I. INTRODUCTION - Middlesex County, Virginia Homepage

COUNTY OF MIDDLESEX, VIRGINIA EXECUTIVE SUMMARY COMPREHENSIVE PLAN UPDATE

EXECUTIVE SUMMARY The 2001 Comprehensive Plan Update (Update) contains six (6) chapters (I. Introduction; II. Community Profile; III. Natural Conditions; IV. Community Assets and Facilities; V. Land Use, Development, and Growth Management Issues; VI. Goals, Objectives, and Implementation Strategies) including twenty-five maps and thirty-five exhibits. The Update contains an index. I. INTRODUCTION A. WHY HAVE A COMPREHENSIVE PLAN

Virginia's General Assembly has recognized the need for local land use planning by requiring every county, city, and town to adopt a Comprehensive Plan for the physical development of its territory. This document is an updated version of the 1994 Comprehensive Plan for Middlesex County.

B. PUBLIC UNDERSTANDING AND SUPPORT

Planning is the process by which a community –

1. assesses its current state of development, needs, problems, and resources; 2. determines its desirable future physical form and character; 3. establishes public policies designed to help bring about the desired form and

character, and;

4. uses established policies as a basis for guiding public activities and regulating private activities.

The Comprehensive Plan Update is a general working document intended for use by all citizens of Middlesex County to facilitate rational, harmonious, and responsible decision-making regarding land use. The Comprehensive Plan is intended for frequent use as a guide and reference by anyone involved with public or private land use and community planning anywhere in the County.

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COUNTY OF MIDDLESEX, VIRGINIA EXECUTIVE SUMMARY COMPREHENSIVE PLAN UPDATE C. THIS IS MIDDLESEX COUNTY

Middlesex County is located at the eastern end of Virginia's Middle Peninsula. The County has a land area of 132 square miles (83,392 acres) and 135 linear miles of shoreline. Settlement of the area began around 1640 with the County being officially formed in 1669 from a part of Lancaster County. The Town of Urbanna remains the County's largest commercial center and its only incorporated area, but the County seat of government has moved to the Village of Saluda. To the east, almost to Stingray Point, the Village of Deltaville is situated between the mouths of the Rappahannock and Piankatank Rivers. Over the years, Middlesex has retained a rural image with farming, forestry, and fin- and shell-fishing providing the principal elements of the economic base. Highway systems and vehicles have been improved dramatically, making Middlesex readily accessible to the Richmond and Hampton Roads metropolitan areas. In 2000 the population of Middlesex County was 9,932 people. Most projections indicate growth will continue to about 11,500 people in the year 2010.

D. BASIC ASSUMPTIONS

Population growth will occur. It should occur slowly, although the potential for large development projects exists, given the County's proximity to Virginia's growth corridor and the abundance, availability, and affordability of developable land. The County's rural nature and its proximity to the Chesapeake Bay and its tributaries will continue to be the major forces influencing residential, commercial and water-access-oriented development and population growth. Population growth will precede and increase the likelihood of commercial development. Population growth will continue to place additional demands on government to provide necessary services (additional schools, libraries, parks, government employees, etc.), which will necessarily increase government's need for revenues. The needed additional revenues can only be raised by expanding the tax base through commercial economic development or by increasing tax rates. Increased Federal and State legislation and regulation will require additional local government expenditures, particularly with regard to environmental quality. In certain areas, public utilities will be necessary to facilitate desirable economic development.

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The ground transportation network in the County will remain virtually the same. Citizens will continue to place high priority on maintaining the rural nature of the territory while accommodating desirable new development. These seemingly opposing objectives will make it necessary for government officials to make some difficult decisions and perhaps impose limits on certain projects.

II. COMMUNITY PROFILE A. HISTORY

When John Smith was stung by a stingray in 1608 off what is now known as Stingray Point, Middlesex County was inhabited by Indians. These tribes were a part of the Powhatan Confederation, an Alliance of Algonian-speaking people of the Virginia coastal plain. English settlement began in the 1640's. Settlement was stunted by a treaty between the Colony and the Indians which acknowledged Middlesex as Indian domain. Laborers in the 17th century were primarily poor white men, both free and indentured. In 1680, the first African slaves arrived in the Colony. Law Court was first held at the home of Richard Robinson on Town Bridge Road between Saluda and Urbanna. In 1695, a house at Stormont was used for Court. During the Civil War, Union gunboats patrolled the Rappahannock and Piankatank Rivers. Unionville was pillaged by federal troops. Urbanna for a period of time was used as a training camp for Confederate soldiers. Middlesex County has been and remains a rural community dependent upon the gifts of the earth.

B. HISTORIC RESOURCES

Excluding Urbanna, which has eight structures of landmark status within the Urbanna Historic District, there are seven structures in Middlesex which are recognized as historic sites by both the Federal and State governments.

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COUNTY OF MIDDLESEX, VIRGINIA EXECUTIVE SUMMARY COMPREHENSIVE PLAN UPDATE C. ARCHAEOLOGICAL RESOURCES

Given its position in the Coastal Plain, the known existence of Indian villages, and a 350-year record of English/American settlement, Middlesex County is quite likely a treasure trove of significant archaeological sites.

D. POPULATION

County population peaked in 2000 (9,932), representing an increase of 1,279 persons since 1990 (8,653).

Population in 2000 (9,932) is over twice the County population of 1790 (4,140). Population has risen and fallen in cycles over the years. County population growth has not kept up with the growