improved and helps to beautify the Capitol Landing Road/Page Street area.

Redoubt Park. Redoubts 1 and 2 along Quarterpath Road formed part of Confederate General J. B. Magruder’s Third Peninsula Line. Redoubt Park makes these earthworks accessible to the public while simultaneously providing interpretation about the Battle of Williamsburg and other historical features found in this parcel. The planning for the park was a joint effort between the City and the Virginia War Museum Foundation, and is part of an overall effort to preserve and interpret 1862 Peninsula Campaign sites on the lower Peninsula. Riverside Health Care dedicated 21.4 acres for the park in 2006 as a part of their Quarterpath at Williamsburg project. The future conversion of the unpaved portion of Quarterpath Road to a multiuse trail will help to preserve the historic setting of Redoubt Park.

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Map 11-10 Existing and Proposed Parks Passive Parks 1.

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Existing Berkeley Park Bicentennial Park College Landing Park Minor Park Redoubt Park Proposed Capitol Landing Park College Creek Nature Area College Creek Conservation Area Papermill Creek Park

Active Parks 10.

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Existing Kiwanis Park Quarterpath Park Waller Mill Park Highland Park Community Park Matthew Whaley Elementary School James Blair Berkeley Middle School Strawberry Plains Neighborhood Park

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Active Parks Kiwanis Park. The twenty-seven acre facility located on Longhill Road, adjacent to James Blair Middle School, underwent major improvements in 2007-2009. This created a new configuration for the three lighted softball fields and expanded the parking lot. A variety of recreational facilities on the developed twelve acres include seven lighted all-weather tennis courts and three lighted softball fields for the Recreation Department’s youth slow pitch and fast pitch softball programs, including weekend tournaments, plus a concession and restroom building.

Numerous pieces of multi-station playground apparatus are provided, as well as a shelter and a full size basketball court. Fifteen acres of undeveloped woods adjoin the facility.

Quarterpath Park. This twenty-three acre facility located on Quarterpath Road near Route 60 East includes three lighted softball fields; two sand volleyball courts; a 25-meter, 6-lane, z-shaped outdoor swimming pool; three all-weather tennis courts; playground equipment; and a picnic shelter accommodating approximately 75 people. It is also the site of the Quarterpath Recreation Center, a 36,144 square foot facility that was renovated in 2002. The Recreation Center houses offices for the Williamsburg Parks and Recreation Department, an 18,000 sq. ft. double gymnasium, a 1,700 sq. ft. dance/aerobics room, two classrooms and a 1,900 sq. ft. multipurpose room. Various instructional classes, athletic programs for youth and adults, sports camps, and special events are held throughout the year at this facility.

Highland Park Community Park. This 2-acre neighborhood park is located on North Henry Street in the Highland Park Community. This facility has playground equipment, a half-court basketball court, a picnic shelter with grills and a paved walking trail.

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Waller Mill Park. Located on Airport Road between I-64 and Richmond Road, Waller Mill Park’s 2,705 acres are situated around the City’s Waller Mill Reservoir. The park was opened to the public in July 1972. The 308-acre lake is open for fishing, boating, pedal boating, canoeing and kayaking with a tunnel connecting the upper and lower sections of the lake. Numerous picnic tables, four shelters accommodating from 25 to 150 people, play fields, and playground equipment are nestled among the trees providing a scenic picnic area.

There are over seven miles of hiking trails throughout the park, providing interesting, picturesque walks with water and wooded views. The two-mile long Waller Mill Rail Trail, a paved multiuse path, provides walking and biking opportunities and is connected to bike lanes on Mooretown Road and East Rochambeau Road. A short hike from the park along this trail will bring you to the Lookout Tower, which offers a panoramic view of the water and woodlands.

Matthew Whaley Elementary School. The school grounds contain a softball field and numerous pieces of multi-station playground equipment.

James Blair Middle School. This facility provides a regulation baseball field, softball field and batting cage. It also offers Cooley Field, which hosts Jamestown and Lafayette High School football and soccer activities.

Berkeley Middle School. The school grounds contain a baseball and a softball field, as well as the capability of having a football field superimposed on the baseball field. The playfield at this school provides facilities for after-school and summer recreational programs. The indoor facilities also provide opportunities for year-round program scheduling.

Wales Community Park. This 0.2 acre park is located in the Wales Subdivision, and includes a multistation playground equipment and swing set.

Strawberry Plains Community Park. This 0.7 acre park is located in the Strawberry Plains subdivision. It contains multi-station playground apparatus, a swing set and several benches. There is also a small open area for children to play kickball, soccer and even football.

Other Facilities In addition to these municipal facilities, the Williamsburg area has a number of private and nearby public areas which enhance the community’s available resources. These include the beautiful green areas and facilities of the College of William and Mary and Colonial Williamsburg, and nearby regional facilities including the York River State Park, Chippokes State Park and the Colonial National Historic Park (Yorktown Battlefield, Jamestown Island and the Colonial Parkway).

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Planned Improvements Passive Parks Capitol Landing Park. A portion of the Capitol Landing site on Queens Creek should be acquired to preserve the historic site of one of the City’s two colonial ports, and to provide an additional passive recreation opportunity in the northeastern section of the City. The scope of the park should be similar to that of College Landing Park; the site of the City’s other colonial port. Potential also exists for the site to be interpreted as a colonial port, and this idea should be explored with the Colonial Williamsburg Foundation.

College Creek Parks. The four parks listed below have the potential to form a unique system of over 217 acres of linked open spaces, creating an important open space preserve in the southern portion of the City.

• College Landing Park is built on the historic site of one of Williamsburg’s two colonial ports, and a scenic overlook, a marsh walk, a boat access, a picnic area and parking facilities have been incorporated into the park.

• Papermill Creek Park will have at its core 37 acres on the north side of Papermill Creek. The park will have a definite ecological orientation and will take advantage of the wetlands of Papermill Creek, with trails and marsh overlooks. Access to this park will be available from the south at College Landing Park and from the north at South Henry Street opposite the entrance to the Port Anne subdivision. The northern section of the park is topographically suited for the location of a facility such as an art museum and gallery or a nature center, and can also serve as the “trail head” for the park. It may also be possible to incorporate the former Great Neck Picnic Area into the park, which requires approval from the National Park Service. This could allow a pedestrian connection to downtown from The Oaks subdivision.

• College Creek Nature Area is a 45 acre undeveloped area bordered by South Henry Street, Route 199 and College Creek, and should be acquired by the City. The northern part of the site should be connected to the College Landing Park marsh walk, and the remainder of the area should be preserved as open space to maintain South Henry Street as a scenic entry corridor.

• College Creek Conservation Area is a 105 acre conservation area acquired by the City in 1996. It should remain undeveloped and preserved in its natural wooded state to serve as a viewshed and as a place of quiet enjoyment. Public access should be maintained from the adjacent public streets in the Holly Hills subdivision, but no off-street parking should be constructed. It may be possible to provide a pedestrian connection to this area from College Landing Park by constructing a pedestrian bridge from College Landing Park across College Creek.

Active Parks Kiwanis Park. Future proposed improvements for Kiwanis Park include development of a fourth lighted softball field between fields 1 and 3, and the development of a multi-use path through the wooded area that will connect the developed portion of the park with the multi-use path along the Longhill Connector.

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COMMUNITY SERVICES FACILITIES The City of Williamsburg has well developed facilities to support basic community service needs. These include City owned facilities such as the Municipal Building, Fire and Police Stations, Library, Community Building, Transportation Center, City Shop and Cedar Grove Cemetery; jointly operated facilities such as the Williamsburg/James City County Courthouse, Regional Jail and Olde Towne Medical Center; and facilities that are operated by other levels of government or are operated by other organizations, such as the Riverside Doctors’ Hospital and the Post Office.

The Municipal Center The City’s Municipal Center includes the City’s major governmental functions and public buildings, and covers a 25-acre area centered on City Square on North Boundary Street. This area has long been the focus of planning efforts by the City. By 1980, most of the present Municipal Center buildings were in place: the Stryker Building (1968), Library (1973), Police Station (1978) and Fire Station (1978).

Another group of buildings were completed prior during the 1980s: Arts Center (1982), City Shop (1985), Municipal Building (1988), and the remodeling of the Stryker Building for the present City Council Chamber (1989).

A major upgrade to the Municipal Center was completed in 1999 with the creation of City Square, a large tree-lined green that serves as the area’s centerpiece and defining element, and which unifies the varied architectural styles of the surrounding buildings. Surrounding City Square, in addition to the Library (expanded in 1999) and Stryker Building, is the 153-space Parking Terrace (1999) and the Community Building (1999) which provides community meeting space in two adjoining meeting rooms. Sites for three commercial and/or office buildings with approximately 18,000 square feet of floor area were provided on the west and south sides of the Parking Terrace and two of these buildings have been completed. The Transportation Center, the City’s multimodal transportation hub, was renovated in 2002, and functions as a central terminal for Amtrak, Greyhound Bus Lines, and Williamsburg Area Transport bus service. Long-term parking, automobile rental and taxi services are also provided.

Recent improvements to the Municipal Center include a new Emergency Operation Center and Fire Administration offices as an addition to the Fire Station (2011), and the expansion and renovation of the Municipal Building (2011). This expansion provided needed facilities for the City administration, and included space for bringing the City Attorney’s office and the Williamsburg Redevelopment and Housing Authority into the Municipal Building.

The next steps in the evolution of the Municipal Center will include the replacement of the aging Stryker Building with a new Stryker Center fronting on City Square. This new facility will advance the partnership between the City and the Williamsburg Regional Library to better meet the city’s governmental needs and to satisfy unmet demands for civic and community activity space. A site for future development is also reserved on the southwest corner of North Boundary Street and Lafayette Street, adjacent to the Stryker Center. In addition, the acquisition of a key lot south of City Square and across Boundary Street from the Library would complete the 60 year development of the Municipal Center into the City’s civic center. Map 11-11 on page 11-27 shows the layout of the Municipal Center.

The Municipal Center in 2012. The major components of the Municipal Center are: The Municipal Building. This 39,500 square foot building was renovated and expanded in 2011, and houses the following offices: City Manager, City Attorney, Planning and Codes Compliance, Public Works and Public Utilities, Finance, Tax Assessor, Human Services, Commissioner of the Revenue, Treasurer, Williamsburg Redevelopment and Housing Authority, and Voter Registrar. A conference room on the third floor accommodates public meetings and work sessions.

Stryker Building. This facility includes a 140 seat Council Chamber. The remainder of the building is vacant. This building will be replaced in the future with the Stryker Center.

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Williamsburg Library. The Library was built in 1973 as a part of the original Municipal Center master plan. In 1977, Williamsburg and James City County established, by contract, a Regional Library. York County was invited to participate but declined. However, they did agree to enter into a financial arrangement in which the library serves the County's Bruton District. The City expanded the Library in 1982, and a multi-purpose auditorium, meeting rooms and art gallery were added. In 1997, the James City County Library in Norge was added as a second Williamsburg Regional Library location. A major expansion of the Williamsburg Library was completed in 1998 increasing its size to 30,000 square feet and making it the most prominent public building in the Municipal Center. In FY11, through both library locations and Mobile Library Services vehicles, the Williamsburg Regional Library circulated 1,328,633 items to 48,416 registered borrowers. The Libraries house a collection of 344,698 items in a variety of formats. Many information databases are available both in-house and at home to those with Internet access.

Performing Arts. The City's major performing arts space is located in the Arts Center in the Williamsburg Library, which contains a 268-seat auditorium. This facility hosts a wide range of performances throughout the year and also serves as an important community meeting facility. Other local venues are Phi Beta Kappa Hall at the College of William and Mary (763 seats), the Kimball Theatre on Merchants Square (410 seats), the Virginia Room at the Williamsburg Lodge (968 theater-style seats), the Hennage Auditorium at the Wallace Museum (267 seats) and the Lake Matoaka Amphitheater (1,700 seating capacity with 575 fixed seats).

Community Building.

The Community Building, completed in 1999, is located at the eastern terminus of City Square, and was designed to provide meeting facilities that complement those available at the Williamsburg Library across North Boundary Street.

The building contains two adjoining meeting rooms totaling 2,525 square feet which can be used together or separately. A small catering kitchen is provided to serve the meeting rooms. An outdoor terrace at the front of the building offers a westerly vista of City Square and the Library Plaza, and concerts can be staged from the steps of the terrace. During 2011, the Community Building hosted 62 City functions and 100 private events.

Parking Terrace. This two-level, 153 space structure was designed to be an integral part of the Municipal Center. Sites for three commercial and/or office buildings with approximately 18,000 square feet of floor area were provided on the west and south sides of the Parking Terrace, reducing its visual impact and providing a building edge to the north side of City Square. Two of these buildings have been completed.

Police Station. The Police Station was completed in 1978 and expanded in 1997, and is located on the south side of Lafayette Street between North Boundary Street and Armistead Avenue. The 11,000 square foot building provides for a training room and the necessary audio-visual equipment, a line-up room which allows separation and privacy for crime victims viewing suspects, a forensics lab for analyzing evidence and photographic work, and an exercise room and office space for administrative staff.

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Fire Station. The City is served by one fire station located on the north side of Lafayette Street between North Boundary Street and Armistead Avenue. Additional service is provided by several James City County and York County fire stations through mutual aid agreements. The City fire station, built in 1978, is centrally located and contains 18,000 square feet of floor area, a hose drying tower, sleeping quarters and other support facilities. Fire Administration is colocated with the City’s Emergency Operations Center (EOC) at 444 North Boundary Street, directly behind the Fire Station. The EOC serves as a centralized location from which emergency operations can be directed and coordinated. It houses state-of-the-art technology including 21 computers, 11 video displays, radios and an audio system to communicate throughout the EOC. When not in use during an emergency, the space is utilized as a conference room, training room and plans review area.

A one-acre parcel on Ironbound Road near the intersections of Middle Street and Longhill Road has been reserved for the addition of a second fire station as the need arises to expand the depth of operation and to address increased response times. There are no plans to construct a second fire station in the immediate future.

City Shop. This facility was established in 1985 on Armistead Avenue north of Lafayette Street and the Municipal Building and west of the Transportation Center. The site contains a 16,000 square foot shop building and two covered storage sheds, as well as a 1,000,000 gallon water storage tank. It houses the streets, water and sewer, landscape and vehicle maintenance division of the Public Works Utilities Department, and serves as the fuel dispensing station for the entire fleet of City vehicles and equipment.

Transportation Center. The Transportation Center is located at the northern terminus of North Boundary Street and Armistead Avenue, and is the only center in the state that is a full service transportation center. This 5400 square foot brick building was built in 1935 as a part of the restoration of Colonial Williamsburg. In 2000, it was purchased by the City from the Colonial Williamsburg Foundation and was renovated and restored.

The Transportation Center functions as a central terminal for Amtrak, Greyhound Bus Lines, and Williamsburg Area Transport bus service. Long-term parking, automobile rental and taxi services are also provided. It is conveniently located to serve both Colonial Williamsburg and the College of William and Mary. For future needs, the Transportation Center is a strategically located part of the City’s evolving transportation network, and will be a major part of the advanced transportation network planned for the Hampton Roads Region which includes future commuter rail service.

Post Office. The Post Office moved to its present location on the north side of Lafayette Street between North Henry and North Boundary Streets in 1989. This site was selected to maintain convenience to downtown residents and businesses, and to relieve Merchants Square of undesirable truck traffic. However, subsequent experience has shown that this downtown location is not suitable for the Post Office processing and transport center because of the volume of employee parking and mail delivery traffic that it generates. To supplement this facility, a second Post Office was built in James City County on Monticello Avenue west of the City in November 2003.

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Map 11-11

(future)

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Proposed Expansion of the Municipal Center.

The next project in the continuing development of the Municipal Center will extend the partnership between the City and the Williamsburg Regional Library to meet the city’s governmental needs and to satisfy unmet demands for civic and community activity space.

The existing Stryker Building is proposed to be demolished and replaced with a 12,000 square foot “Stryker Center,” to include the City Council chamber, meeting rooms, administrative space for the Williamsburg Regional Library, and exhibition, gallery and reception space.

The public spaces will be shared with Library uses such as educational and arts programming, video production and origination, film screening, and diverse community meeting and activities. The Stryker Center will become a place where citizens interact easily with government and one another, and it will be located near the Williamsburg Library and the Community Building, emphasizing City Square as a true public meeting space for the community.

In addition to the Stryker Center, three sites are available for future development of the Municipal Center: •

Lower-level expansion for the Police Station.

•

A site for future development is reserved on the southwest corner of North Boundary Street and Lafayette Street adjacent to the proposed Stryker Center.

•

A site for future development is identified at the southeast corner of North Boundary Street and City Square. This property would need to be acquired by the City if it were to be made a part of the Municipal Center.

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Community Services Facilities Outside The Municipal Center Although the majority of the City’s facilities are located in the Municipal Center, several facilities are located elsewhere in order to best serve the residents of Williamsburg and adjoining jurisdictions.

Cedar Grove Cemetery. The City owned and operated Cedar Grove Cemetery is located on South Henry Street south of Mimosa Drive. The original four acres of the cemetery were deeded to the City is 1859 and an additional 12 acres have been added outside of the original brick wall that marked the boundary of the 1859 cemetery. Approximately 250 Confederate soldiers were buried in a common grave in the northeast section of the cemetery following the Battle of Williamsburg in May, 1862. In 1929, 13 cedar trees were planted by the Daughters of the American Revolution, one for each of the 13 original colonies. Burial in the cemetery is limited to City residents and eligible City employees.

There are a total of 12,882 burial spaces, and 9,656 have been sold. The City has established a cremains area within the cemetery. An average of 50 burial spaces are sold each year, and burials average 55 per year. If cemetery expansion is needed in the future, the City could initiate discussions with the College of William and Mary to acquire adjacent undeveloped College property to the east, which could result in an expansion area of between nine and 35 acres.

Courthouse. The Williamsburg/James City County Courthouse moved to its present location on a 10acre site Monticello Avenue near the corner of Ironbound Road in November 1999, and the site was subsequently annexed into the City. The 70,000 square foot Courthouse houses the WilliamsburgJames City County Circuit and General District Courtrooms and allied offices.

Regional Jail. The Williamsburg, Poquoson, James City County and York County formed the Virginia Peninsula Regional Jail Authority in 1995. A 290-bed facility was constructed on Route 143 in lower James City County. As a part of the formation of the Regional Jail Authority, the Williamsburg and James City County Sheriff’s Departments were consolidated and provide courtroom security and the serving of civil papers for both jurisdictions.

Juvenile Detention Center. The Merrimac Center is a secure detention facility that houses 48 juveniles. Adjacent to the regional jail, it serves Williamsburg and 18 other localities that comprise the Middle Peninsula Juvenile Detention Commission. The Center provides a full range of custodial services to juveniles who are placed there while awaiting a hearing after having been charged with an offense. Pre-dispositional placement is temporary: the typical stay is between 30 and 60 days.

Because of State funding mandates, 10% of the space at the Center is reserved for post-dispositional placements (juveniles who have been found guilty of an offense and area committed to the Center to serve out their sentence or to await transfer to an adult facility when they reach the age of 18 years).

The Center has a full time administrator and staff, including teachers from the Williamsburg-James City County school system. The Center also provides emergency care of juveniles who need to be removed from their homes for their protection.

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Community Medical Facilities Riverside Doctors’ Hospital Williamsburg. Riverside Health System is facilitating the development of the mixed-use Quarterpath at Williamsburg in the southeast quadrant of the City, which will include residential, commercial, retail and health care uses. Over twenty acres of the 350-acre development are allocated for healthcare facilities and services. The initial health care component is Riverside Doctors’ Hospital of Williamsburg, a 40 bed acute care hospital, which is scheduled to open in Spring 2013. The Hospital is licensed for 40 private rooms – 33 medical/surgical rooms and 7 intensive care rooms. The full-service Emergency Department will have 12 private patient rooms. Surgical Services features two operating rooms, plus eight private patient preparation and recovery rooms dedicated to patients undergoing surgical procedures.

Other services provided by the Hospital include Radiology, Intensive Care, Cardio/ Pulmonary Services, Outpatient Diagnostic Services, Inpatient and Outpatient Surgery, Pharmacy and a Lifelong Health Center which will focus on simplifying the transition from inpatient acute care to other settings outside the hospital.

Sentara Williamsburg Medical Center. The Sentara Williamsburg Medical Center, located on 120 acres in York County on Mooretown Road near Route 199, was established as Williamsburg Community Hospital in Williamsburg on Mount Vernon Avenue in 1961. In 1996, the hospital affiliated with the Sentara Health System, a regional provider of tertiary and other hospital services, insurance products, Home Health, mental health and physician practices. The hospital offers a full complement of medical services for the greater Williamsburg area. The inpatient facility is licensed for 145 patients, and the hospital is equipped with five operating rooms providing services on an inpatient and outpatient basis.

Olde Towne Medical Center (OTMC) is classified as a rural safety net clinic servicing Williamsburg, James City County and York County. The Center's mission is the provision of preventative care and early intervention services to a vulnerable and disadvantaged population with services to children and their families a priority. This public-private non-profit 501(c)3 agency has provided cost effective, comprehensive health care (including obstetrical) to the uninsured, Medicaid, and Medicare population since 1993. Today, OTMC is a Rural Health Center operated as a family practice staffed by a Medical Director, Dental Director, Clinical Director, Physician and Dental Assistants. In addition, extensive volunteer community support includes 11 physicians, 16 dentists and 45 other non-medical individuals who provide on average over 650 volunteer hours per month.

On average, OTMC provides more than 1,350 medical and dental patient visits per month to uninsured, underinsured, Medicaid and Medicare residents. Services continue to expand to address growing community needs. Innovative programs such as Chronic Care which addresses issues with diabetes and asthma and the Medication Access Program which provides access to low cost medications have evolved to better serve OTMC patients. OTMC is also an integral part of the community Project Care initiative which brings together local physicians to coordinate care across multiple disciplines. Services include: chronic disease care, minor surgery, baby and well child care, routine women’s and men’s healthcare, routine physicals, screening and referrals for mental health and sexually transmitted diseases, immunizations and flu shots, and health education and information.

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5

10 11

6

3 12

8

7

2

1

9

4

Map 11-12: Community Service Facilities

Schools 1 2 3

Matthew Whaley Elementary Berkeley Middle School James Blair Central Office

Medical Facilities 4 5 6

Doctors’ Hospital of Williamsburg Sentara Williamsburg Regional Medical Center Olde Towne Medical Center

Other Facilities 7 8 9 10 11 12

2013 Williamsburg Comprehensive Plan

Williamsburg Municipal Center Williamsburg-James City Courthouse Cedar Grove Cemetery Waller Mill Reservoir Water Treatment Plant Ironbound Road Fire Station (proposed)

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EDUCATION Public Schools Williamsburg-James City County Public Schools serve the students of Williamsburg and James City County with 15 schools: nine elementary, three middle and three high schools. This joint school system was formed in 1953, and is headed by a Superintendent, who is responsible to a seven member school board comprised of two City residents and five County residents. City School Board members are appointed by City Council while County School Board members are elected.

The Williamsburg-James City County Public Schools adopted a new Strategic Plan in June, 2012. The Strategic Plan is summarized in its “Values, Vision and Mission.”

Core Values Individualism, Integrity, Innovation, Accountability and Collaboration Vision Pursuing excellence and championing the success of all students.

Mission WJCC provides each and every student with the knowledge, skills and values to be a lifelong learner, communicate, think critically, work and live productively, and contribute constructively to the lives of others. WJCC is committed to providing the variety of programs necessary to address the range of students’ interests and needs as they grow academically, socially and emotionally.

The five-year contract for the operation of the joint school system was last negotiated with James City County in 2012, and will be renegotiated in 2017. The City pays local operating and capital costs based on a three-year student count average with a 1.14 multiplier applied. The cost sharing for additional schools within the contract period will be negotiated between the City and County at that time.

The Division operates 15 schools: nine elementary schools, (Clara Byrd Baker, Rawls Byrd, D.J. Montague, Norge, Matthew Whaley, James River, Stonehouse, Matoaka and J. Blaine Blayton); three middle schools (Berkeley, Toano and Hornsby); and three high schools (Lafayette, Jamestown and Warhill). James Blair Middle School has been converted into the Central Office for the WJCC School Administration, but can be converted back to a Middle School when needed. Two schools and the administrative offices are located in the City:

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Matthew Whaley Elementary School. Built in 1930, Matthew Whaley Elementary School is located at 301 Scotland Street and serves most of the City's elementary students. The school was renovated in 1997 and has a design capacity of 513 students.

Berkeley Middle School. Berkeley Middle School, built in 1965, is located on twenty-three acres at the intersection of Ironbound Road and Strawberry Plains Road. The school was renovated and expanded in 1998-99, and has a design capacity of 884 students.

James Blair Central Office. This school, built in 1955, is located on twelve acres at the corner of Ironbound Road and Longhill Road. It was discontinued as a middle school in 2010 and has been converted to administrative offices for the Williamsburg James City County Schools.

Although City students attend most schools in the system, the majority of City students attend three schools: Matthew Whaley Elementary School on Scotland Street and Berkeley Middle School on Strawberry Plains Road, both of which are located in the City; and Lafayette High School on Longhill Road, located in James City County. Since the figures included in the 2006 Comprehensive Plan for the 2005-2006 school year, total enrollment has grown by 1,170 students (+11.9%), and the City enrollment has grown by 180 students (+22.8%). The City share of students in system has grown from 8% in 200506 to 8.8% in 2011-12, an increase of 10%. Table 11-3 below lists the 2011-12 enrollment in the various schools within the Williamsburg-James City County Public School System: TABLE 11-3 2011-12 School Enrollment Summary School Elementary Clara Byrd Baker Rawls Byrd D.J. Montague Norge Matthew Whaley James River Stonehouse Matoaka Blayton Elementary Total Middle Berkeley James Blair Toano Hornsby Middle Total High Lafayette Jamestown Warhill High Total Total Division

Williamsburg Enrollment

James City Enrollment

Total

92 45 2 18 324 2 0 8 4 495

16.0% 8.3% 0.5% 2.7% 67.5% 0.4% 0.0% 1.1% 0.7% 9.7%

482 499 435 646 156 487 663 720 532 4,620

84.0% 91.7% 99.5% 97.3% 32.5% 99.6% 100.0% 98.9% 99.3% 90.3%

221 0 1 4 226

23.4% 0.0% 0.1% 0.4% 8.7%

722 0 710 932 2,364

76.6% 0.0% 99.9% 99.6% 91.3%

943 0 711 936 2,590

191 4 53 248 969

18.4% 0.3% 4.8% 7.5% 8.8%

845 1,152 1,040 3,037 10,021

81.6% 99.7% 95.2% 92.5% 91.2%

1,036 1,156 1,093 3,285 10,990

574 544 437 664 480 489 663 728 536 5,115

Future growth in the public school system will be primarily to accommodate population growth in James City County. No new schools are proposed to be located within the City; however, a fourth middle school will need to be opened in 2017-18 time frame, and the preferred approach at this time is to return the James Blair site to use as a middle school.

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Williamsburg-James City County Public Schools prepared a five year enrollment projection in November 2011. The 2016-17 enrollment projection is 11,830, a 7.6% increase from the 2011-12 enrollment of 10,990. Figure 11-3 shows the five year enrollment forecast.

Figure 11-3

Source: WJCC Public Schools Five Year Enrollment Projections 2012-2016, November 2011

Private Schools Williamsburg has one private school, Walsingham Academy. Walsingham is a parochial school run by the Catholic Sisters of Mercy. Located on Jamestown Road, it operates a lower division consisting of a pre-school and grades K-7. There are 44 children in the pre-school program and 270 students in the lower grades. The upper division serves pupils in grades 8-12; there are 222 students in this division.

Thomas Nelson Community College Thomas Nelson Community College is a two-year institution of higher education established as a part of a statewide system of community colleges. It primarily serves the residents of the cities of Hampton, Newport News, Poquoson, and Williamsburg, and the counties of James City and York. The college operates under policies established by the State Board for Community Colleges and with the guidance of the Thomas Nelson Community College Board. The administration of the college is directly responsible to the chancellor of the Virginia Community College System. The college is financed primarily by state funds, supplemented by contributions from the participating localities and the federal government. The annual local contribution is based on the college’s capital improvements program.

The Hampton Campus of Thomas Nelson Community College opened in 1968. The Historic Triangle Campus, serving the greater Williamsburg area, opened in 2009, and is located on Opportunity Way in James City County. It includes a 120,000-square-foot, three-story facility that contains 25 classrooms, seven computer classrooms, five science laboratories, a Nursing laboratory and numerous offices. In 2012/13, 3,323 students took at least one course at the Historic Triangle Campus or at a site under its responsibility. These students enrolled in 31,096 credit hours, generating 1,037 FTE.

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Thomas Nelson Community College provides financially accessible, high quality, comprehensive educational programs and services to meet the educational needs of citizens of all ages and to support the economic development of the Commonwealth. To this end, the college offers: • associate’s degree programs to prepare individuals for careers as technical and paraprofessional workers; • associate’s degree programs to prepare individuals for transfer, as upper-division students, to baccalaureate degree programs at four-year institutions; • diploma and certificate programs to prepare individuals for careers as technicians and as skilled and semi-skilled workers; • developmental courses to prepare individuals for further instructional programs; • student development services to assist individuals with decisions regarding occupational, educational, and personal goals; • industrial training programs for new or expanding businesses, industries, and professions; • continuing education programs, including credit and non-credit courses, seminars and workshops for individuals who wish to continue or expand their learning experiences; and, • cultural and educational opportunities for the community.

College of William and Mary The College of William and Mary is discussed in Chapter 9 – Institutions.

COMMUNICATION Communication services are an increasingly important part of the public infrastructure, and are an important means for the City government to engage and share information with its citizens and businesses.

• Cable television service is provided within the City by Cox Communications through a franchise agreement. Channel 48 provides notices, televises City Council and Planning Commission meetings, features presentations on local government issues and occasional programming from the Colonial Williamsburg Foundation and the College of William & Mary.

• The City’s web site, www.williamsburgva.gov, provides City information, regional links, email links to City Council and City staff, and direct “e-government” services. Citizens can sign up for email notifications organized by area of interest. Anyone with internet connection can view City Council and Planning Commission meetings streamed live, and access archived video and audio playbacks. As it is often the first look at the City for prospective businesses and visitors, efforts are made to present a vibrant appearance with images that reflect a diverse, modern community with charm offering a unique character and high quality of life.

• The Williamsburg WiFi Zone, a free wireless internet services is available for visitors, residents and students in the Merchants Square area and Amtrak station.

• Transparency and openness are essential for effective communication. As an example, the City’s video system for recording meetings is integrated with the agendas, so at williamsburgva.gov/emeetings, it’s possible to search on topic and keyword and go directly to viewing the pertinent section. That link can be also be shared.

• The City has an active presence in social media to engage citizens of all ages, with a facebook page (Williamsburg.Virginia), Twitter account (@WilliamsburgGov) and YouTube channel (WilliamsburgGov). In addition to sharing general information, social media have been very useful in communicating information before, during and after emergencies.

• The City utilizes smartphone technology, as more than 95% of residents have cellphones.

City411 texting services and the City411 app enable residents to report non-emergency issues.

The app (for both iPhone and Android-based phones) also allows residents to include a photo and voice mail. The City411 texting service allows the City to send emergency texts, which is especially helpful during power outages.

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Chapter 12 Implementation The adoption of this Comprehensive Plan creates an urban design framework for future land use decisions. The implementation of the Plan is guided by land use regulations such as the zoning ordinance, subdivision ordinance and architectural review guidelines, and these need to be fully integrated into the Plan’s vision for the future. Quality urban design requires work by both the private sector (in defining specific market opportunities and project designs) and the public sector (in ensuring project land use compatibility within the context of the Comprehensive Plan).

ZONING ORDINANCE CHANGES The City's Zoning Ordinance was initially adopted in 1947, substantially revised in 1966 and 1991 (based on the recommendations of the 1989 Comprehensive Plan), and further revised to implement the recommendations of the 1998 and 2006 Comprehensive Plans. To implement the recommendations of the 2012 Plan, additional changes are necessary. This section outlines the specific changes that should be made following the adoption of the Plan.

Downtown Planning Area Recommendations for the Downtown Planning Area are detailed in Chapter 8 – Neighborhoods and Housing and Chapter 10 – Commercial and Economic Development. The following changes are needed to implement the Plan’s recommendations for this area; Phase 1 changes should be initiated following the Comprehensive Plan’s adoption, and Phase 2 changes can be initiated in conjunction with specific development or redevelopment projects.

Phase 1 – Following adoption of the Comprehensive Plan Zoning Text Changes 1. Revise the residential density in the B-1 Downtown Business District to allow 14 dwelling units per net acre by right, and increased density with a special use permit.

2. Revise the residential density in the LB-1 Limited Business Downtown District to allow 14 units per net acre by right, and increased density with a special use permit.

3. Revise the residential density in the RDT Downtown Residential District to allow 8 dwelling units/net acre by right and increased density with a special use permit.

4. Create a new definition for “Senior housing” to replace the existing definition for “Housing for the elderly and physically handicapped,” and add provisions to the LB-1 District to allow senior housing with reduced parking requirements with a special use permit.

5. Extend the Downtown Parking District south along South Henry Street from Ireland Street to South Boundary Street allow the development of new businesses in the LB-1 District without requiring additional off-street parking.

Zoning Map Changes 1. Change the LB-3 Limited Business Residential District on the west side of South Henry Street from Ireland Street to South Boundary Street to LB-1 Limited Business Downtown District.

2. Change the LB-3 Limited Business Residential District on the northeast corner of Newport Avenue and South Boundary Street to RM-2 Multifamily Dwelling District.

3. Change the RDT Downtown Residential District for the Blayton Building at 613 Scotland Street to LB-1 Limited Business Downtown District.

4. Change the B-1 District west of the Blayton Building at 613 Scotland Street to LB-1 Limited Business Downtown District so that the entire lot is in the same zoning category.

5. Change the LB-1 Limited Business Downtown District for 218 and 220 North Boundary Street to B-1 Downtown Business District.

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Phase 2 – In conjunction with development or redevelopment Zoning Map Changes 1. Change the RDT Downtown Residential District for the northwest corner of Richmond Road and Armistead Avenue (205, 215 and 227 Richmond Road, 196 Armistead Avenue and 616 Prince George Street) to B-1 Downtown Business District.

2. Change the RDT Downtown Residential District for 314 Prince George Street (Bruton Parish Rectory) to B-1 Downtown Business District.

3. Change the LB-1 Limited Business Downtown District for 514 and 528 Scotland Street to B-1 Downtown Business District.

Midtown Planning Area Recommendations for the Midtown Planning Area are detailed in Chapter 8 – Neighborhoods and Housing and Chapter 10 – Commercial and Economic Development. The following changes are needed to implement the Plan’s recommendations for this area.

Zoning Text Changes 1. Change the name of the B-3 General Business District to B-3 Urban Business District.

2. Revise the use regulations for the B-3 Urban Business District to eliminate uses such as automobile dealerships, plant nurseries, car washes, contractor’s establishments, drug or alcohol treatment center, miniature golf courses, mini-storage warehouses and newspaper printing and publishing facilities as either permitted or special use permit uses.

3. Revise the use regulations for the B-3 Urban Business District to allow multifamily dwellings with a special use permit use at a base density of 14 dwelling units per net acre, with increased density allowed with a special use permit, and with a maximum of 67% of the floor area on an individual lot allowed to be used for residential uses.

4. Revise the use regulations for the B-3 Urban Business District to allow student dwellings as a special use permit use with a permitted dwelling unit occupancy of two unrelated persons in an efficiency or one bedroom dwelling unit, and four unrelated persons in a two or more bedroom dwelling unit.

5. Revise the use regulations for the B-3 Urban Business District to allow senior housing with reduced parking requirements with a special use permit.

6. Extend the Midtown Parking District to include all of the B-3 Urban Business District.

7. Revise the PDU Planned Development Urban District to allow residential density to be determined as a part of the rezoning process.

8. Revise the use regulations for the LB-2 Limited Business Neighborhood District to allow townhouses as a special use permit use.

Zoning Map Changes 1. Change the RS-2 Single Family Dwelling District for 715-721 Lafayette Street to RS-3 Single Family Dwelling District Northeast Triangle Planning Area Recommendations for the Northeast Triangle Planning Area are detailed in Chapter 8 – Neighborhoods and Housing and Chapter 10 – Commercial and Economic Development. The following changes are needed to implement the Plan’s recommendations for this area.

Zoning Text Changes 1. Reduce the setback and buffer requirements for the north side of Second Street between Page Street and Parkway Drive so that redevelopment of this area is encouraged.

2. Revise the LB-3 Limited Business Residential District to address redevelopment of the Mixed Use areas between Penniman Road and the CSX Railroad, and for The Beeches at 1030 Capitol

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Landing Road. submitted.

Rezoning of these areas can be approved if an acceptable master plan is

Zoning Map Changes 1. Change the RS-2 Single Family Dwelling District for the Capitol Heights area and Pine Crest Subdivision to RS-3 Single Family Dwelling District.

2. Change the LB-4 Limited Business Corridor District at the rear of 921 and 925 Capitol Landing Road to B-2 Corridor Business District.

Commercial Corridors Recommendations for the Corridor Commercial areas are detailed in Chapter 10 – Commercial and Economic Development. The following changes are needed to implement the Plan’s recommendations for the Commercial Corridors: Zoning Text Changes 1. Revise the yard requirements for the B-2 District to require a 15 foot front yard between New Hope Road/Bypass Road and Ironbound Road.

2. Revise the use regulations for the B-2 Corridor Business District to eliminate multifamily with up to 50% of total floor area as a permitted use, and to allow up to 67% of the total floor area on an individual lot to be used for the following residential uses with a special use permit: apartments, condominiums and townhouses.

3. Revise the use regulations for the B-2 Corridor Business District to allow newspaper printing and publishing facilities with a special use permit.

Zoning Map Changes 1. Change the B-3 General Business District along Richmond Road between New Hope Road/Bypass Road and Ironbound Road to B-2 Corridor Business District.

2. Change the B-3 General Business District for the Virginia Gazette at 216 Ironbound Road to B-2 Corridor Business District.

Residential Areas The following changes are needed to bring zoning regulations into agreement with the Medium Density Single Family Residential land use category: Zoning Text Changes 1. Revise the cluster subdivision requirements for the RS-2 District to reduce the maximum density allowed for cluster subdivisions from 6 to 5 dwelling units/net acre with a special use permit.

2. Revise the density requirements for the PDR District to reduce the maximum density allowed when rezoning from an RS-2 District from 6 to 5 dwelling units/net acre.

Other Areas The following changes are needed to bring zoning regulations into agreement with the Future Land Use Map for properties that were exchanged in 1996 between the City and the College of William and Mary: Zoning Map Changes 1. Change the WM William and Mary District at 951 South Henry Street to RS-1 Single-Family Dwelling District. This property is owned by the City and is designated Conservation Area land use.

2. Change the RS-2 Single-Family Dwelling District at 190 Strawberry Plains Road (behind Berkeley Middle School) to WM William and Mary District. This property is owned by the College of William and Mary and is designated William and Mary land use.

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Architectural Review The City’s survey and assessment of architectural resources in the Architectural Preservation District, completed in 1992, should be updated to allow the City to better evaluate the continued proposals for new development and redevelopment in the Architectural Preservation District.

The Design Review Guidelines reflect the City’s goals for development and redevelopment as well as those for architectural preservation and design review. They were first adopted in 1993, and assist the Architectural Review Board in reaching fair and objective decisions when reviewing proposals in the AP and CP districts. Updated Guidelines which were adopted by City Council in 2006 after a one-year review process involving the Architectural Review Board and Planning Commission. Since it has been six years since the last review, the Design Review Guidelines should be updated as a part of the Comprehensive Plan implementation process.

Archaeological Review Archaeological Protection Districts were established in 1995. The Archaeological Protection Districts should be expanded based upon the recommendations contained in Chapter 5 – Community Character.

SUBDIVISION ORDINANCE The City's Subdivision Ordinance has not had a major revision since 1958. The sections relating to required improvements, subdivision design standards and plat and plan requirements could stand significant updates. The ordinance should incorporate greater detail on design standards for both public and private streets as well as conditions relating to when other public improvements (such as sidewalks and curb and gutter) would be required.

NEIGHBORHOODS The City continues to promote neighborhood preservation, since the character of the City in determined in large part by the quality of its residential neighborhoods. These programs include: • Enforcement of the City’s Property Maintenance Code on a consistent citywide basis • Enforcement of the City’s Rental Inspection Program • Pursuit of grants and CDBG programs to improve infrastructure and housing (Wales, Strawberry Plains, and Braxton Court are previous CDBG projects) • Creation of the Neighborhood Relations Committee in 2009 to strengthen relations between the William and Mary campus and the community • Creation of a Student Renters Guide to improve the quality of life and to help build and maintain effective working relationships for all neighborhood residents ECONOMIC DEVELOPMENT The stated goal for the City’s economy is to increase employment opportunities, income, business success, and City revenues by supporting and promoting the City’s tourism base and other development and redevelopment opportunities. Plans and policies for commercial and economic development issues are found throughout this Plan, but most specifically in Chapter 10 – Commercial and Economic Development. Some of the major implementation measures are: • Develop a comprehensive economic development strategy and promotion program which emphasizes the strengths of the City's economic development climate and identifies opportunities (land, labor, governance, education, etc.) for both new and existing businesses.

• Identify areas suitable for infill development and redevelopment, and develop strategies to encourage such development and redevelopment.

• Participate in efforts to advance regional tourism and economic development goals both within the Historic Triangle and the greater Hampton Road region.

• Cooperate with the Colonial Williamsburg Foundation, the College of William & Mary, and Riverside Healthcare Systems to coordinate their land use planning and economic development efforts with the City’s Comprehensive Plan.

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INTER-JURISDICTIONAL COOPERATION The concept of “regionalism” in planning is widely promoted within the City and surrounding jurisdictions. Regional approaches to schools, libraries, parks and recreation programs have long been successfully orchestrated and implemented by and between the three jurisdicitons. The development and implementation of the Regional Bikeway Plan and the establishment of the multi-jurisdictional WATA transit system are two of the most recent examples of this cooperative, regional approach. And for the first time, Williamsburg, James City County and York County have coordinated their individual 2012 Comprehensive Plan updates, hosting four Regional Community Forums and a joint Planning Commission work session as a part of the process. The comprehensive planning process should continue to be coordinated in future years between the three jurisdictions.

CAPITAL IMPROVEMENT PROGRAM Capital Improvements are new or expanded physical facilities for the community that are of relatively large size, generally exceeding $20,000, and are permanent in nature. Examples relating to the Comprehensive Plan recommendations are street improvements, public buildings and park improvements.

Capital Improvements are accounted for in the City budget in either the Sales Tax Fund for general improvements, or the Utility Capital Improvement Fund for water and sewer related projects.

Revenues of the Sales Tax Fund are derived from the 1% Sales Tax that is collected and distributed monthly by the state. The general retail sales tax rate for Virginia is 5%, of which 1% is returned to localities by law. Eligible food items are subject to a reduced sales tax rate of 2.5%, of which 1% is returned to localities. It has been the policy of the City Council for over 20 years to use this revenue to fund General Fund capital projects in the City. Examples of projects completed with the use of these funds are schools, municipal buildings, land acquisition, and street construction. Sales tax revenues generate approximately $4.0 million per year. The City intends to continue to fund the majority of its General Fund Capital Improvement Program (CIP) needs from the Sales Tax Fund on a pay as you go basis, and to pay for the bond debt service from the Sales Tax Fund for existing and future borrowing.

Capital Improvements for the water and sanitary sewer system are funded from the Utility Fund, not the General Fund.

The City's Five Year CIP is reviewed by both Planning Commission and City Council annually, and is adopted by City Council as a part of the City's annual budget. The Comprehensive Plan should be consulted annually in the development of the Capital Improvements Program. The following list of capital improvement projects are supported by the Comprehensive Plan: Transportation Streets • • • •

Ironbound Road widening (Longhill Connector to Richmond Road) Monticello Avenue Improvements (refined parkway concept) Prince George Street and Armistead Avenue reconstruction Richmond Road/Bypass Road intersection improvements

Bikeways • Major Bikeway Improvements, including: o Jamestown Road Bike Lanes (Ukrop Way to Landrum Drive) o Quarterpath Road Multi-Use Path o Quarterpath Road Connector Multi-Use Path (Pocahontas Street to Quarterpath Road) o Capitol Landing Road Bike Lanes (Colonial Parkway to Merrimac Trail) o Parkway Drive Bike Lanes (Capitol Landing Road to Penniman Road) o Improved bicycle parking facilities in the downtown area

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Sidewalks • Major Sidewalk Improvements, including: o Richmond Road (Waltz Farm Drive to Patriot Lane) o Governor Berkeley Road (Richmond Road to Longhill Road) o Ironbound Road (Longhill Road to Middle Street) o Ironbound Road (Monticello Avenue to Berkeley Middle School) o Lafayette Street and side streets (Arts and Cultural District) o Lafayette Street (Harrison Avenue to Wythe Street) o Harrison Avenue (Lafayette Street connection) o Scotland Street (Prince George Street to King & Queen Apartments) o Prince George Street (South Boundary Street to Scotland Street) o Jamestown Road (at Phi Beta Kappa Hall) o South Henry Street (College Landing Park to The Oaks) o Bypass Road (Route 132 to Parkway Drive) o Parkway Drive (Route 132 to Wyndham West) o Merrimac Trail (Capitol Landing Road to City Line) o Penniman Road (Page Street to La Tolteca) o York Street (Page Street to Pocahontas Street) o Quarterpath Road (York Street to Village at Quarterpath) Beautification and Underground Wiring Beautification • Streetscape improvements (street lights, trash cans, bike racks, benches, signage, landscaping).

Underground Wiring • Page Street (Penniman Road to Monumental Avenue) • Quarterpath Road (Redoubt #2 to Route 199) • South Henry Street (Newport Avenue to Port Anne) • Ironbound Road (Richmond Road to Longhill Connector – with Ironbound Road improvements) • York Street (Quarterpath Road to Corporate Limits) • Second Street (Page Street to Corporate Limits) • Capitol Landing Road (Colonial Parkway to Merrimac Trail – focus on removing cross street service lines) • Richmond Road (Va. Power Easement to West City Limits) Stormwater Management • Update of 1996 Stormwater Master Plan • Storm drainage system improvements to meet new State requirements Public Buildings • Stryker Center (Stryker Building replacement) • Police Station (lower level expansion) • Transportation Center improvements • Ironbound Road Fire Station (when necessary) Parks, Recreation and Open Space Passive Parks • College Creek Parks o Papermill Creek Park – design and construction o College Creek Nature Area – acquisition o College Creek Conservation Area – pedestrian connection to College Landing Park Chapter 12 – Implementation

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•

Capitol Landing Park – acquisition, design and construction

Active Parks • Kiwanis Park Master Plan Improvements o Development of fourth lighted ball field and multi-use paths Utility Improvements • Watershed protection and water quality at Waller Mill Reservoir (property purchase, forestry management, security improvements) • Water Treatment Improvements • Water System improvements • Sewer System Rehab (Sanitary Sewer Overflow Program) • Sanitary Sewer Pump Station Reliability/Improvements

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Appendix A1 Past Comprehensive Plans The City adopted its first Comprehensive Plan in 1953, followed by the plans of 1968, 1981, 1989, 1998 and 2006. This chapter reviews the major findings and recommendations of these six Plans.

1953 Comprehensive Plan The 1953 Comprehensive Plan was prepared by Harland Bartholomew and Associates, and followed the adoption of the City’s original Zoning Ordinance in 1947. Williamsburg in 1953 had 1,185 dwelling units, a net population of 3,327 persons (not counting approximately 2,000 students at the College), average family size of 2.8 persons, 24% African American population. The 1980 population was projected to be 5,000 persons.

Continued increases in the number of visitors to Colonial Williamsburg were anticipated, as was the need for the provision of increased accommodations for visitors. Also foreseen was a greater volume of retail trade with consequent increased traffic volumes. The College of William & Mary, Eastern State Hospital, and adjacent military establishments were also counted as important contributors to the local economy.

The Plan recommended that these enlarged facilities be arranged so that every possible protection is afforded to the Restored Area. Future industrial development was discouraged, “so that the character of the City will not be disturbed and the major elements of the economy will be protected.”

Substandard housing was analyzed in much detail, and the 1953 Plan recommended the creation of a Housing Authority, the use of urban renewal funds in the downtown area, and the adoption of a minimum housing ordinance. All of these recommendations were subsequently implemented by the City.

The Plan recommended several future highway improvements that were eventually completed: Rt. 132, described as a “freeway type approach highway from the north,” completion of the Colonial Parkway to Jamestown, extension of Lafayette Street to both Richmond Road and York Street, and the extension of Newport Avenue from South England to South Henry Street. A recommendation to extend Francis Street to Jamestown Road was never implemented.

A major recommendation for education was the consolidation of the Williamsburg and James City County public schools. This was approved in 1953, and resulted in the construction of James Blair High School, the conversion of Matthew Whaley to an elementary school, and the enlargement of Bruton Heights School for a African American elementary and high school.

A 58 acre park on Waller Mill Road adjacent to the Waller Mill Reservoir was recommended for park development, and it was noted that “it is not proposed to open the Williamsburg reservoir for boating or fishing as the difficulties of controlling such activities would be very great.” The present day Waller Mill Park, 2,000 acres surrounding the Reservoir, has boating and fishing as two of its most popular activities.

A small boat harbor was proposed on Queens Creek at Queen Mary Port, and this park (without a boat harbor) is still proposed as Capitol Landing Park.

1968 Comprehensive Plan The City’s second Comprehensive Plan was adopted in 1968, and was again prepared for the City by Harland Bartholomew and Associates. The Williamsburg area in 1968 had a population of 13,300 (this included the area within about three miles of City line, but excluding college students and Eastern State Hospital patients), compared to 7,150 in 1950. Multifamily development and tourist homes were found to have clustered in the old parts of the City and in the vicinity of the College, with 7.5% of the dwelling units in the planning area being apartments. The 1985 population for the Williamsburg area was estimated to be 35,000 persons.

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The 1968 Plan noted that the 1953 Plan did not fully anticipate the increase in tourism and the enormous popularity of Williamsburg as a regional attraction, and missed the character and timing of much residential growth, such as James and York Terrace and Queens Lake. Also missed by the 1953 Plan was the development of the Interstate Highway System, the development of Jamestown Festival (now Jamestown Settlement), and the removal of Eastern State Hospital from the center of Williamsburg.

The 1968 Plan recommended the expansion of visitor facilities to accommodate the expected growth in tourism (1,500,000 visitors a year projected for 1985), and noted that the growth in future purchasing power will encourage an extensive expansion of retail shopping facilities of high character. Several expansions of commercial areas were described: major shopping centers proposed to the east (James York Plaza) and to the west (the expansion of Williamsburg Shopping Center and Monticello Shopping Center), additional tourist facilities along Capitol Landing Road, and a new tourist area along Bypass Road near Richmond Road. The Plan observed that manufacturing activity was unlikely to expand except at the expense of the colonial atmosphere so vital to the overall economic health of Williamsburg. It concluded that “Williamsburg simply cannot permit its environs to develop as a great mass of motels, curio shops, restaurants, and general tourist ballyhoo which tends to surround anything which regularly attracts large numbers of people. The distinctive character of Williamsburg must be maintained at all costs. Visitor facilities must be restricted to appropriate areas, and when these are filled up, additional accommodations must be built elsewhere on the Peninsula.”

A large increase in population over the next 20 years was predicted, and the 1968 Plan suggested the provision of appropriate locations for all types of residences, including apartments of “high character.”

The Plan discouraged the random scattering of apartments in future single-family areas, and suggested locations near main academic, employment and recreation centers, with access to major thoroughfares.

An extensive network of future highway improvements was included in the 1968 Comprehensive Plan, exceeding those listed in any of the City’s future Comprehensive Plans. These improvements included the Williamsburg Circumferential (Rt. 199), which joined I-64 along Airport Road; an Intermediate Circumferential which extended along the west side of Lake Matoaka to Monticello Avenue (the only section that was built is Compton Drive), and then to the Ironbound/Richmond Road area and across to Hubbard Lane; the extension of Second Street to Brooks Street; the extension of Monticello Avenue to Ironbound Road; and the extension of Mt. Vernon Avenue to Ironbound Road (now the Treyburn Drive extension project).

An extensive list of downtown improvements was proposed, including the construction of numerous parking lots ringing the Historic Area. The most extensive parking improvement was to demolish Matthew Whaley School for a major parking lot between the Governor’s Palace and North Henry Street, adjoining a special purpose park south of the Matthew Whaley School site, to be offered primarily to tourists as “an ideal place for a picnic lunch, and a much-needed gesture of municipal hospitality.” A new Municipal Center was proposed, including quarters for all City departments, additional public meeting space, storage space for equipment, and adequate off-street parking.

Recommendations for future educational needs did not anticipate the spreading out of growth in James City County, with all proposed school locations in close proximity to the City.

1981 Comprehensive Plan The 1981 Comprehensive Plan was the third and last plan prepared for the City by Harland Bartholomew and Associates. Williamsburg in 1980 had a population of 9,870, growing from 9,069 in 1970. The population growth, however, was less than had been predicted. The 2000 population for the Williamsburg area was estimated to be 39,400 persons, with Williamsburg alone expected to grow to 11,200 persons.

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As was the case with the 1953 Plan, the 1968 Plan did not foresee some of the major developments between 1968 and 1981, including the establishment of the Anheuser-Busch Brewery, Busch Gardens, and the Kingsmill development.

The Plan observed that Colonial Williamsburg attendance will not grow as rapidly as it has in the past unless a major effort is mounted to increase visitor capacity, and pointed out that attendance growth was less than the 5% per year that had been forecast. Directly related to the attendance was the number of motel rooms, which grew 40% since 1973 (3,703 in the City, 1,476 in James City County and 284 in York County). The occupancy rate was 63.5%. The Plan stated that the future growth of City revenues will depend on sales to area residents, but noted that an increasing proportion of this trade is shifting out of the City. It was suggested that in order to address this issue, the City should develop a major shopping center to capture the growth predicted for the trade area

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Major multifamily construction had occurred between the last two Plans, with 75% of new City dwelling units built between 1964 and 1973 being multi-family, and five of these projects were located along Merrimac Trail. “Medium Density Residential” areas were deemed generally appropriate for apartments of up to three stories, with a density of 10 to 17 dwelling units per acre. The Plan noted that it was important to maintain the small scale of all residential areas regardless of development type or density.

Major highway improvements recommended by the 1981 Comprehensive Plan included the extension of Second Street from Page Street to Bypass Road, with a connection to Monticello Avenue by a bridge over the railroad tracks. A connection was planned between Parkway Drive and Merrimac Trail, and Boundary Street was planned to be extended to the south to connect with South Henry Street near Mimosa Drive.

As was the case with the two previous Comprehensive Plans, much emphasis was placed on future improvements in the downtown area.

The Library Auditorium was under construction, and recommendations for major improvements included relocating the City Shop from Capitol Landing Road to its present location, relocating the large truck and bulk mail post office operations outside the central area, and consideration of a parking garage as commercial expansion takes place in Merchants Square.

Major progress was made in improving substandard housing. Fulfilling a recommendation made in the 1953 and 1968 plans, the Williamsburg Redevelopment and Housing Authority was established in 1969.

This resulted in the development and implementation of the Armistead Avenue Urban Renewal Plan, which resulted in the construction of the Crispus Attucks subdivision at the corner of Lafayette Street and Armistead Avenue, a site for a new fire station, and redevelopment of the Triangle Block.

Concerns were expressed about the impact of college students on the downtown residential areas, with the 1981 Plan recommending that “[t]he City … initiate a special study of the residentially zoned areas adjacent to the College to determine the extent of the impact of students as evidenced by conversion of single-family housing to apartments and the number of student apartments in these areas. A plan should be developed from these studies to minimize the impact of college related activities such as on street parking.”

Many recommendations were made for public park improvements, including College Landing Park and the expansion of Kiwanis, Quarterpath and Waller Mill Parks.

1989 Comprehensive Plan The City’s fourth Comprehensive Plan was prepared for the City by the Cox Company. This Plan included analysis and recommendations for the four square miles annexed from James City County in 1984, the first expansion of the City’s boundaries since 1967. Williamsburg had an estimated population of 11,300 in 1985, compared to 9,870 in 1980. The population projections for 2000 ranged from a low of 12,620 to a high of 14,423 – the actual 2000 Census population was 11,998.

The 1989 Plan developed the concept of “net developable acreage,” where the physical constraints on the land were considered in determining development suitability. This concept was applied to ten designated Planning Areas, representing 40 percent of the City’s land and the areas most suitable for development and redevelopment.

Increased emphasis on the natural environment, and great care was taken to identify sensitive environmental areas, where environmental preservation and open space conservation were strongly recommended. This helped the City in its implementation of the Chesapeake Bay Protection Act by identifying areas that became Resource Protection Areas in the City’s Zoning Ordinance.

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College Creek Planning Area

Preservation of historic and architectural resources was identified as a major planning goal, which led to a complete restructuring of the City’s architectural review process, the first major change since architectural review began in 1958. This led to the creation of an architectural preservation district to protect and enhance the character of the Colonial Williamsburg historic area and the surrounding older neighborhoods, supplemented by corridor protection districts designed to improve the major entrance corridors into the City.

The 1989 Plan recommended the complete revision of the City’s zoning ordinance, strengthening the linkages between the Plan and the zoning, site plan and subdivision review processes. This was the first major change since 1966, and the new zoning ordinance was adopted in 1991.

Major transportation improvements recommended by the Plan included the extension of Monticello Avenue across the CSX railroad to connect to Bypass Road in York County (rejected by City Council in 1992), the Parkway Drive/Merrimac Trail connection (deleted in the 1998 Plan), the completion of Route 199, and the extension of Monticello Avenue west to Route 199.

Plans for the downtown area included incremental improvements to the Municipal Center area, which included relocating the Council Chambers to the Stryker Building and renovating the original Municipal Building located at 400 North Boundary Street. Expansion of the Merchants Square commercial area was proposed, and for the first time a mixed-use area was recommended adjacent to Merchants Square between Scotland Street and Lafayette Street. This was the first step in the redevelopment of the City Square area, which took place 10 years after this recommendation.

The emphasis of the 1989 Plan shifted from improvements to substandard housing to the creation of new low and moderate income housing. Sites for new housing were identified on Ironbound Road and for the

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first time on Strawberry Plains Road. The latter site was proposed for redevelopment by the Williamsburg Redevelopment and Housing Authority, which began the project in 2003.

The plans for new parkland were primarily for passive parks, with a major recommendation for acquisition of the College Creek Nature Area on South Henry Street. The establishment of a park at Capitol Landing, originally recommended in 1953, was again listed as a future goal. The major improvement to the active parks was the recommendation for a gymnasium at Quarterpath Park.

1998 Comprehensive Plan The City’s fifth Comprehensive Plan was again prepared for the City by the Cox Company.

Williamsburg had an estimated population of 12,100 in 1995, compared with the 1990 Census figure of 11,409. The population projection for 2020 was 15,020, which represented a residential build-out of the City based on the land use plan and zoning regulations. The projected population for 2010 was 13,813, slightly below the 2010 Census figure of 14,068.

The 1998 Plan continued the concept of “net developable acreage,” reflected in nine designated Planning Areas. The vacant areas with the most development continued to be in the Richmond Road Planning Area (the High Street property), and in the Colonial Williamsburg Foundation Planning Area (the Riverside property), and these sites are still under development in 2012.

Colonial Williamsburg Foundation Planning Area

A new chapter on urban design was added, giving increased emphasis to maintaining the quality of new development in the City, particularly along the entrance corridors in the Architectural Preservation area in the Center City. The guidelines in the Plan support the detailed guidelines that have been developed and refined by the Architectural Review Board and Planning Department staff.

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Merchants Square expansion was still supported, and a new parking facility (possibly a parking garage) was recommended north of Prince George Street (the Prince George Parking Garage opened in 2004).

This area was originally recommended for public parking in 1953. The Plan recognized the progress that had been made in the City Square area (Library expansion, Parking Terrace, Community Building), and supported continued new development and redevelopment in the mixed use area connecting City Square with Merchants Square.

Major transportation improvements included the improvement of Richmond Road between Brooks Street and New Hope Road, and the construction of Treyburn Drive between Monticello Avenue and Ironbound Road. For the first time, specific proposals were included in the Plan for bicycle and pedestrian improvements, and the continued upgrading of the Transportation Center into a multi-modal transportation hub was supported.

A separate Housing chapter was included in the 1998 Plan. The Plan proposed limiting the expansion of high density multifamily housing, since the City had a disproportionate share of this type of housing, and recommended that single family housing should make up at least 50 percent of the City’s housing stock.

Certain residential areas were recognized as “threatened” by several critical issues: the gradual influx of college students, increased through traffic, and substandard or deteriorating housing. A coordinated approach to these issues was recommended. Three areas were specifically recommended for housing rehabilitation and provision of new low and moderate income housing: the Wales subdivision on Ironbound Road, the Strawberry Plains area, and the Roses Trailer Court area on Quarterpath Road. A Community Development Block Grant rehabilitation program was completed for Wales, and a low and moderate income 56 lot subdivision was developed by the Williamsburg Redevelopment and Housing Authority on Strawberry Plains Road in 2000. The Roses Trailer Court area was redeveloped as The Village at Quarterpath with 119 mostly townhouse dwelling units, with 12 units proffered as affordable housing.

Economic development also received a chapter of its own in the 1998 Plan. This chapter emphasized the need for an increased focus on redevelopment, since the City’s supply of vacant land is decreasing each year. The basic premise of this chapter, and of the Plan, is to support and promote the existing tourism base while exploring other economic development opportunities for expanded employment and revenue base throughout the City. The Plan also supported the establishment of an office for economic development as an administrative function of the City government.

Continued emphasis was placed on the development and maintenance of passive parks. Included in the list of recommendations was Capitol Landing, the College Creek Nature Area, the College Creek Conservation Area (acquired in 1996), and Papermill Creek Park (acquired in 1998). For active parks, expansion of the Quarterpath Gymnasium and a new Operations Building at Waller Mill Park (as well as expanded hours) were recommended.

2006 Comprehensive Plan The City’s sixth Comprehensive Plan was prepared for the first time by the Planning Department, with assistance from the Hampton Roads Planning District Commission on population and economy.

Williamsburg had an estimated population of 13,411 in 2006, compared with the 2000 Census figure of 11,998. The population projection for 2030 was 19,000, which represented a residential build-out of the City based on the land use plan and zoning regulations. The projected population for 2010 was 16,600, substantially higher than the 2010 Census figure of 14,068. Population growth was affected by the Great Recession of 2007-09, which delayed the development of major projects like High Street and Quarterpath at Williamsburg (Riverside).

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The 2006 Plan refined the Planning Area concept that was used in the past two Plans, and created Focus Areas for Jamestown Road and Richmond Road adjacent to the College of William and Mary, and also for the Center City area. These Focus Areas were studied in great detail and used as a basis for area recommendations.

SINGLE FAMILY

The Housing chapter that debuted in the 1998 Plan was expanded to “Neighborhoods and Housing,” and a seven-point Housing Plan was developed. Major housing issues that were recognized included protecting the City’s single-family neighborhoods, developing an adequate solution to college student housing, encouraging the development of low and moderate income owner-occupied housing in appropriate locations, and encouraging a greater residential presence in the Center City area. The last issue generated much controversy in the implementation of the Plan – the recommendation to increase residential density in the Center City area to 22 dwelling units/net acre with a special use permit. This would have created a potential for 150 new dwelling units in the downtown area, adding to the existing 346 dwelling units.

However, the needed zoning ordinance amendments to implement this change were not approved, and the maximum residential density in the City remains at 14 dwelling units/net acre even though the Plan still recommends 22.

The Commercial and Economic Development chapter listed a nine-point Commercial and Economic Development Plan. These points ranged from maintaining Merchants Square as the City’s premier high quality commercial area to supporting development of High Street and Quarterpath at Williamsburg (Riverside) as the City’s primary mixed-use developments. One of the successes of the 2006 Plan, which built on recommendations in previous plans, was to encourage businesses to locate adjacent to the College of William and Mary. This recommendation resulted in the expansion of the Downtown Parking District, which allowed commercial redevelopment with minimal or no off-street parking. This allowed approval Appendix A1 – Past Comprehensive Plans

2013 Williamsburg Comprehensive Plan A1-8

of plans for Prince George Commons on Scotland Street (Mama Mias redevelopment) and the Cooke Building (Hermes redevelopment). This policy also supported the construction of the Tribe Square project, which required the development of a new zoning district based on the recommendations of the Plan. The recommendation for a unified mixed-use area on Richmond Road between Brooks Street and the Williamsburg Shopping Center led to the development of the LB-2 zoning district, which became the core area for the Arts District that was established by City Council in 2011.

The master plan for the City’s Municipal Center continued to evolve, with the Comprehensive Plan recommending a new Emergency Operations Center and Fire Administration offices (completed in 2011) and a new or renovated City Council Chamber and Stryker Building. Implementation of the latter recommendation was changed to include a major expansion and renovation of the Municipal Building, which was completed in 2011.

Emphasis on the natural environment and identification and preservation of sensitive environmental areas continued to be an important part of the Plan, and serves as the basis for the City’s implementation of the Chesapeake Bay Protection Act. The City’s program was again found in compliance with the Act in 2011, and the Virginia Department of Conservation and Recreation stated that the City’s two successful compliance evaluations “… are a reflection of the City’s commitment to high quality performance and to the full implementation of the Chesapeake Bay Preservation Act requirements.”

Several improvements to passive and active parks were noted. The major passive park improvement was the establishment of Redoubt Park on Quarterpath Road, which provides interpretation about the Battle of Williamsburg and preserves two Civil War redoubts. The major active park improvement was the reconfiguration of Kiwanis Park to create three new lighted ball fields and a concession/rest room building. The plan to establish Capitol Landing Park on Capitol Landing Road at Queens Creek remained a primary recommendation, which dates back to the original 1953 Comprehensive Plan.

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Appendix A2 Comprehensive Transportation Study

James City County/Williamsburg/York County

Comprehensive Transportation Study

TPO

TRANSPORTATION PLANNING ORGANIZATION

March 2012

T12-03

HAMPTON ROADS TRANSPORTATION PLANNING ORGANIZATION VOTING MEMBERS Dwight L. Farmer Executive Director/Secretary CHESAPEAKE Alan P. Krasnoff

GLOUCESTER COUNTY Christopher A. Hutson

POQUOSON W. Eugene Hunt, Jr.

PORTSMOUTH Kenneth I. Wright

HAMPTON Molly J. Ward

SUFFOLK Linda T. Johnson

JAMES CITY COUNTY Mary K. Jones

WILLIAMSBURG Clyde A. Haulman

ISLE OF WIGHT COUNTY Delores Dee-Dee Darden NEWPORT NEWS McKinley Price

NORFOLK Paul D. Fraim

VIRGINIA BEACH William D. Sessoms, Jr.

YORK COUNTY Thomas G. Shepperd, Jr.

MEMBERS OF THE VIRGINIA SENATE The Honorable John C. Miller The Honorable Yvonne B. Miller

MEMBERS OF THE VIRGINIA HOUSE OF DELEGATES The Honorable John A. Cosgrove Vacant

TRANSPORTATION DISTRICT COMMISSION OF HAMPTON ROADS Philip A. Shucet, President/Chief Executive Officer WILLIAMSBURG AREA TRANSIT AUTHORITY Anthony Conyers, Jr., Acting Executive Director

VIRGINIA DEPARTMENT OF TRANSPORTATION Dennis W. Heuer, District Administrator – Hampton Roads District

VIRGINIA DEPARTMENT OF RAIL AND PUBLIC TRANSPORTATION Thelma Drake, Director VIRGINIA PORT AUTHORITY Jerry A. Bridges, Executive Director

HAMPTON ROADS TRANSPORTATION PLANNING ORGANIZATION NON-VOTING MEMBERS CHESAPEAKE William E. Harrell

JAMES CITY COUNTY Robert C. Middaugh

PORTSMOUTH Kenneth L. Chandler

HAMPTON

NORFOLK

VIRGINIA BEACH

GLOUCESTER COUNTY Brenda G. Garton Mary Bunting

ISLE OF WIGHT COUNTY W. Douglas Caskey

NEWPORT NEWS Neil A. Morgan

Marcus Jones

POQUOSON J. Randall Wheeler

FEDERAL HIGHWAY ADMINISTRATION Irene Rico, Division Administrator – Virginia Division

SUFFOLK Selena Cuffee-Glenn

James K. Spore

WILLIAMSBURG Jackson C. Tuttle

YORK COUNTY James O. McReynolds

FEDERAL TRANSIT ADMINISTRATION Brigid Hynes-Cherin, Regional Administrator, Region 3

FEDERAL AVIATION ADMINISTRATION Jeffrey W. Breeden, Airport Planner, Washington Airports District Office VIRGINIA DEPARTMENT OF AVIATION Randall P. Burdette, Director PENINSULA AIRPORT COMMISSION Ken Spirito, Executive Director NORFOLK AIRPORT AUTHORITY Wayne E. Shank, Executive Director

CHAIR – CITIZEN TRANSPORTATION ADVISORY COMMITTEE William W. Harrison, Jr.

CHAIR – FREIGHT TRANSPORTATION ADVISORY COMMITTEE William Bell, Co-Chair (Nonvoting Board Member) Vacant, Co-Chair (Voting Board Member)

MILITARY LIAISONS Mary Jackson, Captain, U.S. Navy Mark S. Ogle, Captain, U.S. Coast Guard Korvin D. Auch, Colonel, Langley Thomas R. Wetherington, Colonel, Langley

HRTPO PROJECT STAFF

Camelia Ravanbakht, Ph.D. Robert B. Case, P.E. Keith Nichols, P.E. Stephanie Shealey Michael Long Kathlene Grauberger Christopher Vaigneur

Deputy Executive Director, HRTPO Principal Transportation Engineer Senior Transportation Engineer Transportation Engineer General Service Manager Administrative Assistant II Reprographics Coordinator

COMPREHENSIVE TRANSPORTATION STUDY JAMES CITY COUNTY/WILLIAMSBURG/YORK COUNTY

PREPARED BY:

MARCH 2012 T12-03

Report Documentation TITLE:

James City County/Williamsburg/York Comprehensive Transportation Study

County

REPORT DATE: March 2012 GRANT/SPONSORING AGENCY:

AUTHORS:

Keith M. Nichols, PE Stephanie L. Shealey

FHWA/VDOT/LOCAL FUNDS ORGANIZATION TELEPHONE

NAME,

ADDRESS,

&

Keith M. Nichols, PE

Hampton Roads Transportation Organization 723 Woodlake Drive Chesapeake, Virginia 23320 757.420.8300 http://www.hrtpo.org

ABSTRACT

ACKNOWLEDGMENTS

The purpose of this report is to assist James City County, Williamsburg, and York County officials with the transportation sections of their Comprehensive Plans. A Comprehensive Plan is a policy document that provides direction for policy makers to guide growth and development by providing the long-range vision, goals, and strategies of their communities. Because of the link between these communities, James City County, Williamsburg, and York County officials are coordinating the timing of their Comprehensive Plan updates, with all three jurisdictions updating their Comprehensive Plans in 2012.

This report was prepared by the Hampton Roads Transportation Planning Organization (HRTPO) in cooperation with the U.S. Department of Transportation (USDOT), the Federal Highway Administration (FHWA), the Virginia Department of Transportation (VDOT), Williamsburg Area Transit Authority (WATA), James City County, York County, and the City of Williamsburg. The contents of this report reflect the views of the HRTPO. The HRTPO staff is responsible for the facts and accuracy of the data presented herein.

The contents do not necessarily reflect the official views or policies of the FHWA or VDOT. This report does not constitute a standard, specification, or regulation. FHWA or VDOT acceptance of this planning study does not constitute endorsement/approval of the need for any recommended improvements nor does is constitute the approval of their location and design or a commitment to fund any such improvements.

Additional project level environmental impact assessments and/or studies of alternative may be necessary.

PROJECT MANAGER:

This report is broken down into sections for each of the following transportation modes - Highway, Public Transportation, Intercity Passenger Rail, Bicycle and Pedestrian, and Air Travel. Both the current and future conditions are examined for each of these transportation modes.

JamesCity/Williamsburg/York City/Williamsburg/York Transportation Study James Transportation Study

Planning

Table of Contents

TABLE OF CONTENTS Introduction ........................................................................................................................................................................................ 1 Current Conditions ............................................................................................................................................................................ 2 Highway........................................................................................................................................................................................... 2 Roadway Inventory .................................................................................................................................................................... 2 Recent Roadway Improvements ............................................................................................................................................... 4 Traffic Data .................................................................................................................................................................................. 4 Roadway Congestion ................................................................................................................................................................. 9 Public Transportation ................................................................................................................................................................... 12 Transit ......................................................................................................................................................................................... 12 Park and Ride ............................................................................................................................................................................ 14 Intercity Passenger Rail ................................................................................................................................................................ 15 Bicycle and Pedestrian Facilities ................................................................................................................................................. 16 Air Travel ....................................................................................................................................................................................... 19 Newport News-Williamsburg International Airport ........................................................................................................... 19 Norfolk and Richmond International Airports ..................................................................................................................... 20 Williamsburg Jamestown Airport .......................................................................................................................................... 20 Future Conditions ............................................................................................................................................................................ 21 Highway......................................................................................................................................................................................... 21 Programmed Roadway Projects.............................................................................................................................................. 21 Long Range Planning ............................................................................................................................................................... 25 2034 LRTP Projects ................................................................................................................................................................ 25 2034 Traffic Characteristics .................................................................................................................................................. 25 Unfunded Projects ................................................................................................................................................................ 31 Public Transportation ................................................................................................................................................................... 37 Funding ...................................................................................................................................................................................... 37 Transit Development Plan ....................................................................................................................................................... 38 Service Improvements .......................................................................................................................................................... 39 Capital Improvements .......................................................................................................................................................... 43 Transit Vision Plan.................................................................................................................................................................... 45 Corridor 11: Downtown Newport News to Williamsburg ............................................................................................ 45 Corridor 14: Oyster Point to Gloucester............................................................................................................................ 45 Corridor 15a: Oyster Point to Poquoson ........................................................................................................................... 45 Corridor A: Downtown Newport News to Toano .......................................................................................................... 46 Intercity Passenger Rail ................................................................................................................................................................ 47 Bicycle and Pedestrian Facilities ................................................................................................................................................. 48 SYIP/TIP Bicycle and Pedestrian Projects .............................................................................................................................. 48 Bikeways .................................................................................................................................................................................... 48 Sidewalks ................................................................................................................................................................................... 52 Maintenance .............................................................................................................................................................................. 53 Air Travel ....................................................................................................................................................................................... 55 Newport News-Williamsburg International Airport ........................................................................................................... 55 Norfolk International Airport ................................................................................................................................................. 55 Richmond International Airport ............................................................................................................................................. 55 Williamsburg Jamestown Airport .......................................................................................................................................... 56 Public Review and Comments ...................................................................................................................................................... 57 Appendices ....................................................................................................................................................................................... 57

JamesCity/Williamsburg/York City/Williamsburg/York Transportation Study James Transportation Study

Table of Contents List of Maps Map 1 - James City County, Williamsburg, and York County ....................................................................................... 1 Map 2 - VDOT Roadway Functional Classification ......................................................................................................... 3 Map 3 - 2010 PM Peak Hour Congestion Levels ............................................................................................................ 10 Map 4 - Park and Ride Lots in the Study Area ............................................................................................................... 14 Map 5 - Existing Bikeways................................................................................................................................................. 17 Map 6 - SYIP/TIP Roadway Projects ................................................................................................................................ 24 Map 7 - 2034 PM Peak Hour Congestion Levels ............................................................................................................ 27 Map 8 - Projects/Studies Included in the 2034 LRTP and Candidate Projects Not Funded in the 2034 LRTP....... 31 Map 9 - SYIP/TIP Bike/Pedestrian Projects...................................................................................................................... 49 Map 10 - Existing and Proposed Bikeways ..................................................................................................................... 54 List of Tables Table 1 - Miles of Roadway by VDOT Functional Classification (2009)........................................................................ 2 Table 2 - Roadway Improvements Since 2001................................................................................................................... 4 Table 3 - Weekday and Annual Average Daily Traffic Volumes, 2001 to 2010 ............................................................ 5 Table 4 - Daily Vehicle-Miles of Travel, 2001 to 2010....................................................................................................... 9 Table 5 - 2010 Congested Roadway Segments ................................................................................................................ 11 Table 6 - Bikeway Projects Completed Since 2001 .......................................................................................................... 18 Table 7 - Roadway Projects and Studies Included in the SYIP or TIP ......................................................................... 23 Table 8 - Current and 2034 Weekday Traffic Volumes and PM Peak Hour Levels-of-Service ................................ 28 Table 9 - Segments of George Washington Memorial Highway in York County Analyzed in the 2034 LRTP Project Prioritization Process ................................................................................................................ 32 Table 10 - Bikeway and Sidewalk Projects Included in the SYIP or TIP ..................................................................... 48 List of Figures Figure 1 - Roadway Functional Class Definition .............................................................................................................. 2 Figure 2 - Level of Service Definitions ............................................................................................................................... 9 Figure 3 - 2010 PM Peak Hour Congestion by Lane-Mile, CMP Roadway Network ................................................ 11 Figure 4 - WATA Ridership, 2006-2010 ........................................................................................................................... 12 Figure 5 - Williamsburg Area Transit Authority Route Map ....................................................................................... 13 Figure 6 - Amtrak Passenger Activity in Williamsburg, 2002-2010 ............................................................................. 15 Figure 7 - Percentage of Residents Bicycling or Walking to Commute to Work, 2000 and 2005-2009 .................... 16 Figure 8 - Newport News-Williamsburg International Airport Passenger Activity, 1991-2010 .............................. 19 Figure 9 - Enplanements at Newport News-Williamsburg, Richmond, and Norfolk International Airports ....... 20 Figure 10 - 2010 and 2034 PM Peak Hour Congestion by Lane-Mile, CMP Roadway Network ............................. 26 Figure 11 - WATA Revenues by Source, FY 2012 ........................................................................................................... 37 Figure 12 - WATA Locality Revenues, FY 2012 .............................................................................................................. 37 Figure 13 - Williamsburg Trolley Route Map ................................................................................................................. 39 Figure 14 - Williamsburg Trolley Monthly Ridership ................................................................................................... 40 Figure 15 - Jamestown Route - Proposed Silver Line ..................................................................................................... 41 Figure 16 - Jamestown Route - Proposed Gold Line ...................................................................................................... 41 Figure 17 - Quarterpath Route .......................................................................................................................................... 42 Figure 18 - Newport News Connection Route ................................................................................................................ 42 Figure 19 - New Kent Connection Route ......................................................................................................................... 43 Figure 20 - Peninsula Transit Vision Plan Bus Network Recommendations.............................................................. 46 Figure 21 - Regional Transit Vision Plan ......................................................................................................................... 46

JamesCity/Williamsburg/York City/Williamsburg/York Transportation Study James Transportation Study

Introduction

1

INTRODUCTION N

James City County, Williamsburg, and York County are located in the northwestern section of the Hampton Roads Metropolitan Planning Area (Map 1). Transportation in and through this area is not only critical to these three communities but to the Hampton Roads region as a whole. I-64 carries many travelers between Richmond and Hampton Roads, and other major highways, including US Routes 17 and 60, also pass through the area.

Amtrak provides inter-city rail service through the area between Newport News and Richmond, with a stop in Williamsburg. A portion of Newport News-Williamsburg International Airport is also located within the study area in York County.

James City County

York County Williamsburg

The purpose of this report is to assist James City County, Williamsburg, and York County officials with the transportation sections of their Map 1 – James City County, Williamsburg, and York County Comprehensive Plans. A Comprehensive Plan is a policy document that provides direction for policy makers to guide growth and development by providing the long-range vision, goals, and strategies of their communities. Every Virginia locality is required by state law to have a Comprehensive Plan.

James City County adopted their most recent Comprehensive Plan in 2009, Williamsburg in 2006, and York County in 2005. Because of the link between these communities, James City County, Williamsburg, and York County are coordinating the timing of their Comprehensive Plan updates, with all three jurisdictions updating their Comprehensive Plans in 2012.

This report is broken down into sections for each of the following transportation modes - Highway, Public Transportation, Intercity Rail, Bicycle and Pedestrian, and Air Travel. Both the current and future conditions are examined for each of these transportation modes.

JamesCity/Williamsburg/York City/Williamsburg/York Transportation Study James Transportation Study

Current Conditions - Highway

2

CURRENT CONDITIONS This chapter looks at current conditions and how they compare to historical trends on the transportation network in James City County, Williamsburg, and York County. This chapter is divided into the following sections based on each transportation mode: 









Highway - Includes an inventory of the existing roadway network, description of recent major roadway improvements, current and historical traffic volume data, and an analysis of peak hour roadway congestion.

Public Transportation - Includes a description of the existing transit service provided by the Williamsburg Area Transit Authority and VDOT Park and Ride lots.

Intercity Passenger Rail - Includes a description of the existing Amtrak service provided in the area.

Bicycle & Pedestrian - Includes an inventory of the existing non-motorized transportation network.

Air Travel - Includes ridership trends and general information for the Newport NewsWilliamsburg International Airport and Williamsburg Jamestown Airport.

Figure 1 – Roadway Functional Class Definition Source: FHWA.

Expressways, Other Principal Arterials, and Minor Arterials) provide more mobility, which is defined as the ability of traffic to pass through a defined area in a reasonable amount of time. Local roadways provide more accessibility, which is measured in the roadway's capability to provide access to and between land use activities within a defined area.

Collectors offer a mix between providing mobility and accessibility.

Roadways are also classified as urban or rural based on their location as defined by the Census Bureau.

While Williamsburg is entirely classified as an urban area, James City County and York County have both urban and rural areas. In rural areas, collectors are classified as major or minor, depending on the type of service they carry.

HIGHWAY

Table 1 shows the miles of roadway in each jurisdiction by the Virginia Department of Transportation (VDOT) roadway functional classification. Map 2 on page 3 shows the VDOT functional classification for roadways in the area, and Appendix A includes these maps broken down by locality.

Roadway Inventory Roadways are organized into a hierarchy based on their function, and are classified as arterials, collectors, or locals (Figure 1). Arterial roadways (which include Interstates, Freeways and

James City Roadway Functional Class

Williamsburg

York

Urban

Rural

Urban

Rural

Urban

Rural

Interstate

2.34

Freeway & Expressway

9.90

8.70

-

-

5.65

5.58

-

0.40

-

2.82

-

Other Principal Arterial

14.92

-

6.80

-

32.36

-

Minor Arterial

30.85

6.79

9.39

-

17.29

2.22

Collector

12.42

25.38

5.23

-

31.68

7.86

Local

126.06

177.90

37.06

-

264.44

33.89

TOTAL CENTERLINE MILES

415.26

58.88

Table 1 – Miles of Roadway by VDOT Functional Classification (2009) Data source: VDOT.

JamesCity/Williamsburg/York City/Williamsburg/York Transportation Study James Transportation Study

403.79

Current Conditions - Highway

3 N

Map 2 VDOT Roadway Functional Classification LEGEND Urban

Rural Interstate Freeway & Expressway Other Principal Arterial Minor Arterial Collector - Urban Collector - Rural Major Collector - Rural Minor Local

Prepared by HRTPO Staff, January 2012.

JamesCity/Williamsburg/York City/Williamsburg/York Transportation Study James Transportation Study

Current Conditions - Highway

4

Recent Roadway Improvements A number of roadway improvements have occurred in James City, Williamsburg, and York County over the last decade. The largest of these roadway improvements are shown below in Table 2. Two of these projects, widening Ironbound Road and Fort Eustis Boulevard, are both underway, with completion of both projects expected in 2012.

In addition to these major projects, a number of smaller projects have also been completed. This includes projects such as adding or extending intersection turn bays, adding or coordinating traffic signals, installing medians, etc. A list of these projects is included in Appendix B.

Traffic Data VDOT collects traffic volume data at thousands of locations in the study area, of which approximately 200 are on roadways with functional classifications of collectors or above. At most of these 200 locations, data is collected for a 48-hour period once every three years.

In James City County, Williamsburg, and York County, these counts were last taken in 2010.

Based on these triennial counts, VDOT produces Annual Average Daily Traffic (AADT) volume estimates. These estimates provide the average number of vehicles that travel each roadway segment based on the total annual traffic estimate divided by the number of days in the year.

HRTPO

Route 199 in James City County, widened in 2005.

volumes based on the 48-hour counts, and VDOT's AADT volume estimates for those years where VDOT collected data in the study area. VDOT also produces AADT estimates for many smaller, local roadways, particularly within the counties. These AADT estimates are included in VDOT's Daily Traffic Volume Estimates Jurisdiction reports, which are available on VDOT's website at http://virginiadot.org/info/ct-TrafficCounts.asp.

Among the 171 locations in the study area with functional classifications of collectors or above that were counted in both 2001 and 2010, 103 locations (60%) experienced an increase in AADT volumes over this time period, with 53 locations experiencing an increase of 20% or more. Of the 61 locations that experienced a decrease in AADT volumes over this time period, 24 experienced a decrease of 20% or more.

Table 3 on pages 5-8 includes historical weekday Jurisdiction

Facility

JCC/YC

Grove Connector

JCC/WMB Ironbound Rd

From/To

Improvement

I-64 to Busch Gardens

New interchange

Strawberry Plains Rd to Longhill Connector Rd

Widening - 2 to 4 lanes

Year Completed 2002 Underway

JCC

Monticello Ave

John Tyler Hwy to News Rd

New 2 lane facility

2001

JCC

SR 5

Chickahominy River Bridge

Replacement bridge

2009

JCC

SR 199

Brookwood Drive to Pocahontas Trail

Widening - 2 to 4 lanes

2005

WMB

Richmond Rd

Monticello Ave to Bypass Rd

Widening - 2 to 4 lanes

2006

WMB

Treyburn Dr

Monticello Ave to Ironbound Rd

New 2-lane facility

YC

Fort Eustis Blvd

Newport News CL to George Washington Hwy

Widening - 2 to 4 lanes

YC

Fort Eustis Blvd Extended

George Washington Hwy to Old York-Hampton Hwy

New 4-lane facility

Table 2 – Roadway Improvements Since 2001 Compiled from various sources.

JamesCity/Williamsburg/York City/Williamsburg/York Transportation Study James Transportation Study

2007 Underway 2006

Current Conditions - Highway Route Num Location

James City County

30 700 614 614 614 631 607 607 30 607 607 607 603 610 614 64 64 64 64 615 615 783 615 615 615 359 31 31 5 5 5 5 617 615 615 612 612 612 612 143 143 5000 5000 5000 321 646 646 613 613 613 742 30

Barhamsville Rd Brookwood Dr Centerville Rd Centerville Rd Centerville Rd Chickahominy Rd Colonial Pkwy Croaker Rd Croaker Rd Croaker Rd Croaker Rd Croaker Rd Croaker Rd Diascund Rd Forge Rd Greensprings Rd I-64 I-64 I-64 I-64 Ironbound Rd Ironbound Rd Ironbound Rd Ironbound Rd Ironbound Rd Ironbound Rd Jamestown Festival Pkwy Jamestown Rd Jamestown Rd John Tyler Memorial Hwy John Tyler Memorial Hwy John Tyler Memorial Hwy John Tyler Memorial Hwy Lake Powell Rd Longhill Connector Rd Longhill Connector Rd Longhill Rd Longhill Rd Longhill Rd Longhill Rd Merrimac Trail Merrimac Trail Monticello Ave Monticello Ave Monticello Ave Monticello Ave Newman Rd Newman Rd News Rd News Rd News Rd Old News Rd Old Stage Hwy

5 Weekday Volume

Annual Average Daily Traffic (AADT)

Segment From

Segment To

2001

2004

2007

2010

2001

2004

2007

2010

Change in AADT 2001 to 2010

I-64 Rte 617 - Lake Powell Rd SR 5 - John Tyler Hwy Rte 633 - Jolly Pond Rd Adams Hunt Dr Rte 632 - Cranstons Mill Pond Rd Jamestown Visitor Center US 60 Richmond Rd Rte 760 - Maxton Ln SR 30 - Rochambeau Dr I-64 Rte 602 - Fenton Mill Rd Rte 606 - Ware Creek Rd Rte 610 - Forge Rd Rte 603 - Diascund Rd SR 31 - Jamestown Rd New Kent CL SR 30 - Old Stage Rd Rte 607 - Croaker Rd York CL Rte 681 - Sandy Bay Rd SR 5 - John Tyler Hwy Rte 613 - News Road Cul-de-Sac Rte 616 - Strawberry Plains Rd SR 321 - Monticello Ave Colonial Pkwy Jamestown Ferry Rte 681 - Sandy Bay Rd Charles City CL Rte 5000 - Monticello Ave Rte 615 - Ironbound Rd Rte 652 - Stanley Dr Treasure Island Rd Rte 615 - Ironbound Rd SR 322 - Ashbury Rd Rte 614 - Centerville Rd Rte 658 - Olde Towne Rd Rte 615 - Longhill Connector Rd SR 322 - Ashbury Rd York CL Newport News CL SR 5 - John Tyler Hwy Rte 614 - Centerville Rd Rte 613 - News Road SR 199 York CL Rte 768 - North Cove Rd Rte 614 - Centerville Rd Powhatan Secondary Rte 5000 - Monticello Ave Rte 613 - News Rd New Kent CL

US 60 - Richmond Rd Route 199 Rte 633 - Jolly Pond Rd Adams Hunt Dr US 60 - Richmond Rd US 60 - Richmond Rd Williamsburg CL Rte 760 - Maxton Ln SR 30 - Rochambeau Dr I-64 Rte 602 - Fenton Mill Rd Rte 606 - Ware Creek Rd Rte 605 - Croaker Landing Rd US 60 - Richmond Rd US 60 - Richmond Rd SR 5 - John Tyler Hwy SR 30 - Old Stage Rd Rte 607 - Croaker Rd York CL SR 143 Merrimac Trail SR 5 - John Tyler Hwy Rte 613 - News Road Cul-de-Sac Rte 616 - Strawberry Plains Rd SR 321 - Monticello Ave Williamsburg CL SR 31 - Jamestown Rd Rte 681 - Sandy Bay Rd Williamsburg CL Rte 5000 - Monticello Ave Rte 615 - Ironbound Rd Rte 652 - Stanley Dr SR 199 Rte 700 - Brookwood Dr SR 322 - Ashbury Rd Rte 612 - Longhill Rd Rte 658 - Olde Towne Rd Rte 615 - Longhill Connector Rd SR 322 - Ashbury Rd Williamsburg CL York CL York CL Rte 614 - Centerville Rd Rte 613 - News Road SR 199 Rte 615 - Ironbound Rd Rte 768 - North Cove Rd Rte 606 - Riverview Rd Powhatan Secondary Rte 5000 - Monticello Ave Rte 615 - Ironbound Rd Rte 5000 - Monticello Ave I-64

7,274 9,239 5,569 7,291 6,764 1,408 8,245 7,890 6,681 3,466 1,089 803 2,540 3,652 44,192 40,750 51,917 78,634 7,424 12,548 1,638 7,281 8,741 2,428 9,056 10,884 3,353 12,104 13,444 19,175 1,467 5,249 6,399 5,496 15,776 19,332 13,084 X X 26,857 16,158 1,093 1,085 3,700 6,256 13,847 852 7,887

6,215 8,850 4,447 7,097 8,052 1,572 1,728 7,723 7,423 6,108 3,073 935 766 2,496 3,133 44,583 49,374 55,234 80,740 7,483 10,145 1,771 8,104 9,798 1,214 5,761 9,381 3,100 8,147 11,242 17,789 1,432 5,865 7,504 6,088 15,730 4,282 15,902 10,195 4,237 10,003 36,548 23,662 1,178 886 3,149 7,472 12,231 1,383 7,601

7,124 9,845 4,719 9,407 10,319 1,586 2,118 8,185 8,059 10,997 6,773 3,515 1,023 863 2,527 2,959 49,376 55,206 62,101 86,497 7,570 10,509 1,073 2,037 7,659 9,631 1,206 7,910 9,820 3,214 8,147 11,506 18,522 2,073 6,223 7,920 7,567 17,721 4,215 16,543 10,282 4,574 11,395 41,348 25,204 1,247 1,051 3,349 7,863 11,003 2,756 8,516

9,423 8,761 4,248 7,414 9,095 1,592 8,364 8,286 11,021 6,494 3,352 1,056 687 2,576 2,984 48,913 51,775 58,252 87,885 7,150 9,675 1,070 1,988 9,382 11,023 1,498 9,567 2,885 8,033 10,663 17,546 1,427 8,151 9,664 6,577 16,087 4,237 16,342 10,021 24,179 1,238 1,035 3,440 7,908 10,495 2,659 9,512

7,100 8,400 5,400 7,500 6,300 1,400 8,000 7,700 6,500 3,400 1,100 780 2,500 3,500 41,000 41,000 50,000 75,000 7,100 12,000 990 1,600 6,900 8,200 2,200 8,800 10,000 3,300 12,000 13,000 18,000 1,400 5,000 6,100 5,400 15,000 14,000 9,100 18,000 12,000 X X 1,100 1,100 3,600 6,100 870 7,500

6,800 8,400 4,900 7,900 7,600 1,700 6,100 8,300 8,000 6,700 3,300 1,000 840 2,700 3,500 42,000 47,000 52,000 76,000 7,200 9,700 1,700 1,700 7,800 9,200 1,100 6,500 8,800 3,500 9,000 11,000 17,000 1,300 5,600 7,100 6,700 15,000 14,000 9,200 15,000 9,500 1,300 950 3,500 8,200 8,200 1,500 7,500

6,800 9,400 4,300 8,700 10,000 1,500 1,900 7,800 7,700 11,000 6,400 3,300 970 680 2,400 2,700 47,000 56,000 63,000 81,000 7,300 10,000 1,900 1,900 7,500 9,300 1,100 7,600 9,500 3,100 7,800 11,000 18,000 2,000 6,100 7,700 7,000 17,000 14,000 9,200 16,000 10,000 23,000 1,200 970 3,200 7,600 10,000 2,600 8,100

9,400 8,800 4,800 8,400 9,700 1,700 2,400 9,100 9,100 12,000 6,700 3,700 1,200 750 2,700 3,200 53,000 58,000 64,000 82,000 7,200 9,600 2,000 2,000 9,000 11,000 2,200 8,900 3,000 8,400 9,900 16,000 1,500 7,800 9,300 7,200 17,000 12,000 8,800 15,000 9,300 24,000 1,300 1,100 3,600 8,300 11,000 2,800 10,000

+2,300 +400 -600 +900 +3,400 +300 +1,100 +1,400 +200 +300 +100 -30 +200 -300 +12,000 +17,000 +14,000 +7,000 +100 -2,400 +1,010 +400 +2,100 +2,800 0 -1,100 -300 -3,600 -3,100 -2,000 +100 +2,800 +3,200 +1,800 +2,000 -2,000 -300 -3,000 -2,700 +200 0 0 +2,200 +1,930 +2,500

Table 3 – Weekday and Annual Average Daily Traffic Volumes, 2001 to 2010

Data sources: VDOT, James City County. '-' indicates data is not available for that roadway segment and year. 'X' indicates that roadway segment did not exist at that time.

James City/Williamsburg/York Transportation James City/Williamsburg/York Transportation Study Study

+32.4% +4.8% -11.1% +12.0% +54.0% +21.4% +13.8% +18.2% +3.1% +8.8% +9.1% -3.8% +8.0% -8.6% +29.3% +41.5% +28.0% +9.3% +1.4% -20.0% +102.0% +25.0% +30.4% +34.1% 0.0% -11.0% -9.1% -30.0% -23.8% -11.1% +7.1% +56.0% +52.5% +33.3% +13.3% -14.3% -3.3% -16.7% -22.5% +18.2% 0.0% 0.0% +36.1% +221.8% +33.3%

Current Conditions - Highway

Williamsburg

James City County

Route Num Location

6 Weekday Volume

Annual Average Daily Traffic (AADT)

Segment From

Segment To

2001

2004

2007

2010

2001

2004

2007

2010

Change in AADT 2001 to 2010

658 658 658 60 60 60 60 60 60 60 30 199 199 199 199 199 199 199 199 681 616

Olde Towne Rd Olde Towne Rd Olde Towne Rd Pocahontas Trail Pocahontas Trail Richmond Rd Richmond Rd Richmond Rd Richmond Rd Richmond Rd Rochambeau Dr SR 199 SR 199 SR 199 SR 199 SR 199 SR 199 SR 199 SR 199 Sandy Bay Rd Strawberry Plains Rd

Rte 612 - Longhill Rd King William Dr Chisel Run Rd Williamsburg CL York CL New Kent CL SR 30 - Barhamsville Rd Rte 607 - Croaker Rd Rte 614 - Centerville Rd SR 199 US 60 - Richmond Rd US 60 - Richmond Rd Rte 612 - Longhill Rd SR 321 - Monticello Ave SR 5 - John Tyler Hwy Williamsburg CL Brookwood Dr SR 132 - Henry St Mounts Bay Rd SR 31 - Jamestown Rd SR 5 - John Tyler Hwy

King William Dr Chisel Run Rd US 60 - Richmond Rd SR 199 Newport News CL SR 30 - Barhamsville Rd Rte 607 - Croaker Rd Rte 614 - Centerville Rd SR 199 Williamsburg CL Rte 607 - Croaker Rd Rte 612 - Longhill Rd SR 321 - Monticello Ave SR 5 - John Tyler Hwy Williamsburg CL Brookwood Dr SR 132 - Henry St Mounts Bay Rd US 60 - Pocahontas Trail Rte 615 - Ironbound Rd Rte 615 - Ironbound Rd

9,190 9,948 9,907 19,301 11,845 4,881 13,538 18,830 22,629 19,224 4,026 14,863 19,999 18,891 29,427 32,067 29,353 30,731 28,732 5,954 6,108

8,581 8,981 9,936 9,840 8,950 5,816 12,743 17,891 23,288 12,710 5,442 18,366 24,063 23,273 30,553 33,026 29,003 29,134 27,649 5,860 6,530

8,325 9,422 10,439 8,513 9,461 6,793 14,015 19,919 24,656 13,364 7,764 22,252 28,869 30,270 37,160 37,015 33,784 34,021 32,250 5,452 6,946

8,378 8,537 9,479 8,165 9,243 5,861 13,792 21,419 26,430 15,206 7,164 23,523 29,040 27,515 36,498 36,180 34,542 33,078 31,169 4,994 8,048

8,600 9,400 9,400 17,000 11,000 4,800 13,000 18,000 18,000 3,900 11,000 20,000 15,000 23,000 24,000 23,000 24,000 22,000 5,500 5,700

8,100 8,600 9,600 9,300 8,300 6,500 14,000 19,000 12,000 6,000 19,000 24,000 23,000 29,000 31,000 27,000 28,000 26,000 5,500 6,100

7,900 9,100 9,700 8,300 9,200 6,400 13,000 19,000 13,000 7,600 22,000 28,000 29,000 34,000 36,000 32,000 33,000 31,000 5,300 6,800

8,100 9,100 9,100 7,600 8,600 6,400 15,000 20,000 25,000 14,000 7,500 23,000 28,000 27,000 35,000 36,000 33,000 33,000 31,000 5,100 7,500

-500 -300 -300 -9,400 -2,400 +1,600 +2,000 +2,000 -4,000 +3,600 +12,000 +8,000 +12,000 +12,000 +12,000 +10,000 +9,000 +9,000 -400 +1,800

-5.8% -3.2% -3.2% -55.3% -21.8% +33.3% +15.4% +11.1% -22.2% +92.3% +109.1% +40.0% +80.0% +52.2% +50.0% +43.5% +37.5% +40.9% -7.3% +31.6%

5 60 60 60 5 90003 0 5 7075 132 132 5 132 132 7081 7081 31 5 5 7077 7077 5 5 7082 143 143 321 7083 60 60 7086

Boundary St Bypass Rd Bypass Rd Bypass Rd Capitol Landing Rd Colonial Pkwy England St S Francis St Francis St Henry St Henry St Henry St Henry St Henry St Ironbound Rd Ironbound Rd Jamestown Rd Jamestown Rd Jamestown Rd Lafayette St Lafayette St Lafayette St Lafayette St Longhill Rd Merrimac Trail Merrimac Trail Monticello Ave Monticello Ave Page St Page St Penniman Rd

Jamestown Rd Richmond Rd SR 132 - Henry St Parkway Dr US 60 - Bypass Rd James City CL Newport Ave Boundary St SR 132 - Henry St SR 199 Ireland St Francis St SR 162 - Lafayette St SR 132 Y James City CL Longhill Rd Williamsburg CL SR 199 John Tyler Hwy Richmond Rd Bacon St SR 132 - Henry St Capital Landing Rd Ironbound Rd York CL SR 5 - Capital Landing Rd Rte 615 - Ironbound Rd Compton Dr SR 5 - Capitol Landing Rd Second St Page St

Francis St York CL Parkway Dr SR 5 - Capitol Landing Rd SR 143 - Merrimac Trail York CL Francis St SR 132 - Henry St Waller St Ireland St Francis St SR 162 - Lafayette St SR 132 Y US 60 - Bypass Rd Longhill Rd Richmond Rd SR 199 John Tyler Hwy Boundary St Bacon Ave SR 132 - Henry St Capital Landing Rd US 60 - Page St James City CL SR 5 - Capital Landing Rd York CL Compton Dr Richmond Rd Second St Lafayette St York CL

11,628 28,684 20,073 18,242 8,391 5,881 2,300 8,752 7,946 3,874 6,229 8,022 12,423 7,789 12,335 23,308 10,315 11,709 9,621 12,172 12,425 10,511 3,985 6,329 9,112 13,944 20,971 20,750 2,422

12,282 21,871 13,304 10,554 6,859 8,528 7,629 3,686 5,155 5,997 7,463 9,244 8,710 12,430 18,361 12,010 13,548 9,479 10,935 10,846 9,006 4,282 7,285 9,141 16,182 12,309 14,714 2,172

11,076 21,128 13,844 11,409 6,754 2,919 7,660 7,087 4,120 5,346 5,565 7,504 9,114 10,115 13,632 18,414 11,933 12,235 8,345 9,796 9,682 7,890 4,215 7,617 9,974 18,412 15,876 13,531 2,375

12,532 26,802 15,868 13,198 1,803 8,917 6,477 3,801 5,660 5,803 6,853 10,116 9,913 15,292 17,349 11,994 13,820 8,911 9,835 10,151 8,263 4,237 7,217 9,445 17,358 17,074 15,332 15,804 2,822

11,000 26,000 18,000 17,000 7,900 5,700 2,400 8,100 7,500 3,600 6,000 7,500 12,000 7,200 12,000 21,000 9,800 11,000 9,200 12,000 12,000 9,900 3,700 6,000 8,500 13,000 20,000 19,000 2,200

11,000 21,000 12,000 10,000 6,200 6,200 2,100 7,600 6,800 3,400 4,800 5,400 6,800 8,600 7,900 12,000 17,000 11,000 12,000 8,700 10,000 10,000 8,200 3,900 6,600 8,300 15,000 12,000 13,000 2,000

9,800 20,000 12,000 10,000 6,300 6,200 2,300 6,700 6,200 3,700 4,800 4,900 6,600 8,000 8,900 12,000 16,000 11,000 11,000 7,300 8,600 8,500 6,900 3,700 6,700 8,800 17,000 14,000 12,000 14,000 2,100

12,000 25,000 15,000 12,000 6,900 4,700 1,800 8,200 6,000 3,600 5,400 5,500 6,400 9,400 9,100 14,000 16,000 11,000 13,000 8,200 9,300 9,300 7,800 3,900 6,700 8,800 18,000 16,000 14,000 15,000 2,700

+1,000 -1,000 -3,000 -5,000 -1,000 -1,000 -600 +100 -1,500 0 -500 -1,100 -2,600 +1,900 +2,000 -5,000 +1,200 +2,000 -1,000 -2,700 -2,700 -2,100 +200 +700 +300 +3,000 -6,000 -4,000 +500

+9.1% -3.8% -16.7% -29.4% -12.7% -17.5% -25.0% +1.2% -20.0% 0.0% -8.3% -14.7% -21.7% +26.4% +16.7% -23.8% +12.2% +18.2% -10.9% -22.5% -22.5% -21.2% +5.4% +11.7% +3.5% +23.1% -30.0% -21.1% +22.7%

Table 3 (Continued) – Weekday and Annual Average Daily Traffic Volumes, 2001 to 2010 Data sources: VDOT, James City County. '-' indicates data is not available for that roadway segment and year. 'X' indicates that roadway segment did not exist at that time.

James City/Williamsburg/York Transportation James City/Williamsburg/York Transportation Study Study

Current Conditions - Highway

York County

Williamsburg

Route Num Location

7 Weekday Volume

Annual Average Daily Traffic (AADT)

Segment From

Segment To

2001

2004

2007

2010

2001

2004

2007

2010

Change in AADT 2001 to 2010

0 60 60 7075 7075 132 199 199 7079 7079 60

Quarterpath Rd Richmond Rd Richmond Rd Richmond Rd Richmond Rd SR 132 Y SR 199 SR 199 Second St Second St York St

SR 199 James City CL Ironbound Rd Bypass Rd Monticello Ave Colonial Parkway James City CL SR 31 - Jamestown Rd Page St Parkway Dr Lafayette St

US 60 - York St Ironbound Rd Bypass Rd Monticello Ave Boundary St SR 132 - Henry St SR 31 - Jamestown Rd James City CL Parkway Dr York CL James City CL

1,473 22,401 32,730 20,168 13,180 7,629 29,427 32,067 16,723 17,976 17,894

629 16,902 26,495 21,401 13,668 5,267 30,553 33,026 14,472 16,042 12,483

19,148 25,776 19,306 12,395 6,115 37,160 37,015 13,557 15,207 10,850

595 23,783 25,987 19,001 13,511 2,967 36,498 36,180 13,965 15,123 13,385

1,400 21,000 30,000 21,000 12,000 7,200 23,000 24,000 16,000 17,000 16,000

570 16,000 25,000 19,000 12,000 4,700 29,000 31,000 13,000 15,000 11,000

610 17,000 24,000 17,000 11,000 5,400 34,000 36,000 13,000 13,000 9,900

550 22,000 24,000 18,000 13,000 5,900 35,000 36,000 13,000 14,000 13,000

-850 +1,000 -6,000 -3,000 +1,000 -1,300 +12,000 +12,000 -3,000 -3,000 -3,000

-60.7% +4.8% -20.0% -14.3% +8.3% -18.1% +52.2% +50.0% -18.8% -17.6% -18.8%

1020 1020 238 238 600 600 60 782 90003 704 704 704 238 621 173 782 105 1050 17 17 17 17 17 17 17 17 17 17 173 173 173 238 238 134 134 134 718 718 716 64 64

Ballard St Ballard St Ballard St Ballard St Big Bethel Rd Big Bethel Rd Bypass Rd Carys Chapel Rd Colonial Pkwy Cook Rd Cook Rd Cook Rd Cook Rd Dare Rd Denbigh Blvd E Yorktown Rd Fort Eustis Blvd Fort Eustis Blvd Ext George Washington Hwy George Washington Hwy George Washington Hwy George Washington Hwy George Washington Hwy George Washington Hwy George Washington Hwy George Washington Hwy George Washington Hwy George Washington Hwy Goodwin Neck Rd Goodwin Neck Rd Goodwin Neck Rd Goosley Rd Goosley Rd Hampton Hwy Hampton Hwy Hampton Hwy Hornsbyville Rd Hornsbyville Rd Hubbard Ln I-64 I-64

Water St Colonial Pkwy SR 238 - Cook Rd Moore House Rd Hampton CL SR 134 - Hampton Hwy Williamsburg CL Poquoson CL Williamsburg CL US 17 - George Washington Hwy Rte 634 - Old York Hampton Hwy Rte 634 - Surrender Rd North SR 238 - Goosley Rd US 17 - George Washington Hwy Newport News CL SR 171 - Victory Blvd Newport News CL US 17 - George Washington Hwy Newport News CL SR 171 - Victory Blvd SR 134 - Hampton Hwy Rte 621 - Grafton Dr SR 173 - Denbigh Blvd SR 105 - Fort Eustis Blvd Rte 704 - Cook Rd SR 238 - Goosley Rd Colonial Pkwy Mathew St US 17 - George Washington Hwy Rte 630 - Wolf Trap Rd Back Creek Rd SR 238 - Old Williamsburg Rd US 17 - George Washington Hwy US 17 - George Washington Hwy SR 171 - Victory Blvd Rte 600 - Big Bethel Rd Rte 634 - Old York Hampton Hwy Rte 631 - Waterview Rd Rte 641 - Penniman Rd James City CL SR 199/Rte 646 - Newman Rd

Colonial Pkwy SR 238 - Cook Rd Moore House Rd Main Gate Naval Mine Depot SR 134 - Hampton Hwy SR 171 - Victory Blvd SR 132 - Henry St SR 171 - Victory Blvd Ballard St Rte 634 - Old York Hampton Hwy Rte 634 - Surrender Rd North SR 238 - Goosley Rd Ballard St Rte 620 - Lakeside Dr US 17 - George Washington Hwy Poquoson CL US 17 - George Washington Hwy Rte 634 - Old York Hampton Hwy SR 171 - Victory Blvd SR 134 - Hampton Hwy Rte 621 - Grafton Dr SR 173 - Denbigh Blvd SR 105 - Fort Eustis Blvd Rte 704 - Cook Rd SR 238 - Goosley Rd Colonial Pkwy Mathew St Gloucester CL Rte 630 - Wolf Trap Rd Back Creek Rd Dandy Loop Rd US 17 - George Washington Hwy Rte 704 - Cook Rd SR 171 - Victory Blvd Rte 600 - Big Bethel Rd Hampton CL Rte 631 - Waterview Rd SR 173 - Goodwin Neck Rd Lakeshead Dr SR 199/Rte 646 - Newman Rd SR 143 - Camp Peary Rd

2,345 1,466 11,090 4,804 28,684 5,077 2,812 5,661 6,177 4,517 14,842 15,571 X 32,720 52,183 35,184 39,068 32,373 10,095 3,406 1,593 12,348 25,086 2,160 3,818 51,917 49,744

1,689 3,706 3,210 14,165 6,900 21,871 5,462 5,454 5,678 5,190 16,191 5,370 16,373 X 36,142 39,963 57,045 36,064 35,482 34,362 27,343 27,414 30,577 34,392 9,319 3,880 2,017 6,489 23,062 33,615 27,998 2,593 4,856 55,234 55,337

1,760 4,940 2,967 10,847 6,359 21,128 5,681 6,218 5,719 6,234 6,671 6,500 4,273 16,509 5,681 17,469 37,917 41,992 56,977 39,975 38,995 38,170 28,938 29,300 31,764 35,778 10,528 5,222 1,602 6,809 1,668 21,843 29,902 30,486 3,396 1,764 5,425 62,101 56,042

1,960 5,899 3,329 2,430 9,444 4,971 26,802 5,155 5,354 6,368 6,125 6,658 4,946 16,203 5,585 38,983 42,347 54,914 39,235 39,111 38,988 29,384 30,836 34,117 34,051 9,318 3,811 2,299 6,878 1,690 21,178 29,041 27,101 3,021 1,553 5,413 58,252 56,909

2,400 1,400 10,000 4,600 26,000 4,800 5,400 6,000 4,200 14,000 15,000 X 30,000 49,000 33,000 37,000 27,000 9,500 3,200 1,500 11,000 23,000 2,000 3,600 50,000 46,000

1,500 3,500 2,900 2,900 13,000 6,400 21,000 4,900 6,100 4,900 4,900 5,100 2,900 4,600 15,000 5,000 16,000 X 34,000 38,000 53,000 35,000 34,000 33,000 26,000 25,000 29,000 34,000 8,400 3,400 1,800 6,000 2,900 21,000 30,000 26,000 2,300 2,300 4,300 52,000 58,000

1,500 4,300 2,600 2,600 9,600 5,600 20,000 5,000 5,700 5,000 5,600 6,000 5,700 3,800 16,000 5,000 16,000 3,200 35,000 39,000 53,000 37,000 36,000 35,000 27,000 27,000 30,000 34,000 9,300 4,600 1,400 6,000 1,500 19,000 26,000 27,000 3,000 1,600 4,800 63,000 61,000

1,800 5,400 3,000 2,200 8,600 4,500 25,000 4,700 6,000 4,900 5,800 5,600 6,300 4,500 15,000 5,100 17,000 3,300 35,000 38,000 51,000 35,000 35,000 35,000 27,000 28,000 31,000 30,000 8,500 3,500 2,100 6,300 1,600 19,000 26,000 25,000 2,800 1,400 4,900 64,000 61,000

-600 +1,600 -1,400 -100 -1,000 -100 +400 -400 +300 +1,000 +2,000 +5,000 +2,000 +2,000 -10,000 +3,000 -1,000 +300 +600 -4,700 +3,000 +800 +1,300 +14,000 +15,000

-25.0% +114.3% -14.0% -2.2% -3.8% -2.1% +7.4% -6.7% +7.1% +7.1% +13.3% +16.7% +4.1% +6.1% -27.0% +11.1% -10.5% +9.4% +40.0% -42.7% +13.0% +40.0% +36.1% +28.0% +32.6%

Table 3 (Continued) – Weekday and Annual Average Daily Traffic Volumes, 2001 to 2010 Data sources: VDOT, James City County. '-' indicates data is not available for that roadway segment and year. 'X' indicates that roadway segment did not exist at that time.

James City/Williamsburg/York Transportation James City/Williamsburg/York Transportation Study Study

Current Conditions - Highway

York County

Route Num Location 64 64 64 620 620 646 1001 143 143 143 143 143 143 603 603 646 238 238 1020 634 634 718 634 634 620 641 641 641 641 60 60 132 199 199 199 199 199 622 622 162 171 171 171 171 713 1020 630

I-64 I-64 I-64 Lakeside Dr Lakeside Dr Lightfoot Rd Mathews St Merrimac Trail Merrimac Trail Merrimac Trail Merrimac Trail Merrimac Trail Merrimac Trail Mooretown Rd Mooretown Rd Newman Rd Old Williamsburg Rd Old Williamsburg Rd Old Williamsburg Rd Old York Hampton Hwy Old York Hampton Hwy Old York Hampton Hwy Old York Hampton Hwy Old York Hampton Hwy Oriana Rd Penniman Rd Penniman Rd Penniman Rd Penniman Rd Pocahontas Trail Pocahontas Trail SR 132 SR 199 SR 199 SR 199 SR 199 SR 199 Seaford Rd Seaford Rd Second St Victory Blvd Victory Blvd Victory Blvd Victory Blvd Waller Mill Rd Water St Wolf Trap Rd

8 Weekday Volume

Annual Average Daily Traffic (AADT)

Segment From

Segment To

2001

2004

2007

2010

2001

2004

2007

2010

Change in AADT 2001 to 2010

SR 143 - Camp Peary Rd SR 199 Busch Gardens Interchange US 17 - George Washington Hwy Rte 614 - Showalter Rd US 60 - Richmond Rd US 17 - George Washington Hwy Busch Gardens Interchange Penniman Rd Second St Williamsburg CL SR 132 I-64 Waller Mill Rd Rte 645 - Airport Rd I-64 Newport News CL Rte 660 - Baptist Rd SR 238 - Goosley Rd US 17 - George Washington Hwy SR 1050 - Fort Eustis Blvd Ext Rte 718 - Hornsbyville Rd Battle Rd Rte 693 - Wormley Creek Dr Newport News CL Williamsburg CL SR 143 - Merrimac Trail Fillmore Dr SR 199 SR 199 Busch Gardens Interchange US 60 - Bypass Rd I-64 Rte 603 - Mooretown Rd SR 143 - Merrimac Trail I-64 Water Country Pkwy SR 173 - Goodwin Neck Rd Ellerson Ct Williamsburg CL Newport News CL US 17 - George Washington Hwy SR 134 - Hampton Hwy Rte 600 - Big Bethel Rd US 60 - Bypass Rd Colonial Pkwy US 17 - George Washington Hwy

SR 199 Busch Gardens Interchange James City CL Rte 614 - Showalter Rd Rte 621 - Dare Rd Mooretown Rd Water St SR 199 Second St Williamsburg CL SR 132 I-64 Camp Peary Main Gate Rte 645 - Airport Rd Old Mooretown Rd James City CL Rte 660 - Baptist Rd SR 238 - Goosley Rd Colonial Pkwy SR 1050 - Fort Eustis Blvd Ext Rte 718 - Hornsbyville Rd Battle Rd Rte 693 - Wormley Creek Dr Rte 704 - Cook Rd US 17 - George Washington Hwy SR 143 - Merrimac Trail Fillmore Dr SR 199 Colonial Pkwy Busch Gardens Interchange James City CL SR 143 - Merrimac Trail Rte 603 - Mooretown Rd US 60 - Richmond Rd I-64 Water Country Pkwy Rte 641 - Penniman Rd Ellerson Ct Rte 718 - Back Creek Rd SR 143 - Merrimac Trail US 17 - George Washington Hwy SR 134 - Hampton Hwy Rte 600 - Big Bethel Rd Poquoson CL Rte 643 - Caran Rd Ballard St SR 173 - Goodwin Neck Rd

56,649 78,634 78,634 8,576 3,758 6,383 3,682 16,453 7,172 8,692 18,433 1,461 3,863 4,368 2,955 9,767 8,208 3,243 2,220 3,561 2,040 5,878 5,918 1,066 4,473 15,054 12,492 11,584 18,623 15,000 27,538 14,916 6,590 8,933 6,556 17,976 45,257 18,575 5,801 6,483

58,253 78,626 80,740 8,574 4,202 8,540 3,252 14,817 7,247 9,154 17,104 2,693 4,622 6,357 2,528 10,195 9,313 2,265 3,150 2,262 4,983 2,808 5,913 1,941 5,270 2,005 4,664 11,980 10,806 9,373 20,584 19,733 26,961 7,993 6,031 9,473 6,764 16,042 52,743 30,801 20,450 22,254 5,174 7,703

64,079 81,028 86,497 8,969 4,402 10,166 3,609 16,875 16,543 8,640 9,643 17,947 3,509 5,822 8,651 2,755 10,769 9,244 2,590 4,033 2,627 5,420 4,745 3,563 6,234 2,436 6,294 2,152 5,534 10,726 8,737 25,199 24,536 30,529 10,826 7,896 9,413 6,732 15,207 50,111 32,291 19,853 20,895 4,572 5,040 8,740

65,349 83,621 87,885 9,392 4,514 10,211 4,069 14,675 7,936 9,226 19,138 2,668 6,289 9,283 2,859 11,158 9,833 3,013 4,126 2,774 4,817 4,157 2,868 6,037 2,810 6,087 2,879 5,479 11,459 11,135 29,588 27,033 30,753 20,012 9,598 9,128 6,855 15,123 52,998 33,648 20,304 21,568 4,634 5,179 8,219

54,000 75,000 75,000 8,200 3,600 6,200 3,500 16,000 6,800 8,500 18,000 1,400 3,800 4,300 2,900 8,700 7,800 3,100 2,100 3,400 2,000 5,500 5,600 1,000 4,000 15,000 11,000 11,000 19,000 12,000 26,000 11,000 5,100 8,400 6,200 17,000 42,000 18,000 5,400 6,100

55,000 74,000 76,000 7,800 3,800 7,900 3,000 14,000 14,000 6,600 8,600 16,000 2,500 4,400 5,900 2,400 8,900 8,400 2,000 2,800 2,000 2,300 4,400 2,600 5,400 1,800 4,800 1,800 4,100 9,300 10,000 8,800 19,000 19,000 24,000 7,300 5,500 8,400 6,100 19,000 48,000 29,000 19,000 21,000 4,700 1,500 6,700

60,000 78,000 78,000 7,900 3,900 9,400 3,200 15,000 15,000 7,600 8,500 16,000 3,200 5,400 7,900 2,500 9,400 8,200 2,300 3,600 2,300 3,000 4,200 3,200 5,500 2,200 5,600 1,900 4,900 8,300 9,600 8,300 23,000 22,000 27,000 9,500 7,100 8,300 5,900 21,000 43,000 28,000 17,000 18,000 4,000 4,100 7,700

63,000 81,000 82,000 8,600 4,100 9,700 3,700 13,000 7,300 8,700 18,000 2,500 6,000 8,800 2,700 9,600 8,900 2,700 3,800 2,600 2,800 3,800 2,700 5,500 2,600 5,600 2,600 4,900 7,600 10,000 9,400 24,000 22,000 28,000 16,000 7,800 8,300 6,300 23,000 49,000 31,000 19,000 20,000 4,300 4,700 7,500

+9,000 +6,000 +7,000 +400 +500 +3,500 +200 -3,000 +500 +200 0 +1,100 +2,200 +4,500 -200 +900 +1,100 +700 +500 +400 +700 0 0 +1,600 +900 -7,400 -1,000 -1,600 +5,000 +10,000 +2,000 +5,000 +2,700 -100 +100 +6,000 +7,000 +2,000 -1,100 +1,400

Table 3 (Continued) – Weekday and Annual Average Daily Traffic Volumes, 2001 to 2010 Data sources: VDOT, James City County. '-' indicates data is not available for that roadway segment and year. 'X' indicates that roadway segment did not exist at that time.

James City/Williamsburg/York Transportation James City/Williamsburg/York Transportation Study Study

+16.7% +8.0% +9.3% +4.9% +13.9% +56.5% +5.7% -18.8% +7.4% +2.4% 0.0% +78.6% +57.9% +104.7% -6.9% +10.3% +14.1% +22.6% +23.8% +11.8% +35.0% 0.0% 0.0% +160.0% +22.5% -49.3% -9.1% -14.5% +26.3% +83.3% +7.7% +45.5% +52.9% -1.2% +1.6% +35.3% +16.7% +11.1% -20.4% +23.0%

Current Conditions - Highway

9

VDOT produces estimates of vehicleGrowth, miles of travel based on these traffic 2001 to counts and AADT estimates. Table 4 2001 2004 2007 2010 2010 shows the daily average vehicle-miles of James City County 1,438,900 1,529,800 1,704,200 1,797,700 24.9% travel in the study area in those years Williamsburg 248,900 253,900 250,300 265,500 6.7% York County 1,769,800 1,996,300 2,037,900 2,165,000 22.3% between 2001 and 2010 that VDOT collected traffic count data. Both James Table 4 – Daily Vehicle-Miles of Travel, 2001 to 2010 Data source: VDOT. City County (24.9%) and York County (22.3%) experienced increases in roadway (Figure 2). Levels of Service A through D are travel between 2001 and 2010 that were much higher considered to be acceptable operating conditions, than the regional growth of 11.7%. The City of while Levels of Service E and F are considered Williamsburg, however, experienced a 6.7% growth unacceptable due to severe congestion. in vehicle-miles of travel between 2001 and 2010, well below the Hampton Roads average.

Between 2001 and 2010, the population growth outpaced travel growth in James City County (33% population growth) and Williamsburg (13%), but did not outpace travel growth in York County (13%).

In spite of this increase in roadway travel, roadway congestion levels have not increased significantly in the study area, as shown in the next section.

Roadway Congestion The roadway congestion analysis performed for this study is based on the same procedure used in the HRTPO Congestion Management Process (CMP).

Congestion levels for each roadway segment were determined using a measure called Level of Service (LOS). Level of Service is categorized on a scale from LOS A through LOS F, with LOS A representing the best operating conditions and LOS F representing the most congested conditions

Peak hour congestion levels were calculated using weekday traffic volume data collected by VDOT in 2010. The LOSPLAN software package1 produced by the Florida Department of Transportation was used to calculate congestion levels. The LOSPLAN software uses methods to calculate Levels of Service based on the Highway Capacity Manual2, and takes into account various roadway and traffic characteristics. Congestion levels for each roadway segment were determined for the hour (defined as four consecutive 15-minute periods) with the highest traffic volume between 3 pm and 7 pm. This hour is referred to in this report as the PM peak hour.

Map 3 on page 10 shows the current congestion levels during the PM peak hour on major roadways throughout James City County, Williamsburg, and York County. These major roadways are part of the regional Congestion Management Process roadway network, which includes all roadways classified as minor arterials and above and selected collectors.

Figure 2 – Level of Service Definitions Source: HRTPO Congestion Management Process report.

1 LOSPLAN Software, Florida Department of Transportation, 2009. Information on LOSPLAN Software is available at http://www.dot.state.fl.us/planning/systems/sm/los.

,

2 Highway Capacity Manual Transportation Research Board, 2000.

JamesCity/Williamsburg/York City/Williamsburg/York Transportation Study James Transportation Study

Current Conditions - Highway

10 N

Map 3 2010 PM Peak Hour Congestion Levels LEGEND Low to Moderate Congestion (LOS A, B, or C) Moderate Congestion (LOS D) Severe Congestion (LOS E or F) CMP Network Roadways Outside the Study Area Non-CMP Network Roadways Prepared by HRTPO Staff, January 2012.

James City/Williamsburg/York Transportation James City/Williamsburg/York Transportation Study Study

Current Conditions - Highway

11 Study Area

7%

There are eleven roadway segments in the study area that are currently operating at severely congested levels (LOS E or F) during the PM peak hour (Table 5). Most of these roadway segments are in York County, including portions of I-64, Denbigh Boulevard, Fort Eustis Boulevard, George Washington Memorial Highway, and Victory Boulevard.

Portions of I-64, Longhill Road, and Monticello Avenue in James City County are currently severely congested during the PM peak hour, as is a portion of Jamestown Road in the city of Williamsburg.

3% 23%

80%

74%

12%

Low to Moderate Congestion (LOS A, B, or C)

22%

Moderate Congestion (LOS D)

66%

Severe Congestion (LOS E or F)

Figure 3 – 2010 PM Peak Hour Congestion by LaneMile, CMP Roadway Network Source: HRTPO.

The study area has less congestion than the region as a whole. 12% of the CMP roadway network lanemiles in Hampton Roads are currently experiencing severe congestion (LOS E or F) during the PM peak hour, with another 20% experiencing moderate congestion (LOS D).

NUMBER OF LANES

LENGTH (MILES)

Newport News CL to York CL

2

2.38

Olde Towne Rd to Route 199

2

0.66

News Rd to Route 199

4

0.57

FACILITY

FROM/TO

James City

I-64 Westbound

James City

Longhill Rd

James City

Monticello Ave

York

JURISDICTION

93%

13%

Williamsburg

These eleven severely congested roadway segments comprise a total of 15.6 centerline miles, or 39.2 lane-miles3 of roadway. In percentage terms, 7% of the CMP roadway network lane-miles in the study area are currently experiencing severe congestion (LOS E or F) during the PM peak hour (Figure 3), with another 13% experiencing moderate congestion (LOS D). On a jurisdictional level, York County has the highest percentage of severely congested lane miles at 12% of its CMP roadway network. James City County and Williamsburg have a much lower level of congestion, with only 3% of their CMP roadway networks currently being severely congested.

4% 3%

James City

Appendix C includes congestion maps for each jurisdiction, and the existing LOS for each roadway segment is also included in Table 8 on page 28.

Williamsburg

Jamestown Rd

College Creek to Boundary St

2

0.92

York

Denbigh Blvd

Newport News CL to George Washington Hwy

2

2.18

York

Fort Eustis Blvd

Newport News CL to George Washington Hwy

2*

2.36

York

George Washington Hwy

Hampton Hwy to Dare Rd

4

2.37

York

George Washington Hwy

Goosley Rd to Gloucester CL (Coleman Bridge)

4

1.06

York

I-64 Westbound

James City CL to Grove Connector

2

0.85

York

Victory Blvd

Hampton Hwy to Big Bethel Rd

2

1.02

York

Victory Blvd

Big Bethel Rd to Carys Chapel Rd

2

1.25

Table 5 – 2010 Congested Roadway Segments Source: HRTPO. * - Fort Eustis Boulevard is currently being widened to four lanes.

3 A lane-mile is defined as the length of a roadway segment multiplied by the number of lanes. A one-mile long, four-lane wide roadway segment would comprise four lanemiles.

JamesCity/Williamsburg/York City/Williamsburg/York Transportation Study James Transportation Study

Current Conditions - Public Transportation

12

PUBLIC TRANSPORTATION

Transit

3,500,000 3,000,000 Unlinked Passenger Trips

This section includes details on the public transportation services that are currently provided throughout the study area, as well as the Park and Ride lots that are owned by the Virginia Department of Transportation.

2,500,000 2,000,000 1,500,000 1,000,000 500,000

0 Transit services in James City County, 2006 2007 2008 2009 2010 Williamsburg, and northern York County are provided by the Figure 4 – WATA Ridership, 2006-2010 Williamsburg Area Transit Authority Data Sources: WATA, American Public Transportation Association.

An unlinked trip is a passenger trip made on one transit vehicle. If a passenger boards two buses to get from origin to (WATA). These services, which are destination, that is considered to be two unlinked trips. provided under the brand name Williamsburg Area Transport, are geared towards residents, William & Mary students, and tourists. Approximately 1% of residents in the study area use public transportation to commute to work according to the Census Bureau4, which is below the Hampton Roads average of 1.6%.

Year round, WATA operates eight bus routes, ondemand paratransit service, the Surry County Connection, and the Williamsburg Trolley, which provides service to the Merchants Square, High Street, and New Town activity centers (more information on the Williamsburg Trolley is included on page 39). WATA also provides bus service for the Colonial Williamsburg Foundation, which services Historic Triangle tourist destinations. From April through October, WATA also operates the Jamestown Area Shuttle and collaborates with York County in the operation of the Yorktown Trolley.

The locations of WATA’s routes are shown on Figure 5 on page 13.

WATA also provides connections to the Hampton Roads Transit (HRT) system at two locations. HRT Route 121 runs from the Newport News Transportation Center and Patrick Henry Mall to the Williamsburg Transportation Center. HRT Route 116, which ends at Patrick Henry Mall, connects to WATA's Gray Line at Lee Hall in Newport News.

WATA

WATA Bus Transfers can be made from the Newport News Transportation Center and Patrick Henry Mall to the rest of the HRT's system.

In 2010, 2,843,000 trips were served on WATA's system (Figure 4). The total number of trips on the WATA system increased between 2006 (when WATA began reporting on Historic Triangle transportation services) and 2007, but decreased in 2008 and 2009 before increasing slightly in 2010.

Intercity bus service is also provided in the study area, with Greyhound service available at the Williamsburg Transportation Center. Greyhound provides two buses that travel from Williamsburg toward Richmond and Norfolk each day.

4 2005-2009 American Community Survey 5-Yaer Estimates, US Census Bureau.

JamesCity/Williamsburg/York City/Williamsburg/York Transportation Study James Transportation Study

Current Conditions - Public Transportation

Figure 5 – Williamsburg Area Transit Authority Route Map Source: WATA. The Surry County Connection route is not shown on this map.

James City/Williamsburg/York Transportation Study James City/Williamsburg/York Transportation Study

13

Current Conditions - Public Transportation

14

Park and Ride Lots N

A number of residents in the study area use carpooling to travel to work. According to the Census Bureau, 5,700 residents in the study area carpooled to work on a regular basis in 2005-2009. This percentage (8.7%) is slightly below the regional carpooling average of 9.9%. The TRAFFIX program, which is funded by HRTPO and operated by Hampton Roads Transit, conducts various efforts to increase the use of transportation alternatives such as carpools, rideshares, and public transit throughout the region and study area.

Croaker

Lightfoot

Jamestown Ferry Landing

In order to assist with carpooling and ridesharing efforts, VDOT maintains Park and Ride lots throughout the state, including three lots in the study area (Map 4). These Park and Ride lots in the study area include:

Map 4 – Park and Ride Lots in the Study Area



Data Sources: VDOT, TRAFFIX. Lightfoot - This lot is located on East Rochambeau Drive just to the south of the interchange of I-64 and Route 199. inventory and usage of Park and Ride lots, identify The unpaved Lightfoot Lot has space available recommendations for new or expanded Park and for 76 vehicles.

Ride lots, update VDOT's website to include an Croaker - The Croaker Lot is located at the interactive map of official lots, develop VDOT's Park corner of Rochambeau Drive and Croaker and Ride program polices and goals, and assist Road just to the west of I-64. This unpaved lot VDOT in coordinating its Park and Ride lot program has space for 75 vehicles. with other state and local agencies and the public.

Jamestown Ferry Landing - This lot is located This study is expected to be completed in December on Jamestown Road at the Jamestown 2012.

Settlement, just to the north of the JamestownScotland Ferry. This paved lot has 132 spaces.





VDOT is currently conducting a study of Park and Ride lots statewide. This study will update VDOT's

HRTPO

Lightfoot Lot

HRTPO

Croaker Lot

JamesCity/Williamsburg/York City/Williamsburg/York Transportation Study James Transportation Study

Google

Jamestown Ferry Landing Lot

Current Conditions - Intercity Passenger Rail

15

INTERCITY PASSENGER RAIL

As of June 2011, there are two daily northbound trains passing through the Williamsburg station.

One leaves Williamsburg in the morning (reaching Washington, D.C. mid-day and Boston by late evening) and one leaves in the afternoon (reaching Washington, D.C. in the evening and Boston the next morning). There are also two daily southbound trains, one which leaves Boston in the evening, passes through Washington, D.C. in the morning and arrives in Williamsburg mid-day and another which leaves Boston in the morning, passes through Washington, D.C. in the afternoon, and arrives in Williamsburg in the evening. On Fridays, there is a third southbound train that arrives in Williamsburg in the evening.

Intercity rail passenger activity is counted via boardings and alightings – the number of people getting on and off of the train at each station. In 2010, there were 47,176 boardings and alightings at the Williamsburg Amtrak Station (Figure 6). This number of passengers at the Williamsburg station has decreased slightly since peaking in 2008, but is still above the passenger levels seen from 2002 to 2007.

Boardings and Alightings Per Year

60,000

Amtrak provides intercity passenger rail service through the study area along the CSX Railway corridor. This service is part of the Northeast Regional route, which operates between Boston and Newport News. There is one station in the study area, at the Williamsburg Transportation Center on North Boundary Street in Downtown Williamsburg.

50,000 40,000 30,000 20,000 10,000 0 2002 2003 2004 2005 2006 2007 2008 2009 2010 Federal Fiscal Year

Figure 6 - Amtrak Passenger Activity in Williamsburg, 20022010 Data source: Amtrak.

Based on Federal Fiscal Years, which run from October 1 - September 30.

HRTPO

Williamsburg Transportation Center

JamesCity/Williamsburg/York City/Williamsburg/York Transportation Study James Transportation Study

Current Conditions - Bicycle and Pedestrian Facilities

BICYCLE AND PEDESTRIAN FACILITIES

16 James City

Bicycling and walking are popular in the study area, not only for recreation but also as an important means of transportation. Approximately 5% of residents in the study area walk or use their bicycle to commute to work according to the Census Bureau, which is more than one and a half times the Hampton Roads regional average. As shown in Figure 7, this percentage of residents walking or biking to work is much higher in the City of Williamsburg (26%) than it is in James City County (1%) and York County (5%).

As part of this effort to improve regional bikeway planning, the three localities formed the Historic Triangle Bicycle Advisory Committee (HTBAC).

The HTBAC, which meets on a quarterly basis, is comprised of citizen appointees and staff from Williamsburg, James City County, and York County, as well as staff from the National Park Service, the Colonial Williamsburg Foundation, and the College of William and Mary. The HTBAC is responsible for recommending bikeway projects for implementation in accordance with the Regional Bicycle Facilities Plan; recommending amendments to the plan; and developing and implementing promotional, informational, and safety initiatives related to bicycling.

2%

2%

17%

1%

5%

26%

2005-2009

An update to the original plan was completed in 1998. This update included recreational and offroad facilities in addition to the transportationoriented facilities that were included in the original plan. The updated Regional Bicycle Facilities Plan is available on York County's website at http://www.yorkcounty.gov/Default.aspx?tabid=1720.

York

2000

Williamsburg, James City County, and York County joined together in 1993 to take a regional approach to bikeway planning. Together, the three localities developed the Regional Bicycle Facilities Plan. This plan was created to encourage the development of a coordinated, comprehensive system of integrated bikeways in the three localities. The benefits of such an integrated bikeway system were expected to be energy conservation, reduced pollution, traffic reduction, improved quality of life, and increased appeal as a tourist destination.

Williamsburg

Figure 7 - Percentage of Residents Bicycling or Walking to Commute to Work, 2000 and 2005-2009 Data source: US Census Bureau.

The three localities also collaborate to produce a Regional Bikeway Plan Map. This map includes existing facilities, proposed bike lanes and facilities, and conceptual locations for future bike paths. Map 5 on page 17 shows the existing bikeways based on the Regional Bikeway Plan Map. These existing bikeways include: 





Multi-Use Paths - Facilities that are physically separated from the roadway and prohibited for use by motorized traffic.

Bike Lanes - Roadways that can accommodate bicyclists. These facilities include bike lanes within the roadway that are delineated for bicycle use only. This also includes paved shoulders and wide outside lanes that provide enough space to accommodate bicyclists along with motorized traffic in cases where constraints don’t allow for a delineated lane.

Shared Roadways - Roadways that are signed as a bicycle route but do not have a portion of the roadway that is either reserved exclusively for bicyclists or can accommodate bicyclists and motorized traffic simultaneously.

There are 69 miles of existing bikeway facilities in the three jurisdictions, plus 40 additional miles of shared roadway facilities on roads maintained by the National Park Service (NPS). This includes the Colonial Parkway, Jamestown Island Tour Road,

JamesCity/Williamsburg/York City/Williamsburg/York Transportation Study James Transportation Study

Current Conditions - Bicycle and Pedestrian Facilities

17 N

Map 5 Existing Bikeways LEGEND Existing Bikeways National Park Service Roadways

Source: York County. Prepared by HRTPO Staff, January 2012.

James City/Williamsburg/York Transportation James City/Williamsburg/York Transportation Study Study

Current Conditions - Bicycle and Pedestrian Facilities

18

and Yorktown Battlefield Tour Road, and all are heavily used by bicyclists.

A number of high profile bicycle facilities are located in the study area. The Virginia Capital Trail, when completed, will connect Williamsburg and Downtown Richmond via the Colonial Parkway and 54-miles of multi-use path. The eight miles of multiuse path within James City County are complete, running from the Chickahominy Bridge parallel to Route 5 and Greensprings Road to the Jamestown Settlement. Seventeen miles of the Virginia Capital Trail are currently complete, with the remainder of the trail expected to be completed by 2014 according to VDOT. Virginia Bicycle Route 76 also spans the study area.

This route is part of both U.S. Bicycle Route 76, which runs from Illinois to Virginia, and the TransAmerica Bike Route, which connects Oregon with Virginia. Virginia Bicycle Route 76 follows the Virginia Capital Trail and the Colonial Parkway before reaching its terminus at Yorktown.

Bikeway projects completed throughout the study area in recent years are included in Table 6. More information on proposed and conceptual bicycle facilities is included in the Future Analysis - Bicycle and Pedestrian Facilities section of this report.

In addition to bikeways, all three localities have a network of sidewalks that accommodate pedestrian activity. The pedestrian facility network is robust in high pedestrian traffic destinations such as Colonial Williamsburg, the College of William and Mary, New Town, and Yorktown Village. In many other portions of the study area, however, there is an incomplete or nonexisting network.

Jurisdiction

UPC

Project

JCC

17632

JCC JCC JCC

54759

Multi-Use Path - Greensprings Trail

HRTPO

New Town Each of the three localities has taken steps to address the gaps in their sidewalk networks. James City County created a Sidewalk Master Plan in 1989, amended the plan in 1998, and updated it with a Pedestrian Accommodation Plan in 2011. James City County also provided for the design of "Complete Streets" in its 2009 Comprehensive Plan, which are roadways that are not only designed for motor vehicle use but are designed for pedestrians, bicyclists, and transit as well. Williamsburg has removed many gaps in its sidewalk system, and created a map of needed sidewalk improvements that is included in its 2006 Comprehensive Plan.

York County created the York County Sidewalk Plan in 1995, which provided the vision for 33 miles of additional sidewalks that would enable people to walk safely to nearby activity centers such as schools, parks, churches, libraries, and shopping areas.

These gaps in the pedestrian facility network are described further in the Future Analysis - Bicycle and Pedestrian Facilities section of this report.

Construction Completed

Cost

Bikeway - Colonial Pkwy Connections at Neck-O-Land Rd and Treasure Island Rd

August 2001

$84,000

18087

Shoulder Bike Path - Strawberry Plains Rd from Route 5 to Ironbound Rd

October 2001

$230,000

57364

Bikeway - Centerville Rd from North of Jolly Pond Rd to Longhill Rd

April 2003

$206,000

November 2006

$3,575,000

JCC

55051

Virginia Capital Trail - East of Chickahominy Bridge to Greensprings Trail

May 2007

$4,659,000

WMB

-

Shoulder Bike Lanes - Jamestown Road from John Tyler Lane to Ukrop Way

2002

$5,496

WMB

-

Shoulder Bike Lanes - Longhill Road

2008

$3,607

WMB

-

Shoulder Bike Lanes - Penniman Road

2005

$3,949

WMB

-

YC

17635

Shoulder Bike Lanes - Route 132 from the CSX Railroad to Bypass Road Goodwin Neck Rd Bike Lanes

Table 6 – Bikeway Projects Completed Since 2001 Compiled from various sources.

JamesCity/Williamsburg/York City/Williamsburg/York Transportation Study James Transportation Study

2006

$5,328

May 2001

$395,000

Current Conditions - Air Travel

19

AIR TRAVEL Three commercial service airports are located within 50 miles of Williamsburg. Newport News-Williamsburg International Airport (airport code PHF) is located in the study area, and Norfolk International (ORF) and Richmond International (RIC) are also used by the study area’s residents and travelers.

Corporate aviation service is provided at Williamsburg Jamestown Airport (JGG), as well as at the three commercial airports.

Finally, there are military airport and heliport facilities located at Camp Peary and the Yorktown Naval Weapons Station in York County.

NNWIA

Newport News-Williamsburg International Airport

Williamsburg

The Newport News-Williamsburg International Airport is located on the border of Newport News and York County. The airport, which is owned and operated by the Peninsula Airport Commission, is currently served by four commercial airlines - AirTran Airways, Delta Air Lines, Frontier Airlines, and US Airways. These airlines provide non-stop service to Atlanta, Boston, Charlotte, Denver, New York City, Orlando, and Philadelphia.

Passengers per Year

Newport News International Airport

A number of improvements have been completed at Newport News-Williamsburg International Airport in recent years. A new air traffic control tower and parking garage were constructed in 2007, and a new concourse (Concourse A) was opened in 2010.

Renovations have also been recently completed throughout the airport, including the Atrium and Concourse B.

Figure 8 - Newport News-Williamsburg International Airport Passenger Activity, 1991-2010 Data sources: FAA, Newport News-Williamsburg International Airport.

Passenger activity at the Newport NewsWilliamsburg International Airport has more than tripled over the past 20 years, as shown in Figure 8.

The majority of this growth occurred between 2001 and 2005, as Airtran Airways introduced new and more frequent service. Since 2005, passenger activity at the Newport News-Williamsburg International

JamesCity/Williamsburg/York City/Williamsburg/York Transportation Study James Transportation Study

Current Conditions - Air Travel

20

Airport has only increased by 0.4%, due in part to higher airfares and the condition of the economy.

and

Richmond

2,000,000 1,500,000 1,000,000 500,000

International

Due to their proximity and service levels, many of the study area's residents and travelers use Norfolk International and Richmond International Airports. Norfolk International Airport is served by six commercial airlines, and is the only one of the three commercial service airports currently served by Southwest Airlines.

Richmond International Airport is served by nine commercial airlines, with exclusive service from JetBlue Airways, Vision Airlines, and Air Canada among the three airports.

Both Norfolk International and Richmond International Airport had about 1.7 million enplanements (or 3.4 million passengers) in 2010, which is more than three times the passenger level handled at Newport News-Williamsburg International Airport (Figure 9). Unlike Newport News-Williamsburg International Airport, however, both Richmond and Norfolk International Airports have seen a decrease in passenger levels since the start of the economic downturn in 2007.

Williamsburg Jamestown Airport The Williamsburg Jamestown Airport is a small, privately owned and operated general aviation facility located off of Lake Powell Road in James City County. The airport serves small private planes used for recreational and business travel, with no scheduled commercial passenger service available.

The facility also serves as the base for a flight school.

As of 2009, there were 77 aircraft based at the airport, with approximately 22,000 takeoffs and landings occurring annually.

0 1991 1992 1993 1994 1995 1996 1997 1998 1999 2000 2001 2002 2003 2004 2005 2006 2007 2008 2009 2010

Norfolk Airports

Enplanements per Year

Service and passenger activity will be reduced at Newport News-Williamsburg International Airport in 2012 with Airtran discontinuing service in March. This is addressed further in the Future Conditions - Air Travel section of this report.

2,500,000

PHF

RIC

ORF

Figure 9 - Enplanements at Newport News-Williamsburg, Richmond, and Norfolk International Airports, 1991-2010 Data source: FAA.

HRTPO

Williamsburg Jamestown Airport

In 2009, the FAA, Virginia Department of Aviation, and James City County authorized and funded a study5 to "determine the demand for aviation services and the alternatives available to serve this demand in the James City County area". This study was initiated because the existing owners indicated a desire to sell the airport property. There were discussions about the county buying and operating the airport. At the conclusion of the study, James City County decided not to pursue the purchase of the airport. At this time, the airport is still operating under the ownership of the original owners.

5 Airport Feasibility Study, L. Robert Kimball & Associates, Inc., May 2009.

JamesCity/Williamsburg/York City/Williamsburg/York Transportation Study James Transportation Study

Future Conditions - Highway

FUTURE CONDITIONS This chapter looks at the future conditions on the transportation network in the study area, both in the near and long term.

Similar to the Current Conditions chapter, this chapter is divided into five sections based on transportation mode. These sections include: 

Highway - Includes a description of planned and programmed roadway improvements, projected traffic volume data for the year 2034, an analysis of the projected 2034 peak hour roadway congestion and how it compares to existing congestion levels, and a description of unfunded roadway projects in the study area.

Public Transportation - Includes a description of transit service improvements included in WATA's Transit Development Plan and the regional Transit Vision Plan.

Intercity Passenger Rail - Includes a description of the Virginia Department of Rail and Public Transportation's planned intercity rail improvements.

Bicycle & Pedestrian - Includes a description of needs in the bicycle and pedestrian network, particularly those gaps in the existing bikeway network.

Air Travel - Includes general information and future plans for the commercial service and general aviation airports used by the study area's residents and tourists.









HIGHWAY Programmed Roadway Projects Programmed roadway improvement projects in Hampton Roads are included in two documents, the Six-Year Improvement Program (SYIP) and the Transportation Improvement Program (TIP).

The Six-Year Improvement Program6 is a statewide document through which the Virginia Commonwealth Transportation Board (CTB)

21 allocates funds for the construction, development, or study of transportation projects.

The projects included in the SYIP not only encompass major projects such as new roadway construction and widening existing facilities but also smaller projects such as adding traffic signals, paving shoulders, and adding or extending intersection turn bays.

Per its name, the Six-Year Improvement Program includes information on funding allocations for each project over the course of the upcoming six state fiscal years. The SYIP also includes dates for the expected initiation of preliminary engineering design, right-of-way acquisition, and construction phases of each project.

The SYIP is developed annually by VDOT and the CTB and is occasionally revised within fiscal years if funding projections are significantly updated.

In addition to the SYIP, the Hampton Roads Transportation Improvement Program7 is also a multi-year document detailing the implementation of transportation projects. The TIP is a federallymandated, regional document that identifies the programming of transportation funds over a fouryear period. It lists all projects for which federal funds are anticipated, along with non-federally funded projects that are determined to be regionally significant.

The TIP must be a financially constrained document, which means that the amount of funding programmed in the TIP cannot exceed the expected amount of available funding. Before any federallyfunded and/or regionally significant surface transportation project can be built, it must be included in the most recent TIP approved by the HRTPO board. The TIP

6 FY 2012-2017 Six-Year Improvement Program, Commonwealth Transportation Board,

7 Hampton Roads Transportation Improvement Program FY 2012-2015, HRTPO, June 2011,

June 2011.

with amendments through November 2011.

JamesCity/Williamsburg/York City/Williamsburg/York Transportation Study James Transportation Study

Future Conditions - Highway

22

must also be consistent with the current Long-Range Transportation Plan, which is described further in the next section.

The Hampton Roads TIP may be revised as needed in order to add new projects, delete projects, and update or change project information. Not only roadway projects are included in the TIP; transit, bicycle and pedestrian, enhancement, and freightrelated projects are included as well. Although the TIP (which is a federally mandated, regional document that covers a 4-year time horizon) and the SYIP (which is a statewide document that covers a 6year time horizon) are different documents, most of the projects included in the TIP are also included in the SYIP and vice-versa.

Both the TIP and SYIP are prepared with the assistance of many stakeholders, including transportation engineers and planners from each city and county, VDOT staff, local transit officials, and the public. This is done through various mechanisms such as HRTPO’s Transportation Technical Advisory Committee (TTAC) and other regional subcommittees; consultation between local, regional, and state officials; public meetings and workshops; and public comment periods.

Projects and studies that are included in the SYIP and/or TIP and located within the study area are shown in Table 7 on page 23. Each project's projected construction start date, estimated cost, and allocated funding levels are also included. This list includes those projects that improve roadway capacity or safety, such as new roadways, roadway widenings, traffic signals, turn lanes, shoulders, and rail crossing improvements. Projects involving only the reconstruction of an existing roadway, such as repaving or drainage improvements, are not shown, nor are projects that do not have a site-specific location. The location of each of these projects is shown on Map 6 on page 24.

HRTPO

Fort Eustis Boulevard Construction

Only three of these projects are major roadway widenings that are fully funded for construction.

These are the Ironbound Road and Fort Eustis Boulevard widening projects that are currently under construction and a section of George Washington Memorial Highway (Route 17) in York County.

In addition to these 31 projects, there are additional roadway projects and studies that have funds allocated in the SYIP/TIP. These projects are not shown, however, since they are not likely to be completed for various reasons. Examples of these projects include the Route 60 Relocation project, Route 60/143 Connector Study, and paved shoulders on Ironbound Road and Longhill Road. Funds that are currently allocated to these projects ($6.6 million) will likely be transferred to other projects.

A total of 31 roadway projects or studies in James City County, Williamsburg, and York County are included in the current SYIP or TIP as described above. Combined, these projects account for a total of $136 million of allocated funding. Most of these projects are of the smaller variety, such as intersection improvements and new traffic signals.

JamesCity/Williamsburg/York City/Williamsburg/York Transportation Study James Transportation Study

Future Conditions - Highway

23

Roadway Projects Programmed for Construction Projected Construction Start

Estimated Cost

Allocated Funding in SYIP/TIP

Add Turn Lanes - Monticello Ave at Ironbound Rd

2014

$2,424,000

$2,424,000

98823

Bridge Replacement - Route 601 over Diascund Creek

2018

$726,000

$726,000

JCC

60512

Improve Curve - Olde Towne Rd

-

$2,648,000

$1,523,000

JCC

97010

JCC

*

Jurisdiction

UPC

Project

JCC

82961

JCC

Intersection Improvements - Richmond Rd at Airport Rd Intersection Improvements - Route 199 at Brookwood Drive Intersection Improvements - Route 199 Ramp at Richmond Road

2014

$458,000

$458,000

-

$275,000

$275,000

JCC

*

JCC

98279

Signal Upgrade and Install Median Barrier - Longhill Rd at Olde Towne Rd

-

$455,000

$455,000

2012

$401,000

$401,000

JCC

101271

Turn Lane Improvements - Richmond Rd at Centerville Rd/Lightfoot Rd

JCC

98435

Upgrade Signal - Route 199 at John Tyler Hwy

2012

$1,000,000

$1,000,000

Underway

$240,000

JCC/WMB

50057

Widening Ironbound Rd from 2 to 4 Lanes - Strawberry Plains Rd to Longhill Connector Rd

Underway

$350,000

$14,079,000

$14,079,000

WMB

100408

Improve Rail Crossing - Henry St

WMB

84905

Install Traffic Signal - Richmond Road at Waltz Farm Drive

2012

$75,000

$75,000

-

$260,000

$260,000

1

1

WMB

84906

Install Traffic Signal - Second St at Parkway Dr

-

$266,000

$40,000

WMB

84908

Install Traffic Signal - York St at Quarterpath Rd

-

$216,000

$200,000

1

- 2

WMB

89062

Widening Ironbound Rd from 2 to 3 Lanes - Longhill Connector Rd to Richmond Rd

-

$3,500,000

YC

13714

Construct Turn Lanes - Lakeside Dr between Route 17 and South of Dare Rd

2012

$6,785,000

$6,716,000

YC

97019

Improve Rail Crossing - Wolf Trap Rd South of Hornsbyville Rd

2012

$18,000

$50,000

YC

98247

Intersection Improvements - Dogwood Rd at Old Williamsburg Rd

2012

$56,000

$63,000

YC

95423

Intersection Improvements - East Rochambeau Dr at Airport Rd

2014

$518,000

$514,000

YC

83512

Intersection Improvements - Route 17 at Oriana Rd/Lakeside Dr

-

$3,000,000

$800,000

YC

98098

Lengthen Ramp and Weave Section on I-64 WB at Route 199

2015

$2,677,000

$2,610,000

YC

101276

Paved Shoulder - Cook Rd

2013

$360,000

$360,000

YC

92992

Widening Fort Eustis Blvd from 2 to 4 Lanes - Newport News CL to Route 17

Underway

$23,644,000

$22,717,000

YC

60843

Widening Route 17 from 4 to 6 Lanes - Hampton Hwy to Wolf Trap Rd

2013

$60,376,000

$60,376,000

Roadway Projects Programmed for Preliminary Engineering or Right Of Way Acquisition Only Jurisdiction

UPC

JCC

100200

JCC JCC JCC

Project New Roadway - Skiffes Creek Connector

* Paved Shoulder - Route 60 Corridor 100920 Widening Croaker Rd from 2 to 4 Lanes - Richmond Rd to Library (includes multi-use path) & 17633 100921

Widening Longhill Rd from 2 to 4 Lanes - Route 199 to Olde Towne Rd

Projected Construction Start

Estimated Cost

Allocated Funding in SYIP/TIP

-

$35,000,000

$10,000,000

-

$6,100,000 $11,950,000

$800,000 $3,374,000

-

$11,800,000

$1,272,000

Allocated Funding in SYIP/TIP $400,000

Programmed Studies Jurisdiction

UPC

Study

Estimated Cost

JCC

98810

Mooretown Rd Extension

$400,000

JCC

98811

Longhill Rd Corridor

$300,000

$500,000

Multi

92212

I-64 Corridor - Richmond to Hampton

$3,000,000

$3,000,000

Table 7 – Roadway Projects and Studies Included in the Six-Year Improvement Program or Transportation Improvement Program

Data sources: VDOT, HRTPO. Based on data collected from the SYIP and TIP as of December 2011. UPC is the Universal Project Code number. Does not include any projects where initial funding is not allocated until after FY 2017. * indicates that no UPC code has been given.

1 – Williamsburg officials have requested transferring these funds to UPC #89062, Widening Ironbound Road.

2 - Williamsburg officials have requested transfer of $500,000 in Urban funds to this project from UPC #84905, #84906 and #84908, Traffic Signal Installation projects.

JamesCity/Williamsburg/York City/Williamsburg/York Transportation Study James Transportation Study

Future Conditions - Highway

24 Map 6 SYIP/TIP Roadway Projects

N

LEGEND Roadway Projects Programmed for Construction

98823

Roadway Projects Programmed for PE & R/W Only

100920/17633 92212

Studies 98810

Universal Project Code

82961 101271

Sources: FY 2012-2017 Six-Year Improvement Program, FY 2012-2015 Transportation Improvement Program.

Prepared by HRTPO Staff, January 2012. * indicates that a UPC Code has not been given to this project.

*

60512 98811

95423 97010

98279

100921

84905

89062 50057 82961

100408

84906

84908

98098

98435 *

98247 101276

*

100200 97019

92992

60843

13714 83512

James City/Williamsburg/York Transportation James City/Williamsburg/York Transportation Study Study

Future Conditions - Highway Long Range Planning The Hampton Roads Transportation Planning Organization is responsible for producing the regional Long-Range Transportation Plan (LRTP).

The purpose of the LRTP is to guide investments to projects designed to meet the transportation goals of the HRTPO, which are mobility, safety, economic vitality, and environmental protection.

The LRTP contains a list of transportation projects that are expected to be constructed based on the anticipated funding during the time horizon. These projects cover several modes of surface transportation; however, only roadway projects that add capacity to the regional roadway network and fixed-guideway transit projects (which are those that use exclusive right-of-way such as trains) are typically individually identified in the plan. Smaller projects, such as traffic signals and turn bays, are not typically individually identified in the LRTP. This differs from the SYIP and TIP described in the previous section, which include all of these types of projects.

25 2034 LRTP Projects Projects included in the 2034 Hampton Roads LongRange Transportation Plan were chosen based on a variety of factors, including the results of the project prioritization process, recommendations from the HRTPO Transportation Technical Advisory Committee (TTAC), projects in the Governor’s Transportation Funding Proposal, and local, state, Federal and public stakeholder input.

Three roadway projects in the study area are included in the 2034 LRTP for construction. These projects are: 



 The LRTP is updated on a quadrennial cycle per federal regulations and encompasses a minimum of a 20-year time horizon, much longer than the 6-year time horizon of the SYIP and the 4-year time horizon of the TIP. Many stakeholders are involved in the preparation of the LRTP including transportation engineers and planners from each city and county, VDOT, local transit officials, and the public.

The 2034 Hampton Roads Long-Range Transportation Plan8 was approved by the HRTPO Board at its January 2012 meeting. A project prioritization process was utilized for the first time to develop this plan. This prioritization process ranked candidate projects by type based on each project's utility in terms of capacity and operational effectiveness; viability in terms of progress in design, funding, and permitting; and economic vitality in terms of its potential to stimulate economic growth.

8 2034 Hampton Roads Long-Range Transportation Plan, HRTPO, January 2012.

Fort Eustis Boulevard - Widening from two to four lanes between the Newport News City Line and George Washington Memorial Highway. The cost of this project, which is under construction, is $23.6 million.

Ironbound Road - Widening from two to four lanes between Strawberry Plains Road and Longhill Connector Road. The cost of this project, which is under construction, is $14.1 million.

George Washington Memorial Highway Widening from four to six lanes between Hampton Highway and Denbigh Boulevard.

The estimated cost of this project is $67.4 million. As mentioned in the previous section, the portion of this project from Hampton Highway to Wolf Trap Road is included in the SYIP/TIP for construction, starting in 2013.

In addition to these three projects slated for construction, the 2034 LRTP also includes five corridors in the study area for preliminary engineering only: Croaker Road, I-64, Longhill Road, Route 60 Relocation, and the Skiffes Creek Connector. Many of these corridors are described further in the Unfunded Projects section of this report.

2034 Traffic Characteristics As part of long range transportation planning efforts, HRTPO staff forecasts traffic volumes and congestion levels on the Congestion Management Process roadway network in the horizon year.

JamesCity/Williamsburg/York City/Williamsburg/York Transportation Study James Transportation Study

Future Conditions - Highway

26

These volumes are based on output from the regional transportation model, which estimates raw traffic volumes based on socioeconomic projections as well as the assumption that all of the projects included in the LRTP are constructed. Congestion levels are then calculated by applying the methodology described in the Current Conditions Roadway Congestion section of this report to the forecasted volumes.

Map 7 on page 27 shows the projected 2034 PM Peak Hour congestion levels in the study area. In addition, Table 8 on pages 28-30 shows the current and projected 2034 traffic volumes and PM Peak Hour Levels-of-Service for CMP roadway segments in the study area. Appendix D includes 2034 roadway congestion maps for each jurisdiction.

The amount of vehicular travel and peak hour congestion, both in Hampton Roads as well as in the three jurisdictions in the study area, is expected to grow significantly in the future. A total of 3,774,000 vehicle-miles of travel (VMT) occurred on CMP roadways each weekday in the study area in 2010.

By 2034, the vehicle-miles of travel on the CMP network is expected to increase 65%, up to 6,220,000 each weekday. On a jurisdictional level, the amount of weekday VMT on the CMP network in James City County is expected to increase from 1,665,000 in 2010 to 2,789,000 in 2034, a 68% increase. In Williamsburg, this VMT is projected to increase from 231,000 in 2010 to 392,000 in 2034 (a 70%

2010

Study Area

increase), and in York County, the weekday VMT on the CMP network is projected to increase from 1,878,000 in 2010 to 3,039,000 in 2034, a 62% increase.

The amount of congestion is expected to increase as these traffic volumes grow. There were eleven roadway segments in the study area that were operating at severely congested levels (LOS E or F) during the PM peak hour in 2010. In 2034, this is expected to increase to 72 roadway segments. These severely congested segments include sections of George Washington Memorial Highway, Hampton Highway, I-64, Merrimac Trail, Route 60, Route 199, Victory Boulevard, and many other roadways.

These 72 severely congested roadway segments would comprise a total of 82.5 centerline miles, or 242.1 lane-miles of roadway, in 2034. This is up from 15.6 centerline miles and 39.2 lane-miles in 2010. In percentage terms, 41% of the CMP roadway network lane-miles in the study area are expected to experience severe congestion (LOS E or F) during the PM peak hour in 2034, up from 7% in 2010 (Figure 10). On a jurisdictional level, York County is projected to have the highest percentage of severely congested lane miles at 67% of its CMP roadway network in 2034. This is up from 12% of its CMP roadway network in 2010. James City County and Williamsburg are projected to have a much lower level of congestion, with 22% and 24% of their CMP roadway networks being severely congested during the PM Peak Hour in 2034 respectively. In both jurisdictions, this is up from 3% in 2010.

2010

2034

2034

4% 3%

60%

James City

47%

Williamsburg

7%

22%

13%

41%

93%

42%

18%

3%

80%

17%

24%

23% 74%

Low to Moderate Congestion (LOS A, B, or C)

29%

Moderate Congestion (LOS D)

Figure 10 – 2010 and 2034 PM Peak Hour Congestion by LaneMile, CMP Roadway Network Source: HRTPO.

JamesCity/Williamsburg/York City/Williamsburg/York Transportation Study James Transportation Study

12% 22%

19%

66%

67%

14%

York

Severe Congestion (LOS E or F)

Future Conditions - Highway

27 N

Map 7 2034 PM Peak Hour Congestion Levels LEGEND Low to Moderate Congestion (LOS A, B, or C) Moderate Congestion (LOS D) Severe Congestion (LOS E or F) CMP Network Roadways Outside the Study Area Non-CMP Network Roadways Prepared by HRTPO Staff, January 2012.

James City/Williamsburg/York Transportation James City/Williamsburg/York Transportation Study Study

James City County

Future Conditions - Highway

28 Most Recent Weekday Volume

2034 Weekday Volume

Facility

Segment From

Segment To

Barhamsville Rd

I-64

Route 60

9,423

29,000

Centerville Rd

John Tyler Hwy

Monticello Ave

3,462

8,000

Centerville Rd

Monticello Ave

News Rd

4,248

6,000

Centerville Rd

News Rd

Longhill Rd

7,414

17,000

Centerville Rd

Longhill Rd

Richmond Rd

9,095

17,000

Colonial Natl Hist Pkwy

Jamestown/Route 359

Williamsburg CL/Route 199

2,118

7,000

Croaker Rd

Route 60

Maxton Ln (Rte 760)

8,364

16,000

Croaker Rd

Maxton Ln (Rte 760)

I-64

8,286

28,000

Croaker Rd

I-64

Fenton Mill Rd

6,494

18,000

Croaker Rd

Fenton Mill Rd

Riverview Rd

3,352

15,000

I-64 EB

New Kent CL

Route 30

I-64 WB

New Kent CL

Route 30

48,913

73,000

I-64 EB

Route 30

Croaker Rd (Rte 607)

I-64 WB

Route 30

Croaker Rd (Rte 607)

51,775

80,000

I-64 EB

Croaker Rd (Rte 607)

York CL

I-64 WB

Croaker Rd (Rte 607)

York CL

58,252

100,000

I-64 EB

York CL

Newport News CL

I-64 WB

York CL

Newport News CL

87,885

116,000

Ironbound Rd

Strawberry Plains Rd

Monticello Ave

9,382

13,000

Ironbound Rd

Monticello Ave

Williamsburg CL

11,023

12,000

Ironbound Rd/News Rd

John Tyler Hwy

Monticello Ave

9,675

18,000

Ironbound Rd/Sandy Bay Rd

Jamestown Rd

John Tyler Hwy

7,150

9,000

Jamestown Rd

James River/Ferry

Colonial Parkway (Rte 359)

6,700

10,000

Jamestown Rd

Colonial Parkway (Rte 359)

Sandy Bay Rd (Rte 681)

8,235

17,000

Jamestown Rd

Sandy Bay Rd (Rte 681)

Neck-O-Land Rd

9,567

10,000

Jamestown Rd

Neck-O-Land Rd

Williamsburg CL

9,567

10,000

John Tyler Hwy

Charles City CL

Monticello Ave

2,885

6,000

John Tyler Hwy

Monticello Ave

Centerville Rd (Rte 614)

4,800

8,000

John Tyler Hwy

Centerville Rd (Rte 614)

Ironbound Rd (Rte 615)

8,033

10,000

John Tyler Hwy

Ironbound Rd (Rte 615)

Stanley Dr (Rte 712)

10,663

15,000

John Tyler Hwy

Stanley Dr (Rte 712)

Route 199

17,546

20,000

Longhill Connector Rd

Longhill Rd (Rte 612)

Ironbound Rd

9,664

18,000

Longhill Rd

Centerville Rd (Rte 614)

Olde Towne Rd (Rte 658)

6,577

12,000 21,000

Longhill Rd

Olde Towne Rd (Rte 658)

Route 199

16,087

Longhill Rd

Route 199

Longhill Connector Rd

20,000

30,000

Merrimac Trail

Newport News CL @ I-64

York CL (South Of Grove Int)

10,021

30,000

Merrimac Trail

York CL @ Route 199

Penniman Rd (York CL)

16,342

29,000

Monticello Ave

John Tyler Hwy

Centerville Rd (Rte 614)

4,574

10,000

Monticello Ave

Centerville Rd (Rte 614)

News Rd

11,395

12,000

Monticello Ave

News Rd

Route 199

41,348

45,000

Monticello Ave

Route 199

Ironbound Rd (Rte 615)

24,179

29,000

Old Stage Rd

New Kent CL

Barnes Rd (Rte 601 S)

9,512

12,000

Old Stage Rd

Barnes Rd (Rte 601 S)

I-64

9,512

26,000

Olde Towne Rd

Longhill Rd

Richmond Rd

8,378

18,000

Pocahontas Trail

Williamsburg CL

York CL @ Route 199

8,165

18,000

Pocahontas Trail

York CL

BASF Rd

9,243

20,000

Pocahontas Trail

BASF Rd

Newport News CL

11,499

25,000

Richmond Rd

Route 199

Olde Towne Rd (Rte 658)

15,206

35,000

Richmond Rd

Olde Towne Rd (Rte 658)

Williamsburg CL

23,783

46,000

Rochambeau Dr

Route 60

0.7 Mi East Of Ashington Way

7,164

11,000

Rochambeau Dr

0.7 Mi East Of Ashington Way

Croaker Rd (Rte 607)

7,164

11,000

Route 199 EB

York CL

Richmond Rd (Route 60)

Route 199 WB

York CL

Richmond Rd (Route 60)

27,033

34,000

Route 199 EB

Richmond Rd (Route 60)

Longhill Rd (Rte 612)

Route 199 WB

Richmond Rd (Route 60)

Longhill Rd (Rte 612)

23,523

40,000

Route 199 EB

Longhill Rd (Rte 612)

Monticello Ave (Rte 321)

Route 199 WB

Longhill Rd (Rte 612)

Monticello Ave (Rte 321)

29,041

41,000

Route 199 EB

Monticello Ave (Rte 321)

John Tyler Hwy (Rte 5)

Route 199 WB

Monticello Ave (Rte 321)

John Tyler Hwy (Rte 5)

27,515

38,000

2010 PM 2034 PM Peak Hour Peak Hour LOS LOS

Table 8 – Current and 2034 Weekday Traffic Volumes and PM Peak Hour Levels-of Service Data sources: VDOT, HRTPO.

JamesCity/Williamsburg/York City/Williamsburg/York Transportation Study James Transportation Study

A-C A-C A-C A-C A-C A-C D A-C A-C A-C A-C A-C A-C A-C A-C A-C D E D A-C A-C A-C A-C A-C A-C A-C A-C A-C A-C A-C A-C A-C A-C F A-C A-C A-C A-C A-C F A-C D A-C A-C A-C A-C A-C A-C A-C A-C D A-C A-C A-C A-C A-C A-C A-C A-C

A-C A-C A-C A-C A-C D E A-C A-C E A-C D D D E F F F A-C A-C D A-C D F A-C A-C A-C A-C A-C A-C A-C F A-C F E E A-C D A-C F D E A-C F A-C A-C F A-C D A-C E A-C A-C A-C A-C A-C A-C A-C A-C

York County

Williamsburg

James City County

Future Conditions - Highway

29 Most Recent Weekday Volume

2034 Weekday Volume

Facility

Segment From

Segment To

Route 199

John Tyler Hwy (Rte 5)

Williamsburg CL

36,498

49,000

Route 199

Williamsburg CL

Henry St/Colonial Pkwy

34,542

51,000

Route 199

Henry St/Colonial Pkwy

Mounts Bay Rd/Quarterpath Rd

33,078

57,000

Route 199

Mounts Bay Rd/Quarterpath Rd

Rte 60/Rte 143/York CL

31,169

57,000

Route 60

New Kent CL

Route 30

5,861

11,000

Route 60

Route 30

Croaker Rd (Rte 607)

13,792

32,000

Route 60

Croaker Rd (Rte 607)

Lightfoot Rd (Rte 646)

21,419

49,000

Route 60

Lightfoot Rd (Rte 646)

Centerville Rd (Rte 614)

21,419

49,000

Route 60

Centerville Rd (Rte 614)

Route 199

26,430

57,000

Strawberry Plains Rd

John Tyler Hwy/Route 199

Ironbound Rd

8,048

11,000

Boundary St

Jamestown Rd

Francis St

12,532

17,000

Bypass Rd

Richmond Rd

York CL

26,802

36,000

Bypass Rd

Route 132/York CL

Page St

15,868

30,000

Capitol Landing Rd

Bypass Rd

Merrimac Trail

6,754

11,000

Colonial Natl Hist Pkwy

James City CL/Rte 199

York CL

2,919

15,000

Francis St

Boundary St

Henry St

8,917

15,000

Henry St S.

Route 199

Francis St

3,801

7,000

Henry St

Francis St

Lafayette St

5,803

9,000 13,000

Henry St N.

Lafayette St

Rte 132Y

6,853

Ironbound Rd

James City CL

Longhill Connector Rd

11,023

12,000

Ironbound Rd

Longhill Connector Rd

Longhill Rd

9,913

14,000

Ironbound Rd

Longhill Rd

Richmond Rd

15,292

19,000

Jamestown Rd

James City CL

Route 199

17,349

23,000

Jamestown Rd

Route 199

John Tyler Ln

11,994

13,000

Jamestown Rd

John Tyler Ln

College Creek

13,820

18,000

Jamestown Rd

College Creek

Boundary St

13,820

18,000

Lafayette St

Richmond Rd

Henry St

9,835

18,000

Lafayette St

Henry St

Capitol Landing Rd

10,151

16,000

Lafayette St

Capitol Landing Rd

Page St

8,263

13,000

Merrimac Trail

York CL (South)

Capitol Landing Rd

7,217

13,000

Merrimac Trail

Capitol Landing Rd

York CL (North)

9,445

15,000

Monticello Ave

Ironbound Rd

Richmond Rd

17,074

26,000

Page St

Bypass Rd

Second St

15,332

32,000

Page St

Second St

York St

15,804

35,000

Quarterpath Rd

Route 199

York St

595

-

Richmond Rd

James City CL

Ironbound Rd

23,783

33,000

Richmond Rd

Ironbound Rd

Bypass Rd

25,987

45,000

Richmond Rd

Bypass Rd

Monticello Ave

19,001

28,000

Richmond Rd

Monticello Ave

Brooks St

13,511

19,000

Richmond Rd

Brooks St

Boundary St

13,511

21,000

Route 132

Route 132Y

Bypass Rd/York CL

10,116

16,000

Route 132Y

Route 132

Colonial Pkwy

6,115

13,000

Route 199

James City CL (West)

Jamestown Rd

36,498

49,000

Route 199

Jamestown Rd

James City CL (East)

36,180

49,000

Second St

Page St

York CL

15,123

24,000

Treyburn Dr

Monticello Ave

Ironbound Rd

3,000

8,000

York St

Page St

James City CL

13,385

20,000

Ballard St

Colonial Pkwy

Cook Rd

5,899

14,000

Ballard St

Cook Rd

Coast Guard Training Center

2,430

10,000

Big Bethel Rd

Hampton CL

Hampton Hwy (Rte 134)

9,444

18,000

Big Bethel Rd

Hampton Hwy (Rte 134)

Victory Blvd (Rte 171)

4,971

11,000

Bypass Rd

Williamsburg CL

Waller Mill Rd

26,802

43,000

Bypass Rd

Waller Mill Rd

Route 132/Williamsburg CL

26,802

43,000

Colonial Natl Hist Pkwy

Williamsburg CL

Ballard St

6,218

16,000

Cook Rd

George Washington Hwy

Goosley Rd

6,368

18,000

Cook Rd

Goosley Rd

Ballard St

6,900

19,000

Denbigh Blvd

Newport News CL

Route 17

16,203

18,000

2010 PM 2034 PM Peak Hour Peak Hour LOS LOS

A-C A-C A-C A-C A-C A-C A-C A-C A-C A-C

F F F F A-C A-C A-C F F D

D A-C A-C A-C A-C D A-C D A-C A-C D A-C A-C A-C A-C E D D D A-C A-C D A-C A-C A-C A-C A-C D D D A-C A-C A-C A-C A-C A-C D

E A-C A-C A-C A-C F A-C D D A-C D D A-C A-C A-C F F E D A-C A-C F D D D F D F F A-C D F F A-C D D

D D A-C A-C A-C A-C D A-C A-C E

F F F A-C A-C A-C F F F E

Table 8 (Continued) – Current and 2034 Weekday Traffic Volumes and PM Peak Hour Levels-of Service Data sources: VDOT, HRTPO.

JamesCity/Williamsburg/York City/Williamsburg/York Transportation Study James Transportation Study

York County

Future Conditions - Highway

30 Most Recent Weekday Volume

2034 Weekday Volume

Facility

Segment From

Segment To

East Yorktown Rd

Victory Blvd

Poquoson CL

5,585

11,000

Fort Eustis Blvd

Newport News CL

Route 17

18,188

37,000

Fort Eustis Blvd Ext

Route 17

Old York - Hampton Hwy

5,000

20,000

George Washington Hwy

Newport News CL

Victory Blvd (Rte 171)

38,983

49,000

George Washington Hwy

Victory Blvd (Rte 171)

Hampton Hwy (Rte 134)

42,347

52,000

George Washington Hwy

Hampton Hwy (Rte 134)

Dare Rd

54,914

87,000

George Washington Hwy

Dare Rd

Denbigh Blvd (Rte 173)

39,235

71,000

George Washington Hwy

Denbigh Blvd (Rte 173)

Fort Eustis Blvd (Rte 105)

39,111

55,000

George Washington Hwy

Fort Eustis Blvd (Rte 105)

Cook Rd

38,988

61,000

George Washington Hwy

Cook Rd

Goosley Rd (Rte 238)

29,384

61,000

George Washington Hwy

Goosley Rd (Rte 238)

Gloucester CL (Coleman Bridge)

34,117

59,000

Goodwin Neck Rd

Route 17

Wolf Trap Rd

9,318

15,000

Goosley Rd

Old Williamsburg Rd

Crawford Rd

6,878

8,000

Goosley Rd

Crawford Rd

Route 17

6,878

12,000

Goosley Rd

Route 17

Cook Rd

1,690

7,000

Hampton Hwy

Route 17

Victory Blvd (Rte 171)

21,178

43,000

Hampton Hwy

Victory Blvd (Rte 171)

Big Bethel Rd (Rte 600)

29,041

42,000

Hampton Hwy

Big Bethel Rd (Rte 600)

Hampton CL

27,101

36,000

I-64 EB

James City CL

Route 199/646

I-64 WB

James City CL

Route 199/646

58,252

100,000

I-64 EB

Route 199/646

Route 143

I-64 WB

Route 199/646

Route 143

56,909

87,000

I-64 EB

Route 143

Route 199 (East of Williamsburg)

I-64 WB

Route 143

Route 199 (East of Williamsburg)

65,349

88,000

I-64 EB

Route 199 (East of Williamsburg)

Grove Connector

I-64 WB

Route 199 (East of Williamsburg)

Grove Connector

83,621

111,000

I-64 EB

Grove Connector

James City CL

I-64 WB

Grove Connector

James City CL

87,885

116,000 30,000

Merrimac Trail

James City CL

Busch Gardens Interchange

10,021

Merrimac Trail

Busch Gardens Interchange

Route 199/James City CL

14,675

39,000

Merrimac Trail

Penniman Rd/James City CL

Second St

16,543

23,000

Merrimac Trail

Second St

Williamsburg CL

7,936

13,000

Merrimac Trail

Williamsburg CL

Route 132

9,226

15,000

Mooretown Rd

Waller Mill Rd

Airport Rd

6,289

12,000

Mooretown Rd

Airport Rd

Old Mooretown Rd

9,283

15,000

Mooretown Rd

Old Mooretown Rd

Route 199

20,000

25,000

Newman Rd

I-64

Fenton Mill Rd

2,859

14,000

Old Williamsburg Rd

Newport News CL

Baptist Rd/Main Rd

11,158

15,000

Old Williamsburg Rd

Baptist Rd/Main Rd

Goosley Rd

9,833

14,000

Penniman Rd (Rte 641)

Route 199

Colonial Pkwy

5,479

11,000

Pocahontas Trail

James City CL @ Route 199

Kingsmill Rd

8,600

43,000

Pocahontas Trail

Kingsmill Rd

Busch Gardens Interchange

11,980

43,000

Pocahontas Trail

Busch Gardens Interchange

James City CL

11,459

27,000

Route 132

Bypass Rd/Williamsburg CL

Route 143

11,135

13,000

Route 143

Route 132

I-64

19,138

27,000

Route 199 EB

James City CL (Westside)

Mooretown Rd

Route 199 WB

James City CL (Westside)

Mooretown Rd

27,033

34,000

Route 199 EB

Mooretown Rd

I-64

Route 199 WB

Mooretown Rd

I-64

29,588

39,000

Route 199

Rte 60/Rte 143/James City Line

I-64

30,753

60,000

Route 199

I-64

Marquis Pkwy

20,012

31,000

Route 199

Marquis Pkwy

Penniman Rd (Rte 641)

9,598

23,000

Second St

Williamsburg CL

Merrimac Trail

15,123

24,000

Victory Blvd

Newport News CL

Route 17

52,998

65,000

Victory Blvd

Route 17

Hampton Hwy (Rte 134)

33,648

41,000

Victory Blvd

Hampton Hwy (Rte 134)

Big Bethel Rd (Rte 600)

20,304

26,000

Victory Blvd

Big Bethel Rd (Rte 600)

Carys Chapel Rd (Rte 782)

21,568

27,000

Victory Blvd

Carys Chapel Rd (Rte 782)

Poquoson CL

13,315

14,000

Waller Mill Rd

Route 60

Mooretown Rd

4,634

18,000

2010 PM 2034 PM Peak Hour Peak Hour LOS LOS

A-C E A-C A-C D F A-C A-C A-C A-C F A-C A-C A-C A-C A-C A-C A-C A-C A-C A-C A-C A-C D D D D E A-C A-C A-C A-C A-C A-C A-C A-C A-C A-C A-C A-C A-C A-C A-C D A-C A-C A-C A-C A-C A-C A-C A-C A-C D D F F A-C A-C

D A-C A-C E F F D F F F F A-C D F A-C A-C F F E F D E D E F F F F F F A-C A-C A-C A-C D A-C E F F D F F F D A-C A-C A-C A-C A-C F A-C A-C D F F F F A-C A-C

Table 8 (Continued) – Current and 2034 Weekday Traffic Volumes and PM Peak Hour Levels-of Service Data sources: VDOT, HRTPO.

JamesCity/Williamsburg/York City/Williamsburg/York Transportation Study James Transportation Study

Future Conditions - Highway

31

Unfunded Projects As stated in the previous section, much of the roadway network in the study area is projected to be congested in 2034. Many transportation projects are needed in addition to the three included in the 2034 Hampton Roads Long-Range Transportation Plan to alleviate this congestion. As part of the 2034 LRTP process, over 150 candidate projects throughout the region were analyzed. The candidate projects in the study area that were not included in the final 2034 Long-Range Transportation Plan are shown in orange in Map 8. Each of these seven corridors is also described in detail on the following pages.

It should be noted, however, that many areas in James City County, Williamsburg, and York County are unique both to the region and the nation. These areas are historical, educational, or recreational in nature. Many of the roadways that are expected to be congested in 2034 are located in these areas and could not be widened without severely impacting the character of these areas. Examples of these roadways include the Colonial Parkway, Lafayette Street through Downtown Williamsburg, Jamestown Road and Richmond Road around the William & Mary Campus, Jamestown Road in James City County, and Cook Road and Ballard Street in the area around the Yorktown Battlefield.

N

Studies included in 2034 LRTP 4 Croaker Rd 5 I-64 6 Longhill Rd 7 Route 60 Relocation 8 Skiffes Creek Connector

4

5/10

12

Projects included in 2034 LRTP 1 Fort Eustis Blvd 2 George Washington Hwy 3 Ironbound Rd

Candidate Projects Not Funded in 2034 LRTP 9 George Washington Hwy 10 I-64 11 Ironbound Rd 12 Mooretown Rd 13 Route 60 Relocation 14 Skiffes Creek Connector 15 Victory Blvd

6 11 3

8/14 7/13

9 1 2

15

Map 8 – Projects/Studies Included in the 2034 LRTP and Candidate Projects Not Funded in the 2034 LRTP Data Source: HRTPO.

JamesCity/Williamsburg/York City/Williamsburg/York Transportation Study James Transportation Study

Future Conditions - Highway 

32

George Washington Memorial Highway (Newport News City Line to Hampton Highway and Denbigh Boulevard to Coleman Bridge) - This unfunded project would widen George Washington Memorial Highway (Route 17) from four to six lanes in those sections throughout York County that are not included in the 2034 Long-Range Transportation Plan.

George Washington Memorial Highway is not only the most heavily-traveled arterial in the study area but also provides the only direct link between the Middle Peninsula (including Gloucester) and Hampton Roads. George Washington Memorial Highway is currently congested during the PM Peak Hour between Hampton Highway and Dare Road, and at the Coleman Bridge. By 2034, traffic volumes in most sections of this corridor are expected to grow by more than 50%, and nearly the entire length of George Washington Memorial Highway in York County is expected to operate at severely congested levels during the PM Peak Hour.

Widening George Washington Memorial Highway would be expected to relieve much of this congestion and improve traffic flow in this area of York County.

HRTPO

George Washington Memorial Highway

Two segments of George Washington Memorial Highway were included in the 2034 Long-Range Transportation Plan for construction. The section from Hampton Highway to Wolf Trap Road (which is just to the north of Dare Road, the segment break in the Project Prioritization Process) is included in both the 2034 LRTP and is also fully funded in the current Six-Year Improvement Program and Transportation Improvement Program.

The section immediately to the north, between Wolf Trap Road and Denbigh Boulevard, is included in the 2034 LRTP but is not currently funded in the SYIP. These two segments account for $68 million of the estimated $164 million cost to widen George Washington Memorial Highway from four to six lanes throughout York County. Another $96 million is required to complete the additional needed projects in this corridor.

The George Washington Memorial Highway project was broken down into six segments for the 2034 LRTP Project Prioritization Process.

These six segments, from south to north, are shown below in Table 9. Each of these segments ranked in the top third among the 113 candidate highway projects in the 2034 LRTP Project Prioritization Process.

Estimated Construction Cost

2034 LRTP Project Prioritization Rank

Status

$15.3 million

#29 of 113

Not in LRTP

Segment

Segment Length

2034 Projected Weekday Volumes

Newport News CL to Victory Blvd

1.20 miles

49,000

Victory Blvd to Hampton Hwy

0.64 miles

52,000

$12.4 million

#33 of 113

Not in LRTP

Hampton Hwy to Dare Rd

2.78 miles

87,000

$59.5 million

#1 of 113

In SYIP/TIP/LRTP

Dare Rd to Denbigh Blvd

0.67 miles

71,000

$8.1 million

#13 of 113

In LRTP only

Denbigh Blvd to Fort Eustis Blvd

1.38 miles

55,000

$17.2 million

#29 of 113

Not in LRTP

Fort Eustis Blvd to Coleman Bridge

4.03 miles

59,000

$51.4 million

#35 of 113

Not in LRTP

Total = $164 million

Table 9 – Segments of George Washington Memorial Highway in York County Analyzed in the 2034 LRTP Project Prioritization Process Data Sources: VDOT, HRTPO.

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Future Conditions - Highway 

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I-64 (Newport News City Line to New Kent County Line) - This unfunded project involves widening I-64 throughout the study area from two lanes in each direction to three general purpose lanes plus a High Occupancy Vehicle lane.

I-64 is a critical link between Hampton Roads and the rest of the state and country, not only for residents but for tourists, freight movement, and the military as well. In the study area, I-64 is currently congested between the Newport News City Line and the Busch Gardens/Grove Interchange during the PM Peak Hour. Weekday traffic volumes on I-64 in the study area are expected to increase from 49,000-88,000 vehicles per day today up to 73,000-116,000 vehicles per day by 2034.

This increase will cause nearly the entire length of I-64 in the study area to operate at severely congested levels during the PM Peak Hour in 2034.

HRTPO

I-64 at Croaker Road

For the 2034 LRTP Project Prioritization Process, this corridor was broken down into two segments. The eastern 13-mile segment spans from Newport News near the Jefferson Avenue Interchange (Exit 255) to the Route 199 Interchange (Exit 242) southeast of Williamsburg. The western 18-mile section continues from Route 199 up to the New Kent County Line.

VDOT estimates that the cost of the eastern portion of the project from Jefferson Avenue in Newport News to Route 199/Exit 242 is $779 million. Among 113 highway projects throughout the region evaluated in the 2034 LRTP Project Prioritization Process, this segment ranked 6th. The western section of this project from Route 199 up to the New Kent County Line is estimated by VDOT to cost $1.1 billion. In the 2034 LRTP Project Prioritization Process, this segment ranked 24th among the 113 highway projects.

Although not included for construction in the 2034 LRTP, I-64 between Fort Eustis Boulevard and Route 199 was included as one of four Unfunded Projects for Future

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Consideration in the plan. According to the HRTPO, these projects — which also include I-64 in Chesapeake, the I-64/Fort Eustis Boulevard Interchange, and the I-64/I-264 Interchange — should be the first projects considered for funding if additional transportation funds become available to the region.

VDOT and FHWA have initiated a study of the I-64 corridor from I-95 in Richmond to I664 in Hampton. This study, at a cost of $3 million, will identify transportation needs within the I-64 corridor and evaluate the impacts of proposed improvements. As part of this process a Final Environmental Impact Statement will be issued.

This study is expected to be completed in early 2014. More information on this study is available at http://virginiadot.org/projects/hamptonroads/i64_peninsula_study.asp.

This project would be expected to provide many benefits in addition to relieving this congestion, including improved hurricane evacuations, additional opportunities for economic development through the region, and better ingress and egress for the military.

Future Conditions - Highway 

Ironbound Road (Longhill Connector Road to Richmond Road) - This unfunded project involves widening Ironbound Road from two to three lanes between Longhill Connector Road and Richmond Road.

This project would increase the capacity and safety of the roadway by improving lane configurations and creating additional turn lanes.

Mixed-use developments have been constructed in the Ironbound Road corridor in recent years, including the High Street and New Town developments.

Roadway improvements serving these areas have also been planned in recent years. Ironbound Road immediately to the southwest of this segment is currently under construction.

Williamsburg has recently completed a transportation study of Ironbound Road from Treyburn Drive to Richmond Road. This study determined the most feasible and cost effective lane configuration, which includes widening the roadway from two to three lanes and providing an additional turn lane at the Richmond Road approach.

The City of Williamsburg has allocated funds to pay for improvements on this section of roadway.

This project is the City’s top priority for use of its VDOT Urban Allocation funds, and other funds as they may come available.



34

HRTPO

Ironbound Road Construction The Mooretown Road Extended project would create a roadway parallel to Richmond Road (Route 60). Richmond Road is prone to flooding, and the section of Richmond Road between Route 199 and Lightfoot Road is expected to operate at severely congested levels by 2034.

Mooretown Road Extended would also provide access to undeveloped areas in James City and York Counties. These undeveloped areas are designated in both counties' Comprehensive Plans as Economic Opportunity areas, with the potential for large mixed-use developments. Access to these areas, however, is currently limited due to the location of the CSX Railroad as well as a number of environmentally sensitive areas.

Cost estimates for the Ironbound Road project between Longhill Connector Road and Richmond Road are $3.5 million, and the project ranked 66th among 113 Hampton Roads highway projects in the 2034 LRTP Project Prioritization Process.

By 2034, Ironbound Road is expected to carry 14,00019,000 vehicles each weekday, up from 10,00015,000 in 2010.

VDOT estimates the cost of the Mooretown Road Extended project at $15.8 million. Based on modeling done for the 2034 LRTP, Mooretown Road Extended would be expected to carry 16,000 vehicles per weekday in 2034. This project ranked 77th among 113 Hampton Roads highway projects in the 2034 LRTP Project Prioritization Process.

Mooretown Road Extended (Lightfoot Road to Croaker Road) - This unfunded project involves constructing a new 2.8 mile, two-lane roadway between the current northern terminus of Mooretown Road at Lightfoot Road and Croaker Road near its intersection with Rochambeau Drive. The northern half of this corridor is located in James City County, with the southern half located in York County.

A transportation study of the Mooretown Road Extended corridor has been funded through Regional Surface Transportation Program (RSTP) funds, which are federal transportation funds that are apportioned to each region and are allocated by the HRTPO in Hampton Roads. This study, at a cost of $400,000, will determine the feasibility of the project as well as its environmental impacts. It is expected to be completed in 2012.

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Future Conditions - Highway 

35

Route 60 Relocation (Newport News City Line to Blow Flats Road) - This unfunded project involves relocating and widening Route 60 from near Fort Eustis Boulevard to Blow Flats Road in James City County. The northern portion of this new, four-lane roadway would be in James City County, with the southern portion located in Newport News.

Route 60, along with the parallel I-64 and Merrimac Trail, are all expected to be severely congested during the PM Peak Hour in 2034.

This project would not only be expected to relieve this congestion along Route 60, but also promote further commercial and industrial development in the vacant parcels around the GreenMount industrial area.

HRTPO

GreenMount Industrial Park

Based on modeling done for the 2034 LRTP, the Relocated Route 60 would be expected to carry 35,000 vehicles per weekday in 2034.

This project ranked 17th among 113 Hampton Roads highway projects in the 2034 LRTP Project Prioritization Process.

VDOT estimates the cost of the Route 60 Relocation project at $55 million, with the 2.2mile portion of the project within James City County costing $37 million. There is currently $3.0 million in RSTP funding allocated to the James City County portion of the project. At one point, there was $17.5 million in RSTP funding on this project. $10 million of this funding was transferred to the Skiffes Creek Connector project in 2011 and $4.5 million was reallocated to other projects at the request of James City County officials since the total amount of funding needed to construct the project was not available. 

Skiffes Creek Connector (Pocahontas Trail to Merrimac Trail) - This unfunded project involves constructing a new two-lane, 0.4-mile roadway between Pocahontas Trail and Merrimac Trail to the north of the GreenMount Industrial Park.

This new roadway would span the CSX Railroad, which currently has no crossings between Elmhurst Street near Yorktown Road and the Grove

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Interchange, a length of 4.5 miles. In addition to creating this additional rail crossing, the Skiffes Creek Connector would provide better access between Route 60, Route 143, I-64, and the GreenMount industrial area, which currently includes distribution centers for Walmart and Haynes Furniture. This would improve truck movement in the area, as well as make this section of James City County more attractive for industrial development.

VDOT estimates the cost of the Skiffes Creek Connector project at $35 million. $10 million is currently allocated to the project in the SYIP/TIP, all of which is the result of a transfer of RSTP funds from the Route 60 Relocation project as stated previously. An additional $10 million in RSTP funds for FY 2018 has been allocated to the project by the HRTPO Board in November 2011. This leaves the project $15 million short of being fully funded, which James City County officials hope to cover with future RSTP allocations.

Based on modeling done for the 2034 LRTP process, the Skiffes Creek Connector would be expected to carry 15,000 vehicles per day in 2034. This project ranked 98th among 113 Hampton Roads highway projects in the 2034 LRTP Project Prioritization Process.

A study to determine the feasibility of the Skiffes Creek Connector has also been funded with RSTP funds. This study, at a cost of $300,000, is expected to be completed in 2012.

Future Conditions - Highway 

36

Victory Boulevard (George Washington Memorial Highway to Poquoson City Line) This unfunded project involves widening Victory Boulevard from five to six lanes between George Washington Memorial Highway and Hampton Highway, and from two to four lanes between Hampton Highway and the Poquoson City Line.

Victory Boulevard is currently congested during the PM Peak Hour between Hampton Highway and Cary's Chapel Road/East Yorktown Road. By 2034, the entire length of Victory Boulevard in York County is expected to be severely congested during the PM Peak Hour.

This project would not only be expected to relieve this congestion, but also improve one of the only two access points to the City of Poquoson.

HRTPO

Victory Boulevard

VDOT estimates that widening Victory Boulevard between George Washington Memorial Highway and Hampton Highway would cost $4 million, and widening the section between Hampton Highway and the Poquoson City Line would cost $26 million.

The right-of-way is available along this corridor for this unfunded widening project.

The section of Victory Boulevard between George Washington Memorial Highway and Hampton Highway, which is expected to carry 41,000 vehicles each weekday in 2034, ranked 53rd among 113 Hampton Roads highway projects in the 2034 LRTP Project Prioritization Process. The section between Hampton Highway and the Poquoson City Line, which is expected to carry 27,000 vehicles each weekday in 2034, ranked 35th.

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Future Conditions - Public Transportation

37

PUBLIC TRANSPORTATION Other Contracted Services 3%

The vision for future public transportation services in James City County, Williamsburg, and York County will largely be driven by regional plans such as WATA's Transit Development Plan and the Hampton Roads Regional Transit Vision Plan.

Implementing the services envisioned in these plans, however, will be limited by funding availability.

All Other Sources 2%

Colonial Williamsburg Contracted Services 24%

Federal 35%

Funding Funding for public transportation is provided by a variety of sources. For WATA, like many other transit agencies, these sources include fare box revenues; federal, state, and local grants and contributions; and contracted services. Combined, these revenue sources provided WATA with $7.4 million in funding in Fiscal Year 2012. WATA's primary sources of revenue are federal grants (which include Congestion Mitigation and Air Quality or CMAQ funds), contracted services (primarily from the Colonial Williamsburg Foundation), and state grants and contributions (Figure 11).

Local contributions are the fourth largest source of revenues for WATA, providing 14% of WATA's total revenues in Fiscal Year 2012.

These local contributions help pay for the operations and maintenance costs associated with running each transit route. James City County is providing the highest level of local contributions among the three localities at $481,158 in FY 2012 (Figure 12).

Williamsburg and York County are contributing $265,000 and $272,878 to WATA respectively. These annual contributions from James City County, Williamsburg, and York County have remained unchanged since Fiscal Year 2008.

Fare box Revenue 5%

Local 14%

State 17%

Figure 11 – WATA Revenues by Source, FY 2012 Source: WATA.

York $272,878

James City $481,158

Williamsburg $265,000

Surry & Newport News $50,000

Figure 12 – WATA Locality Revenues, FY 2012 Source: WATA.

The current SYIP/TIP includes $10.6 million in funding for upcoming specific service and capital improvements on WATA's system, most of which are financed with CMAQ funds. Of this total, $2.9 million was allocated in past years, with the remaining $7.7 million being allocated in the current and future fiscal years (FY 2012-2017).

These improvements are included in WATA's Transit Development Plan, as described in the next section.

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Future Conditions - Public Transportation

38

Transit Development Plan Transit Development Plans (TDPs) are documents that identify the needs and resources required to enhance and modify public transportation services.

They provide a guide for transit operators to assist with their planning, funding, and transit service implementation efforts. TDPs have been developed for public transportation agencies throughout the state with assistance from the Virginia Department of Rail and Public Transportation (DRPT). DRPT's goals for Transit Development Plans include:   



 

Serve as a management and policy document for the transit operator.

Provide DRPT with the information necessary for programming and planning requirements.

Provide a clear and up-to-date record of the transit operator's capital and operating budgets in order to assess the operator's financial capacity to carry out proposed levels of service and capital improvements.

Provide the basis for inclusion of an operator's captial and operating programs in the Six-Year Improvement Program (SYIP), Statewide Transportation Improvement Program (STIP), Regional Transportation Improvement Program (TIP), and Long Range Transportation Plan (LRTP).

Maximize the investment of public funds and achieve the greatest possible public benefit.

Improve the efficiency and effectiveness of public transportation services in Virginia.

The Williamsburg Area Transit Authority Transit Development Plan: Fiscal Years 2010-2015 was completed in September 2009.

This TDP, which builds on an internal Strategic Plan that WATA officials completed in 2009, includes seven goals and objectives to accomplish over the timeframe of the TDP. These goals, which were developed in coordination with WATA staff, are: 

Expand WATA transit service customer and community needs.

to

WATA

Williamsburg Transportation Center





  



Complete the transition of the regional transit system into the Williamsburg Area Transit Authority to provide effective and efficient public transit service in the Williamsburg area.

Promote and implement green practices that reduce greenhouse emissions and mitigate traffic congestion.

Improve the customer's transit experience, integrating technology where applicable.

Develop and maintain an on-going performance monitoring program.

Improve coordination between transportation, land use, and economic development activities.

Continue to provide a safe and secure transit system.

To reach these goals, WATA's Transit Development Plan includes an evaluation of the existing system and service, an assessment of service and facility needs within WATA's footprint, a financial plan, and recommendations for service and capital improvements considered feasible over the six year period.

meet

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Future Conditions - Public Transportation

39

Service Improvements

route was extended in March 2010 to include Jamestown Road, providing additional service to the William & Mary campus. The hours of operation of the Williamsburg Trolley have also been extended. Originally, the trolley operated from 3 to 10 pm on Monday through Thursday, 3 to 11 pm on Friday and Saturday, and Noon to 8 pm on Sundays. The current hours of operation for the trolley are Noon to 11 pm on Monday through Thursday, Noon to 1 am on Friday and Saturday, and Noon to 8 pm on Sunday.

The TDP builds on recent service improvements that have been made by the Williamsburg Area Transit Authority. These improvements include extending service later in the evening and adding Sunday service in 2008, increasing frequency in the middle of the day on certain transit lines from 60-minute service to 30-minute service in 2009, and implementing new services such as the Surry County Connection.

WATA's Transit Development Plan includes various recommendations for additional service improvements. It recommends five transit routes, including the Williamsburg Trolley which has already been implemented.

The other routes proposed in the TDP are the Jamestown Route, Quarterpath Route, Newport News Connection, and New Kent Connection. These routes are described in detail below: 

Williamsburg Trolley - WATA provides transit service on the Williamsburg Trolley between Colonial Williamsburg, Merchants Square, the College of William & Mary, and the new mixed-use developments High Street and New Town (Figure 13). Per its name, this service is provided on replica trolley buses that aim to be more attractive to users than typical buses. The service, which is provided on a fifteen minute basis, is geared toward area residents, visitors and William & Mary students, the latter accounting for 59% of all trolley riders in September 2011.

WATA

Williamsburg Trolley

WATA began operating the Williamsburg Trolley in August 2009.

Funding for the Williamsburg Trolley service was obtained from multiple sources.

WATA purchased three trolley vehicles for the service from Flexible STP funds, and obtained CMAQ funding to pay for the first three years of operations on the route.

Changes have been made to the Williamsburg Trolley service since the route began operation. The trolley

Figure 13 – Williamsburg Trolley Route Map Source: WATA.

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Future Conditions - Public Transportation

5,000

Monthly Ridership

In spite of these changes to the route and hours of operation, ridership on the Williamsburg Trolley has only increased slightly (Figure 14). In 2010, 36,206 riders used the Williamsburg Trolley. At 100 riders each day, this is lower than the ridership levels on most of WATA's regular bus routes. Through the first nine months of 2011, 25,050 riders used the trolley, which is an increase of 1.4% from the first nine months of 2010. Commissioners on the Williamsburg Planning Commission have voiced their concern about the usage of the Williamsburg Trolley, and the impact that the current headways have on ridership levels.

40

4,500

2009

4,000

2010

3,500

2011

3,000 2,500 2,000 1,500 1,000 500 0

Figure 14 – Williamsburg Trolley Monthly Ridership Source: WATA.

Ridership levels on the Williamsburg Trolley have been the highest in the spring and fall, when regular semester classes at William & Mary are in session. Nearly 35% of all ridership on the trolley in 2010 occurred in September, October, and November.

On January 3, 2012, WATA adjusted various fares throughout their system and created a pass program for regular users.

The Williamsburg Trolley was included in these fare adjustments, raising the round trip fares from 50 cents to $1.00. Disabled and senior fares are still half of the regular rate, and William & Mary students continue to ride the Williamsburg Trolley for free. William & Mary students instead pay a fee each semester for general services at the university that includes transit on the WATA system.

It is expected that the increase in fares will only have a small impact on trolley ridership levels, since William & Mary students will not be directly impacted by the fare increase.

WATA conducted a survey in June 2011 in which 73% of the respondents indicated that they would be willing to pay this increased fare to ride the Williamsburg Trolley.

Future funding has been allocated for replacement trolleys as the current trolleys near the end of their useful lives. The HRTPO

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allocated $432,000 in CMAQ funding to WATA for replacement trolleys in FY 2018.

WATA plans to request additional CMAQ funds in future years through FY 2024 for replacement trolleys.

Future Conditions - Public Transportation 

41

Jamestown Route - The Jamestown Route would provide transit service along the Jamestown Road and John Tyler Highway corridors of James City County and Williamsburg. The area along this route to the south and west of Route 199 is not served by public transportation service. A survey done for WATA in 2008 indicated that passengers preferred this area for transit expansion over all other areas within WATA's footprint.

WATA is considering using two distinct routes for the Jamestown service, tentatively known as the Silver Line and the Gold Line.

The Silver Line (Figure 15) would operate on the 180 weekdays throughout the year when public schools in the area are in session.

Service on the Silver Line would be provided between the Williamsburg Transportation Center, Jamestown Settlement, and Jamestown High School, which is currently the only secondary school in the Williamsburg-James City County (W-JCC) School District without public transportation service.

The Gold Line (Figure 16) would operate the remainder of the year, which includes weekends throughout the year and seven-daya-week service during the summer. The Gold Line would provide service between the Williamsburg Transportation Center, Colonial Williamsburg Visitor Center, Colonial Parkway, Jamestown Settlement, and Jamestown Island. The use of the Proposed Gold Line will be contingent on acceptance by the Colonial Williamsburg Foundation. The Gold Line service would provide more access to tourist attractions, whereas the Silver Line service would be oriented towards local residents and W-JCC students.

Figure 15 – Jamestown Route - Proposed Silver Line Data Source: WATA. Map Source: Google.

Figure 16 – Jamestown Route - Proposed Gold Line Data Source: WATA. Map Source: Google.

The Jamestown Route is fully funded for three years with a total of $823,500 in CMAQ funding, and WATA estimates ridership for the Jamestown Route would be approximately 30,000 passengers per year. WATA staff will be presenting its recommendations concerning this potential route to the WATA Board of Directors early in 2012. Particular attention is being given to the sustainability of the route,

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since WATA will need to obtain additional funding to continue this route beyond the three years of CMAQ funding.

Future Conditions - Public Transportation 

Quarterpath Route The Transit Development Plan recommends adding the Quarterpath route which would provide service between the Williamsburg Transportation Center, James City County Government Center, and the Marquis Shopping Center in York County (Figure 17).

The TDP recommends operating this service on an hourly basis Monday through Saturday, with expanded service if demand warrants it.

Estimates for the annual operating costs of the initial service are $259,500-$307,700 according to the TDP. WATA is considering instituting service, tentatively known as the Mounts Bay Route, that would provide bus service along the Route 199 portion of the Quarterpath Route.

The Mounts Bay Route would also provide service to the New Town development in James City County. This route should also provide access to the new Quarterpath at Williamsburg development, which will include the Riverside Doctors Hospital. There is currently $677,000 in regional CMAQ funding allocated to the Mounts Bay Route service in Fiscal Years 2014 and 2015. Based on this funding, WATA estimates that 43,000 passengers will use the Mounts Bay Route service annually.



42

Newport News Connection - The Newport News Connection would provide additional transit service between the Williamsburg Transportation Center and Patrick Henry Mall in Newport News (Figure 18).

Figure 17 – Quarterpath Route Source: WATA Transit Development Plan.

Figure 18 – Newport News Connection Route Source: WATA Transit Development Plan.

Hampton Roads Transit (HRT) currently provides express bus service between these two points. This service, however, is limited to four trips each day. Conventional bus service is also provided between these two points, but it requires a transfer between WATA and HRT buses at Lee Hall. Surveys have indicated the desire for more frequent service on this route.

The TDP proposes that WATA operate this service on an hourly basis seven days a week.

Estimates for the annual operating costs for

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the Newport News Connection are $615,500 according to the TDP. There is currently no funding allocated to this service.

Future Conditions - Public Transportation 

43

New Kent Connection - The New Kent Connection would provide service between Providence Forge in New Kent County and the Williamsburg Transportation Center (Figure 19). The TDP proposes operating this service initially every two hours Monday through Friday, with increased service as necessary.

Estimates for the initial annual operating costs for the New Kent Connection are $229,300 according to the TDP, with costs doubling to $458,600 if route frequency was increased to hourly service. There is currently no funding allocated to this service.

Figure 19 – New Kent Connection Route Source: WATA Transit Development Plan.

Reducing average headways from every three hours to every one and a half hours would cost an additional $247,400 in annual operating and maintenance costs according to the TDP.

WATA's Transit Development Plan also includes recommendations for service improvements to existing routes.

These additional service recommendations include: 



Later Service - WATA extended its hours of service until 8:00 pm (10:00 pm in summer) in 2008. The TDP recommends extending these hours further, providing service until 10:00 pm (Midnight in summer) on Mondays through Saturdays to accommodate workers in the tourism industry. According to the TDP, providing later service in the evening on existing routes would cost an additional $404,300 in annual operating and maintenance costs.

Additional Service Frequency - WATA increased service frequencies on the Blue, Tan, Orange, and Gray lines from 60 minute headways to 30 minute headways in 2009.

The TDP recommends increasing service frequency from 60 minutes to 30 minutes on the Red, Purple 1, and Purple 2 Lines. This would allow for better connections between routes in the WATA system. According to the TDP, increasing frequency on these routes would cost $108,600 in additional annual operating and maintenance costs.

The TDP also contains long range recommendations beyond its six year timeframe.

These recommendations include intercity passenger rail service, express service to the Richmond area, and future regional connections to Hampton, Charles City County, and Gloucester County.

Capital Improvements In addition to the service recommendations included in the previous section, WATA's Transit Development Plan includes a number of capital recommendations as well. These capital needs reflect investments in vehicles, technology, and infrastructure that are required to maintain and improve the operation of the WATA system. Key capital needs and recommendations listed in WATA's TDP are detailed below: 

The TDP also recommends increasing service frequency on the Surry County Connection, which connects The Town of Surry with the Williamsburg Transportation Center.

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Administrative Operations Center - One of WATA's largest capital needs is a new Administrative Operations Center.

This operations and maintenance facility would replace the existing leased facility on Pocahontas Trail that is undersized and nonADA accessible.

Future Conditions - Public Transportation

44 The HRTPO has also allocated $878,000 in FY 2018 CMAQ funds to replace Colonial Williamsburg Compressed Natural Gas buses.

The new Administrative Operations Center, which is included in the 2034 Hampton Roads Long-Range Transportation Plan, is estimated to cost $9 million. A feasibility study was completed for the facility in 2010 and funding has been allocated from Flexible Surface Transportation Program (Flexible STP) funds for preliminary engineering work. Recently, the HRTPO allocated $3.8 million in Regional Surface Transportation Program (RSTP) funding to the project, with the funding being available in FY 2018. 



o Body-on-Chassis Vehicles - WATA uses body-on-chassis vehicles to provide demand responsive paratransit service and fixed route service in rural areas. $130,000 was allocated in ARRA funds to replace two of these vehicles, with an additional $150,000 included in DRPT's Six-Year Improvement Program for FY 2012.

GPS/AVL Tracking System - This project will employ a Global Positioning System (GPS)/Automatic Vehicle Location (AVL) tracking system for WATA vehicles. The project, at a cost of $480,000, is fully funded with American Recovery and Reinvestment Act (ARRA) and RSTP funds. This system is expected to be implemented in 2012.

o Yorktown Trolley - The Yorktown Trolley provides service to tourist attractions in the vicinity of Yorktown Village. The HRTPO allocated $315,000 in CMAQ funding to replace the older of the two Yorktown Trolley vehicles. This replacement will likely occur in 2012.

Automated Fare/Passenger Collection Software - This upgraded software will allow WATA to introduce a multiple pass program starting in 2012, as well as improve reporting of passenger levels. The project, at a cost of $150,000, is fully funded with ARRA funds.

Purchasing buses for expanded service is also included in the Public Transportation section of the FY 2012-2017 SYIP, at a total cost of $3.2 million. 



Replacement and Expansion Vehicles WATA operates a variety of vehicle types, including heavy-duty buses, body-on-chassis vehicles, and trolleys. These vehicles should be replaced at the end of their useful lives to provide safe and reliable service and control maintenance costs. As transit routes are created or expanded, vehicles are needed to provide the additional service.

Funding has been allocated to replace many vehicles that WATA currently operates. These replacements include: o Heavy Duty Buses - The HRTPO allocated $6,103,000 in CMAQ funds to replace twelve heavy duty buses with more environmentally-friendly vehicles in FY 2012, 2014, and 2015, and four more bus replacements are funded with $3,208,000 in CMAQ funds in FY 2018.

Bus Shelters - The need for more bus shelters has been voiced at various stakeholder and public meetings. $80,000 in funding was allocated to bus shelters in ARRA, and the HRTPO allocated $300,000 in CMAQ funding to add a sheltered bus transfer center at Lee Hall for WATA and HRT.

A number of other capital needs are included in the TDP. These capital needs include administrative and operational support vehicles, lease costs for the Williamsburg Transportation Center and Williamsburg Outlet Mall locations, replacement bus stop signage, replacement bike racks, automated data processing system and software upgrades, and equipment and parts required for system maintenance. These capital needs are included in the Public Transportation section of the SYIP.

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Future Conditions - Public Transportation Transit Vision Plan The Virginia Department of Rail and Public Transportation, Hampton Roads Transit, and Williamsburg Area Transit Authority developed The Hampton Roads Regional Transit Vision Plan over the last two years. The Hampton Roads Transportation Planning Organization, its member localities, and the Hampton Roads Partnership also participated in this effort.

The purpose of Hampton Roads Regional Transit Vision Plan is to provide a concept for a regional rapid transit network that connects major employment and population centers in Hampton Roads.

This, in turn, will allow the region to advance transit enhancements in the future guided by a strategic regional plan.

This long-term framework for transit development includes a number of proposed corridors and projects. These projects — which include light rail, commuter rail, streetcar, enhanced bus service, express bus, bus rapid transit, and ferry — are grouped by time frame. Projects are classified as short range (today to 2015), mid range (2016-2025), long range (2026-2035), or extended range (2035+).

The Transit Vision Plan, which is available at http://www.drpt.virginia.gov/activities/files/Final_ Report_03-17-11.pdf, includes four corridors in the study area. They are Corridor 11 - Downtown Newport News to Williamsburg, Corridor 14 – Oyster Point to Gloucester, Corridor 15a – Oyster Point to Poquoson, and Corridor A - Downtown Newport News to Toano. These corridors are shown in Figures 20 and 21 on page 46.

Corridor 11: Downtown Newport News to Williamsburg Corridor 11 runs for 31 miles from Williamsburg to Downtown Newport News. Commuting demand in this corridor is high. According to the Transit Vision Plan, this is due to high employee transit demand in Williamsburg, high employment in both

45 Williamsburg and Newport News, a number of major activity centers along the corridor, and the availability of express bus service provided by Hampton Roads Transit between Williamsburg and Downtown Newport News (Route 121).

The Transit Vision Plan envisions expanding this express bus service along Corridor 11 in the short (today to 2015) and mid (2016-2025) ranges. This service could be provided as a MAX service by Hampton Roads Transit, which serves regional commuter trips with coach bus vehicles. The plan estimates that the capital costs for express bus service in this corridor are between $3.1 million and $4.8 million in 2009 dollars.

In the long range, the Transit Vision Plan recommends replacing express bus service between Williamsburg and Downtown Newport News with commuter rail along Corridor A.

Corridor 14: Oyster Point to Gloucester Corridor 14 runs through York County along the Route 17 corridor, between Oyster Point in Newport News and the Gloucester Courthouse area. The Transit Vision Plan envisions implementing express bus service along this corridor in the long range (2026-2035). The plan estimates that the capital costs for express bus service in this corridor are between $2.5 million and $4.0 million in 2009 dollars, and ridership would be 25 passengers per weekday.

Corridor 15a: Oyster Point to Poquoson Corridor 15a runs for 11 miles between Oyster Point in Newport News and Poquoson. In York County, Corridor 15a follows George Washington Memorial Highway and Victory Boulevard. The Transit Vision Plan envisions implementing express bus service along this corridor in the extended range (2035+).

The plan estimates that the capital costs for express bus service in this corridor are between $1.5 million and $2.3 million in 2009 dollars, and ridership would be 25 passengers per weekday.

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Future Conditions - Public Transportation

46

Corridor A: Downtown Newport News to Toano Corridor A follows the CSX corridor from Toano in the northern section of James City County to Downtown Newport News. The Transit Vision Plan recommends that commuter rail be operated along the CSX railway in this corridor in the long range (2026-2035), replacing the express bus service in Corridor 11 recommended above for the short (today to 2015) and mid (2016-2025) ranges.

Commuter rail, which is commonly used for trips that are from 20 to 60 miles in length, consists of heavy rail equipment such as diesel locomotives pulling multiple rail coach cars. One example of commuter rail service is the Virginia Railway Express (VRE) in Northern Virginia.

According to the Transit Vision Plan, commuter rail service should begin between Downtown Newport News and Williamsburg in the long range, with service being extended to Lightfoot and Toano in the extended range (2035+).

One reason for the extended time frame for this recommendation is the capacity problem created by commuter rail, Amtrak, and freight rail sharing the same corridor. This capacity issue would need to be addressed before implementing commuter rail in this corridor.

Figure 20 - Peninsula Transit Vision Plan Bus Network Recommendations Source: Hampton Roads Regional Transit Vision Plan.

In addition, the extension of this commuter rail line from Williamsburg to Lightfoot and Toano would be dependent on the land use patterns that emerge in this area. Both counties will need to develop a land use vision to support this service, according to the plan. The James City County and York County Comprehensive Plans designate the likely Lightfoot station location as an Economic Opportunity site, which allows for transit oriented uses such as high density mixed-use development.

The overall ridership for commuter rail in Corridor A is projected to be between 2,200 and 3,700 riders per weekday in 2034 according to the Transit Vision Plan, considered "medium" usage in the report. This ridership level covers the segment between Downtown Newport News and Lightfoot, as ridership on the segment between Lightfoot and Toano was not estimated as part of the study.

Figure 21 - Regional Transit Vision Plan Source: Hampton Roads Regional Transit Vision Plan.

2009 dollars), considered "high" according to the study. This capital cost does not include the cost for the segment from Lightfoot to Toano, which was also not estimated as part of the Transit Vision Plan.

The capital cost estimate for commuter rail in this corridor is between $201 million and $612 million (in

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Future Conditions - Intercity Passenger Rail

47

INTERCITY PASSENGER RAIL The Virginia Department of Rail and Public Transportation (DRPT) and Hampton Roads Transportation Planning Organization are cooperatively conducting studies to improve intercity passenger rail to the Hampton Roads region.

DRPT is investigating improved passenger rail service between Hampton Roads and Richmond as an extension of the Southeast High Speed Rail Corridor (SEHSR).

DRPT developed the Richmond/Hampton Roads Passenger Rail Project Tier I Draft Environmental Impact Statement (EIS), which recommends an additional round-trip train per day (for a total of three) at conventional speeds on the Peninsula, with higher speed rail service being established on the Southside from Norfolk to Richmond via Petersburg. The Draft EIS estimates that the additional train on the Peninsula would almost double the number of passengers in 2025, from 250,000 passengers per year up to 450,000 passengers per year. The Draft EIS has been submitted to the Federal Railroad Administration and is awaiting a Record of Decision. Updates on the Richmond/Hampton Roads Passenger Rail Project can be found online at http://www.rich2hrrail.info.

improvements a reality, the HRTPO Board retained a consultant specialized in passenger rail planning.

This has resulted in two preliminary studies — the Hampton Roads Passenger Rail Preliminary Vision Plan (Phase 1) and the Hampton Roads Passenger Rail Plan Blueprint Study (Phase 1B) — being completed to examine these improvements.

The HRTPO and the consultant, working with the DRPT, will continue to pursue the passenger rail vision plan for the region and study area in 2012.

More information on HRTPO's intercity passenger rail efforts is available at http://hrtpo.org/TPO_HSRIPR.asp.

DRPT is also studying replacing the existing Newport News Amtrak station with two stations in Newport News, one in the Downtown area and the other near Bland Boulevard. The proposed new station at Bland Boulevard would provide more convenient intercity passenger rail options to the southern portion of York County. Currently the station relocation project is in the preliminary engineering phase, with $20 million allocated to this project in current and future CMAQ and RSTP funding.

Expansion of intercity passenger rail is also a priority of the Hampton Roads Transportation Planning Organization.

The HRTPO Board approved a resolution in October 2009 supporting the Commonwealth's efforts to establish high-speed passenger rail service on the Southside and enhance the existing intercity passenger rail service on the Peninsula. In order to improve the region's potential for making these intercity passenger rail

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Future Conditions - Bicycle and Pedestrian Facilities

48

BICYCLE AND PEDESTRIAN FACILITIES As stated in the Current Conditions section of this report, bicycling and walking are popular modes of transportation and recreation in the study area.

Many non-motorized transportation facilities of varying types have been constructed in the study area in recent years, and there are currently over 100 miles of documented bikeway facilities in James City County, Williamsburg, and York County.

In addition, many of the rural low-volume roadways, particularly in northern James City and York Counties, are popular with recreational cyclists.

This section looks at bikeway and sidewalk projects included in the Six-Year Improvement Program and Transportation Improvement Program, the vision of the network provided by the Regional Bicycle Facilities Plan and officials in the area, and other issues impacting bicycle and pedestrian facilities.

Williamsburg Area Bicyclists

Virginia Capital Trail

SYIP/TIP Bicycle and Pedestrian Projects A number of proposed bicycle and pedestrian facilities in the study area are included in the SixYear Improvement Program (SYIP) and Transportation Improvement Program (TIP). These projects are shown in Table 10 and on Map 9 on page 49. These facilities range from small sidewalk and shoulder improvements to long multi-use paths along heavily traveled corridors.

In addition to these six projects, there are additional bicycle and pedestrian projects that have funds allocated in the SYIP/TIP. These projects are not shown, however, since they are not likely to be constructed for various reasons. Examples of these projects include bikeways on Airport Road, Cook Road, Longhill Road, and Route 60.

Bikeways In spite of the large existing bicycle facility network, officials in the study area have a vision for a much larger, complete system. This would not only provide further accommodation of people using bicycles as a means of transportation and recreation but also make the area more likely to become a destination for bicycling tourism. The Regional Bikeway Facilities Plan includes this vision of a complete regional bikeway network. This vision includes proposed multi-use paths, bike lanes, and shared roadways, as well as conceptual corridors.

Combined, these existing, proposed, and conceptual corridors comprise 400 miles of bike facilities in the study area.

The vision included in the Regional Bicycle Facilities Plan, however, will take many decades and millions of dollars to become a reality. In the shorter term, those projects in the Regional Bicycle Facilities Plan that address gaps in the existing system are a priority.

Officials in James City County, Projected Construction Start

Estimated Cost

Allocated Funding in SYIP/TIP

Jurisdiction

UPC

Project

JCC

91220

Construct Sidewalks - Richmond Road in Toano

2013

$84,000

$84,000

JCC

97214

Crossing Improvement at James River Elementary School

2012

$126,000

$126,000

YC

84484

Capitol Landing Rd Bikeway

$491,000

YC

94543

Construct Sidewalks - Hampton Hwy, Hubbard Ln, Commons Way

YC

84482

Lightfoot Rd Bikeway (PE/RW Only)

YC

101277

Paved Shoulder - Rochambeau Dr

2013

$491,000

Completed

$369,000

$375,000

-

$1,269,000

$184,000

2012

$40,000

$40,000

Table 10 – Bikeway and Sidewalk Projects Included in the Six-Year Improvement Program or Transportation Improvement Program

Data sources: VDOT, HRTPO. UPC is the Universal Project Code number. The Croaker Road bikeway project (UPC #17633) is included in the Programmed Roadway Projects section of this report with the Croaker Road widening project (UPC #100200).

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Future Conditions - Bicycle and Pedestrian Facilities

49 N

Map 9 SYIP/TIP Bike/Pedestrian Projects LEGEND Bikeway/Pedestrian Projects for Construction Bikeway/Pedestrian Projects for PE & R/W Only

91220 82961

84482

Universal Project Code

Sources: FY 2012-2017 Six-Year Improvement Program, FY 2012-2015 Transportation Improvement Program.

Prepared by HRTPO Staff, January 2012.

101277

84484

94543

94543

97214

94543

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Future Conditions - Bicycle and Pedestrian Facilities

50

Williamsburg, and York County are targeting those gaps in the existing bikeway system that, if completed, would best connect existing facilities and create an integrated system of bikeways throughout the study area.

pedestrian mobility in the study area. This is especially true southeast of Williamsburg, where there are no authorized crossings between Page Street in Williamsburg and Elmhurst Street in Newport News, a length of 8.5 miles.

As a result, bicyclists and pedestrians commonly walk across the tracks illegally along this segment.

Based on discussions with officials from James City County, Williamsburg, and York County, those projects in the Regional Bicycle Facilities Plan that are critical gaps in the existing system include: 



1 - Capitol Landing Road (Lafayette Street to Merrimac Trail) - This link would provide another connection between the bikeways on Lafayette Street and Merrimac Trail in Williamsburg.

One possible method of providing this facility would be to reduce the number of lanes on the northern section of Capitol Landing Road from 4 lanes to 3 lanes with bike lanes, and signing the southern 2 lane section as a shared facility. Current and future traffic volumes are low enough on the 4-lane section to not impact congestion levels.

2 - Cook Road (Surrender Road to Ballard Street) - This link would provide a more convenient connection between the Yorktown Village/Colonial Parkway and other National Park Service roadways in the Yorktown Battlefield. Combined with Surrender Road and existing bike lanes on Old York-Hampton Highway, this would also provide a connection to the Grafton area of York County. This narrow stretch of Cook Road, which spans between the Battlefield Visitor Center and the National Cemetery, is heavilyused by pedestrians and bicyclists.

Funding is allocated from the CMAQ program for bike lanes on Cook Road. This project, however, is unlikely to happen due to concerns from the National Park Service.

Instead, paved shoulders are planned for this section of Cook Road (as shown in the Programmed Roadway Projects section of this report), which will benefit both motorists and bicyclists.



Officials from the study area have discussed constructing a crossing for bicyclists and pedestrians between York Street in Williamsburg and Penniman Road in York County. The Regional Bicycle Facilities Plan includes a proposed multi-use path crossing the CSX Railroad in the area of Busch Gardens.

These crossings would require approval from CSX officials, and would not prevent many bicyclists and pedestrians from continuing to cross in unauthorized areas. 

4 - East Rochambeau Drive (Mooretown Road to Airport Road) - Many sections of East Rochambeau Drive in York County have bike lanes in place. This project would add bike lanes to the remaining two miles of East Rochambeau Drive, creating a continuous bike path between Mooretown Road and Route 143. Funding is included in the SYIP/TIP to complete 0.3 miles of this gap.



5 - Freedom Boulevard (Old York-Hampton Highway to Goodwin Neck Road) - This short link would connect two existing bike lanes and create a continuous bikeway between Seaford Road and Yorktown Battlefield, a length of six miles. Freedom Boulevard is located in an industrial area, and on-street parking is permitted. These two factors currently make Freedom Boulevard less conducive to bicycling.



6 - Ironbound Road (Strawberry Plains Road to Monticello Avenue) - Bicycling facilities are being added to Ironbound Road north of Monticello Avenue as part of the current widening project. Adding this link, when combined with the widening project, will connect bike facilities on Jamestown Road, John Tyler Lane and Strawberry Plains Road

3 - CSX Railroad Crossings - The CSX railroad creates a barrier to bicycle and

JamesCity/Williamsburg/York City/Williamsburg/York Transportation Study James Transportation Study

Future Conditions - Bicycle and Pedestrian Facilities with facilities along Longhill Road and Longhill Connector Road. 

7 - Ironbound Road (Longhill Connector Road to Longhill Road) - This link would connect existing bike facilities on Ironbound Road, Longhill Road, Longhill Connector Road, and Treyburn Drive. Although the Regional Bicycle Facilities Plan recommends bike lanes for this section, consideration should be given to a multi-use trail on Ironbound Road, which would connect to the existing multi-use trail along Longhill Connector Road. A multi-use trail along Ironbound Road is recommended in the City’s recently completed Ironbound Road Corridor Study.

51 

11 - Lightfoot Road/Richmond Road (Centerville Road to Old Mooretown Road) This corridor would connect the Centerville Road and Warhill Trail bikeways with the Old Mooretown Road bikeway. Although this project is important in filling in a critical gap, York County officials consider the bikeway cost-prohibitive based on a pre-scoping of the project completed by VDOT.



12 - Longhill Road (Centerville Road to Olde Towne Road) - This link would provide a bike facility from the Centerville Road and Warhill Trail bike facilities to ones entering Williamsburg. A study of the Longhill Road corridor, including this section, is included in the SYIP/TIP and 2034 LRTP.



8 - Ironbound Road/Sandy Bay Road (Jamestown Road to Monticello Avenue) This link would provide another connection between the Monticello Avenue and Jamestown Road bikeways, and would provide more convenient access to Mid County Park.



13 - Mooretown Road (Airport Road to Old Mooretown Road) - This facility would connect existing sections of bikeway on Mooretown Road and provide better access between Williamsburg and shopping areas in York County, as well as a connection to the Centerville Road bike lanes.



9 - Jamestown Road (Between Route 199 and John Tyler Lane) - This link would connect the Jamestown Road and Strawberry Plains Road bikeways to a multi-use trail across Route 199 that connects to Lake Powell Road.

This low-volume roadway provides access to many neighborhoods and the Colonial Parkway. This facility would also provide another crossing of Route 199. However, due to the turn lanes at the Route 199 intersection, there is no room in the existing pavement to add bike lanes. Adding this facility would require widening the roadway.





10 - Jamestown Road (Ukrop Way to Landrum Drive) - This short segment in front of the William & Mary campus would connect Downtown Williamsburg with the Jamestown Road and Strawberry Plains Road bike lanes.

On-street parking is permitted on this section of Jamestown Road, but it may be possible to modify the existing pavement markings to provide bike lanes with on-street parking on one side of the roadway.

14 - Quarterpath Road (Redoubt Park to Battery Boulevard) – This facility would connect to the existing multi-use trail on the west side of Quarterpath Road that runs between Redoubt Park and the Quarterpath Recreation Center. The existing section of Quarterpath Road would be closed to vehicular traffic and improved as a multi-use trail, preserving the historic and environmental character of the area. This facility would enable connections to bicycle and pedestrian facilities in the adjacent Quarterpath at Williamsburg development.

This facility could also be linked to the South England Street/Country Road facility mentioned on the next page, creating a scenic recreational loop.



15 - Richmond Road/Airport Road (Waltz Farm Drive to Mooretown Road) - This would provide a link between the Mooretown Road and Airport Road bikeways with the neighborhoods to the west of Richmond Road.

Low-volume roadways in these

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Future Conditions - Bicycle and Pedestrian Facilities

52

neighborhoods provide a convenient connection between Richmond Road and Longhill Road.

This facility would also improve the crossing of the CSX railroad for bicyclists. CMAQ funding has been allocated for a portion of this facility, although more funding would be needed for construction.

neighborhoods along the Victory Boulevard corridor, as well as provide better access to Tabb High School.









16 - Richmond Road and Old Stage Road (James City County) - Many of the rural lowvolume roadways in northern James City and York Counties are used by recreational cyclists.

However, travel between rural roadways is difficult where they intersect Richmond Road and Old Stage Road.

Providing bike accommodations along these two roads, which are designated for bike lanes in the Regional Bicycle Facilities Plan, would not only improve safety for recreational cyclists but also provide more convenient access to services used by these cyclists. Many sections of Richmond Road have wide shoulders, so improvements should be targeted to those areas in the corridor without shoulders.

17 - Route 143 (Williamsburg City Line to Route 132) - This short segment would connect Route 143 bikeways located in York County and Williamsburg. A portion of this gap is covered by project UPC #84484, which is fully funded for construction through CMAQ allocations.

18 - South England Street/Country Road This facility would establish an important recreational connection for cyclists and pedestrians between Colonial Williamsburg, the James City County Governmental Center and Kingsmill, utilizing the existing South England Street and a portion of the former Carters Grove Country Road. Creating this bikeway will require cooperation between James City County and Williamsburg, and would necessitate the acquisition of the Country Road from the Colonial Williamsburg Foundation.

19 - Victory Boulevard (North Bowman Terrace and East Yorktown Road) - This facility would connect existing bikeways and

Map 10 on page 54 shows the vision of the regional network included in the Regional Bicycle Facilities Plan, as well as those gaps in the existing network listed above that would best create an interconnected bikeway network throughout the study area.

James City County, Williamsburg, and York County officials should work with the Historic Triangle Bicycle Advisory Committee during their 2012 Comprehensive Plan Updates to review these critical gaps as well as the overall Regional Bicycle Facilities Plan.

Sidewalks Gaps in the bikeway system are not the only nonmotorized transportation concern in James City County, Williamsburg, and York County. As in many areas, gaps in the sidewalk network are also an issue in the study area.

Gaps are particularly prevalent on major roadways in the counties. Many important corridors in James City County and York County have gaps in their sidewalk networks, or do not have sidewalks at all.

Examples include sections of Ironbound Road, John Tyler Highway, Longhill Road, and Olde Towne Road in James City County, and George Washington Memorial Highway, Hampton Highway, Merrimac Trail, and Victory Boulevard in York County.

Williamsburg also has gaps in its sidewalk system, although these gaps are not as widespread as in the counties. Examples in Williamsburg include sections of Bypass Road, Compton Drive, Lafayette Street, and Monticello Avenue.

These gaps in each locality's sidewalk system are due, in part, to past roadway construction policies.

In 2004 VDOT changed its policies, publishing the Policy for Integrating Bicycle and Pedestrian Accommodations. This policy requires VDOT staff to "initiate all highway construction projects with the presumption that the projects shall accommodate bicycling and walking." In recent years, each

JamesCity/Williamsburg/York City/Williamsburg/York Transportation Study James Transportation Study

Future Conditions - Bicycle and Pedestrian Facilities locality's development policies have also been updated to require sidewalks.

These policies, however, will not fill those gaps in the sidewalk system where roadway construction or development will not occur in the foreseeable future.

As mentioned in the Current Conditions section of this report, each of these localities will continue to address deficiencies in their sidewalk networks through their Sidewalk Master Plans and Comprehensive Plans.

Maintenance Maintenance of bikeways and sidewalks is also an issue for the localities in the study area. Some sidewalks in older areas have fallen into disrepair, and some bikeways have narrowed due to vegetation growth and crumbling pavement. In many areas, bikeways are compromised by accumulations of sand, gravel and debris.

Per the Policy for Integrating Bicycle and Pedestrian Accommodations, VDOT will "maintain bicycle and pedestrian accommodations as necessary to keep the accommodations usable and accessible." Like roadways, however, this is dependent upon the amount of funding available for these efforts, both for VDOT and for cities.

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53

Future Conditions - Bicycle and Pedestrian Facilities

54 N

16

Map 10 Existing and Proposed Bikeways LEGEND Existing Bikeways

16

Existing National Park Service Roadways Proposed Multi-Use Path

11

12

4

Proposed Shared Roadway with Signage

13

Proposed Bike Lane Conceptual Corridors

15 7

1

6 10 9 8

Critical Gaps in Existing Bikeway Network

17

Proposed and Conceptual Corridors Source: Regional Bicycle Facilities Plan. Critical Gaps Source: James City County, Williamsburg, and York County officials.

3

Prepared by HRTPO Staff, January 2012.

14 3

18

2

Critical Gaps in Existing Bikeway Network 1 2 3 4 5 6 7 8 9 10

Capitol Landing Rd Cook Rd CSX Railroad Crossings East Rochambeau Dr Freedom Blvd Ironbound Rd Ironbound Rd Ironbound Rd/Sandy Bay Rd Jamestown Rd Jamestown Rd

James City/Williamsburg/York Transportation James City/Williamsburg/York Transportation Study Study

11 12 13 14 15 16 17 18 19

Lightfoot Rd/Richmond Rd Longhill Rd Mooretown Rd Quarterpath Rd Richmond Rd/Airport Rd Richmond Rd/Old Stage Rd Route 143 S. England St/Country Rd Victory Blvd

5

19

Future Conditions - Air Travel

55

AIR TRAVEL While there has not been much growth in passenger air travel in the past few years both on a national and regional level, it is expected that passenger air travel will increase as the economy improves. Each local airport prepares for this anticipated growth through its Master Plan.

NNWIA

Newport News - Williamsburg International Airport Passenger service levels at Newport NewsWilliamsburg International Airport will be greatly impacted in the near future by the loss of Airtran Airways. Southwest Airlines recent acquisition of Airtran Airways will result in a consolidation of their services, with the Airtran Airways name eventually being retired.

As part of this consolidation, Southwest Airlines has announced that they will discontinue Airtran Airways service at Newport News-Williamsburg International Airport in March 2012, with Southwest Airlines continuing to serve the region through Norfolk International Airport. Frontier Airlines has also announced that its service between Newport News and Denver will only operate on a seasonal basis. On the other hand, Allegiant Air began four day a week service between Newport News-Williamsburg International Airport and the Orlando area in November 2011.

The Peninsula Airport Commission is currently updating the Newport News-Williamsburg International Airport's Master Plan. Various growth scenarios were developed as part of the plan, with the anticipated number of people using the airport ranging from 622,000 to 1.092 million enplaned passengers per year by 2025, up from 520,000 in 2010. The plan also anticipates moderate growth in commercial aircraft operations and aircraft based at the airport.

The update to the airport's Master Plan is currently in the Solutions Phase, where alternatives for improving the airport are developed and evaluated.

Possible recommendations include improving check-in and baggage claim processes, consolidating security lines, reconfiguring existing runways, and

Newport News-Williamsburg International Airport

increasing access to the airport. The Master Plan is expected to be completed in 2012.

Norfolk International Airport The last update to the Norfolk International Airport Master Plan occurred in 2008. The Master Plan anticipates significant growth at Norfolk International Airport, from the current level of 1.7 million enplanements per year up to between 3 million and 3.75 million enplanements per year by 2024. The airport anticipates accommodating this growth by closing the current cross-runway and adding a runway parallel to the existing primary one. Upcoming improvements also include expanded baggage areas, concourses, security checkpoints, and rental car check-in positions, along with a new south access point.

In the short term, Norfolk International Airport will likely gain some flights due to Southwest Airlines acquisition of Airtran Airways, which is resulting in Southwest Airlines discontinuing Airtran Airways service at Newport News-Williamsburg International Airport.

Richmond International Airport Richmond International Airport updated its Master Plan in 2009, making recommendations for necessary improvements in order to meet anticipated demand through 2026. The plan forecasts passenger enplanements to increase from the current 1.7 million enplanements each year to between 2.5 million and 3.5 million passengers per

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Future Conditions - Air Travel year by 2026. Air cargo is expected to grow at approximately 3.5% per year, matching the expected rate for U.S. domestic air cargo. General aviation operations and the number of based aircraft are expected to increase at 2.5% per year.

The airport has undergone many changes in recent years, including a new two-level terminal, new air traffic control tower, an increase in the total number of gates, widened security checkpoints, new parking garages, and a new terminal roadway. Access to the airport was also improved with the new Airport Connector from the Pocahontas Parkway (Route 895) being completed in 2011.

The airport has plans to add more gates as well as extend two existing runways and reconfigure another runway. Along with the runway changes, a new heavy aircraft maintenance and modification facility, a Federal Bureau of Investigation complex, and additional corporate aviation facilities are planned. Additional possibilities include an East Airside Development Access Road and a connection to the light rail system proposed in the Richmond Rail Transit Feasibility Study.

Williamsburg Jamestown Airport The 2009 Airport Feasibility Study projected an increase in total aircraft operations from the current 23,310 operations per year to 29,980 operations per year in 2025. However, as mentioned previously, the future of the Williamsburg Jamestown Airport is unknown due to the current airport owner's interest in selling the facility. James City County officials are supportive of the Williamsburg Jamestown Airport remaining in use as an airport facility.

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56

Public Review and Comments/Appendices

PUBLIC REVIEW AND COMMENTS As part of the Hampton Roads Transportation Planning Organization’s (HRTPO) efforts to provide opportunities for the public to review and comment on this draft report prior to the final product being published, a 2-week public comment period was provided. The public review period for the draft version of this study was conducted from February 1, 2012 through February 15, 2012. No public comments were received.

APPENDICES APPENDIX A - VDOT Roadway Functional Classification by Locality

APPENDIX B - Roadway Projects Completed Since 2001

APPENDIX C - 2010 PM Peak Hour Congestion Levels by Locality

APPENDIX D - 2034 PM Peak Hour Congestion Levels by Locality

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57

Appendix A - VDOT Roadway Functional Classification

58 James City County

N

VDOT Roadway Functional Classification LEGEND Urban

Rural Interstate Freeway & Expressway Other Principal Arterial Minor Arterial Collector - Urban Collector - Rural Major Collector - Rural Minor Local

Prepared by HRTPO Staff, January 2012.

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Appendix A - VDOT Roadway Functional Classification

59 Williamsburg

N

VDOT Roadway Functional Classification LEGEND Urban

Rural Interstate Freeway & Expressway Other Principal Arterial Minor Arterial Collector - Urban Collector - Rural Major Collector - Rural Minor Local

Prepared by HRTPO Staff, January 2012.

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Appendix A - VDOT Roadway Functional Classification

60 York County

N

VDOT Roadway Functional Classification LEGEND Urban

Rural Interstate Freeway & Expressway Other Principal Arterial Minor Arterial Collector - Urban Collector - Rural Major Collector - Rural Minor Local

Prepared by HRTPO Staff, January 2012.

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Appendix B - Completed Roadway Projects

61

Jurisdiction

UPC

Project

Construction Completed

Cost

JCC

18202

New Roadway - Monticello Ave between John Tyler Hwy at News Rd

December 2001

$12,447,000 $43,536,000

JCC

2058

New Interchange - I-64 Grove Interchange

December 2003

JCC

60408

Add Right Turn Lane - Croaker Rd at Richmond Rd

November 2004

$120,000

JCC

65273

Widening Route 199 from 2 to 4 Lanes - Williamsburg CL to South Henry St

November 2004

$10,221,000

JCC

65191

Widening Route 199 from 2 to 4 Lanes - South Henry St to Pocahontas Trail

November 2004

$16,412,000

JCC

65276

Relocation of Route 359 at Jamestown Settlement

May 2005

$2,345,000

JCC

65146

Improve Rail Crossing - Diascund Rd at CSX Railroad

January 2006

$97,000

JCC

60034

Widen Approaches - Monticello Ave at Ironbound Rd

March 2007

$3,324,000

JCC

77065

Add Right Turn Lane - Ironbound Rd at John Tyler Hwy

September 2008

$393,000

JCC

87687

Install Traffic Signal - Richmond Rd at Croaker Rd

December 2008

$111,000

JCC

71883

Route 5 Bridge Replacement

April 2010

$40,808,000 $160,000

JCC

94645

Install Traffic Signal - Richmond Rd at Fire Station #2

October 2010

JCC

90435

Add Turn Lanes - Centerville Rd at Longhill Rd

January 2011

$714,000

JCC

94541

Add Turn Lanes - Route 199 at John Tyler Hwy

April 2011

$1,006,000

JCC

87686

Install Traffic Signal - Centerville Rd at Longhill Rd

November 2011

$241,000

WMB

65275

Intersection Improvements - Route 199 at Brookwood Drive

May 2005

$3,789,000

WMB

68074

Improve Rail Crossing - Henry St at CSX Railroad

December 2005

$73,000

WMB

14750

Widening Richmond Rd from 2 to 3/4 Lanes - Bypass Rd to Brooks St

November 2006

$15,748,000

WMB

16054

New Roadway - Treyburn Dr

December 2007

$4,523,000

YC

14701

Construct Through Lane - George Washington Hwy from York Crossing Rd to Wolf Trap Rd

April 2001

$1,630,000

YC

50552

Add Turn Lanes - George Washington Hwy at Victory Blvd

July 2001

$612,000

YC

13715

Add Tun Lane - Dare Rd East of George Washington Hwy

September 2003

$1,253,000

YC

64916

Extend Turn Lane - Victory Blvd at George Washington Hwy

November 2003

$69,000

YC

52521

Install Left Turn Lanes - Route 143 at Rochambeau Dr/I-64 Ramp

March 2004

$253,000

YC

57022

Install Traffic Signal and Left Turn Lanes - Mooretown Rd at Airport Rd

May 2004

$576,000

YC

17935

Intersection Improvements - Carys Chapel Rd/East Yorktown Rd at Victory Blvd

April 2006

$2,620,000

YC

14627

New Roadway - Fort Eustis Blvd Extended

December 2006

$6,450,000

YC

11267

Add Turn Lanes - Big Bethel Rd at Victory Blvd and Hampton Hwy

May 2007

$2,930,000

YC

52342

Intersection Realignment - Grafton Dr at Amory Ln

March 2008

$1,193,000

YC

87688

Install Traffic Signal - Old Williamsburg Rd at Baptist Rd/Yorktown Weapons Station Ent

December 2008

$109,000

YC

94129

Improve Traffic Signal - Route 199 at Merrimac Trail

YC

94127

Rebuild Existing Traffic Signal - Route 132 at Route 143

YC

93024

Improve Rail Crossing - Pocahontas Trail at CSX Railroad near Busch Gardens

YC

94459

Extend Turn Lane - Hampton Hwy at Tabb Smith Trail

YC

96880

Improve Rail Crossing - George Washington Hwy South of Fort Eustis Blvd

Roadway Projects Completed Since 2001

Data sources: VDOT, HRTPO. Based on data collected from the SYIP as of October 2011. UPC is the Universal Project Code number.

JamesCity/Williamsburg/York City/Williamsburg/York Transportation Study James Transportation Study

October 2010

$119,000

November 2010

$150,000

January 2011

$335,000

June 2011

$117,000

October 2011

$50,000

Appendix C - 2010 PM Peak Hour Congestion Levels

62 N

James City County 2010 PM Peak Hour Congestion Levels LEGEND Low to Moderate Congestion (LOS A, B, or C) Moderate Congestion (LOS D) Severe Congestion (LOS E or F) CMP Network Roadways Outside the Locality Non-CMP Network Roadways Prepared by HRTPO Staff, January 2012.

James City/Williamsburg/York Transportation James City/Williamsburg/York Transportation Study Study

Appendix C - 2010 PM Peak Hour Congestion Levels

63 N

Williamsburg 2010 PM Peak Hour Congestion Levels LEGEND Low to Moderate Congestion (LOS A, B, or C) Moderate Congestion (LOS D) Severe Congestion (LOS E or F) CMP Network Roadways Outside the Locality Non-CMP Network Roadways Prepared by HRTPO Staff, January 2012.

James City/Williamsburg/York Transportation James City/Williamsburg/York Transportation Study Study

Appendix C - 2010 PM Peak Hour Congestion Levels

64 N

York County 2010 PM Peak Hour Congestion Levels LEGEND Low to Moderate Congestion (LOS A, B, or C) Moderate Congestion (LOS D) Severe Congestion (LOS E or F) CMP Network Roadways Outside the Locality Non-CMP Network Roadways Prepared by HRTPO Staff, January 2012.

James City/Williamsburg/York Transportation James City/Williamsburg/York Transportation Study Study

Appendix D - 2034 PM Peak Hour Congestion Levels

65 N

James City County 2034 PM Peak Hour Congestion Levels LEGEND Low to Moderate Congestion (LOS A, B, or C) Moderate Congestion (LOS D) Severe Congestion (LOS E or F) CMP Network Roadways Outside the Locality Non-CMP Network Roadways Prepared by HRTPO Staff, January 2012.

James City/Williamsburg/York Transportation James City/Williamsburg/York Transportation Study Study

Appendix D - 2034 PM Peak Hour Congestion Levels

66 N

Williamsburg 2034 PM Peak Hour Congestion Levels LEGEND Low to Moderate Congestion (LOS A, B, or C) Moderate Congestion (LOS D) Severe Congestion (LOS E or F) CMP Network Roadways Outside the Locality Non-CMP Network Roadways Prepared by HRTPO Staff, January 2012.

James City/Williamsburg/York Transportation James City/Williamsburg/York Transportation Study Study

Appendix D - 2034 PM Peak Hour Congestion Levels

67 N

York County 2034 PM Peak Hour Congestion Levels LEGEND Low to Moderate Congestion (LOS A, B, or C) Moderate Congestion (LOS D) Severe Congestion (LOS E or F) CMP Network Roadways Outside the Locality Non-CMP Network Roadways Prepared by HRTPO Staff, January 2012.

James City/Williamsburg/York Transportation James City/Williamsburg/York Transportation Study Study

Appendix A3 Beautification Advisory Committee Vision Statement

The Vision A. Walking Williamsburg becomes a truly beautiful City when it encourages people to get outside of their vehicles and enjoy on foot the community (let’s have a City of happy feet areas).

1. Construct more sidewalks, trails and bike routes so that no matter where you live in the City, you can easily and safely walk to commercial and public destinations.

2. To encourage walking, wider sidewalks are necessary.

3. Outdoor dining areas should be encouraged because they create a destination. A good example is the reconstructed section of Prince George Street where restaurants and coffee shops have provided table and chairs for outdoor dining.

4. Encourage a business mix which creates “destinations to walk”.

5. People tend to walk more if they have fun places to walk to such as parks, restaurants, shops, library, post office, etc.

6. Construct more pedestrian crossings at major crossing points.

7. Provide adequate lighting for sidewalks and crosswalks for pedestrians to safely maneuver throughout the City.

8. Reduce speed limits in areas where walking or biking is preferred in the downtown area.

9. Develop a cohesive design for the streetscape to include street lights, trash cans, benches, sidewalks, signage and landscaping.

10. Construct small neighborhood parks which encourage residents to walk and have conversation with each other ( a good example is Berkeley Park).

11. Investigate enhancement grants/programs to fund sidewalk improvements.

12. Encourage businesses to open early (6-7 a.m.) or stay open late (910 p.m.) to create an atmosphere for locals to meet and congregate.

2013 Williamsburg Comprehensive Plan

Appendix A3 – BAC Vision Statement A3-1

B. Colorful Plantings With the addition of colorful plantings Williamsburg will become a beautiful City that visitors will want to visit and encourage others to visit.

1. Add more colorful plantings in the commercial/public areas and at entrances to older neighborhoods to beautify the City and to attract and draw more people (residents, locals in the area and tourists) to the City Center.

2. Develop a grant program for having planters in key areas, both commercial and at entrances to residential streets, to add more color to the streetscape with the City having the right to remove the planters if they are not maintained properly.

3. With community buy-in/pride these planters can be maintained by businesses and/or individuals living in the area.

4. Develop a strategy/policy for the maintenance of public city owned street frontage areas (the sidewalks and curb grass strip). Allow residential and commercial property owners to request permission from the City to maintain these areas (edge sidewalks, cut grass in grass strip, plant trees etc.).

5. Investigate private/public partnerships to fund commercial beautification improvements (Chamber, garden clubs, neighborhoods, commercial districts etc.).

C. Pedestrian/Biking/Bus/Trolley Transportation Make Williamsburg a pedestrian, bike and bus-trolley friendly community that focuses its resources on safe well lighted sidewalks, bike routes and a user friendly bus-trolley service for all ages.

1. To encourage ridership construct attractive, safe, and larger bus shelters (where needed) at bus stops which include seating, trash cans and bus stop signage that includes route information and bus arrival times.

2. Develop a user friendly well publicized mechanism to rate your walking, biking or bus/trolley experience with a method to make suggestions for improvements to the system.

3. Make certain that individuals living and staying in B&B’s, hotel/motel can easily, safely and conveniently walk, bike or bus/trolley to public and commercial “walking destinations” (library,

Appendix A3 – BAC Vision Statement

2013 Williamsburg Comprehensive Plan A3-2

post office, municipal building, municipal square, restaurants and shops).

4. Expand trolley use for special event parking, arts weekends, farmers markets, music and sporting events. Make this along with walking and biking more attractive than driving.

5. To encourage biking on existing and future bike paths, wider and safer bike paths are necessary.

D. Parking The focus needs to be on driving to designate parking areas and walking to specific businesses. Let’s discourage door-to-door driving and street parking.

1. Remove parking from sections of corridor streets in the downtown area.

2. Explore making the parking in the City garage free for several hours (3 hours) and at key events, while reducing street parking in some areas.

3. Have more events downtown to increase bus and trolley usage and increase business revenues. Build on the experience of the gallery crawl.

4. Advertise, promote and educate visitors and locals on the bus and trolley service. It’s tragic that only a small percentage of residents and tourist have knowledge of and use the bus and trolley service.

5. Investigate enhancement grants/programs to fund parking improvements.

2013 Williamsburg Comprehensive Plan

Appendix A3 – BAC Vision Statement A3-3

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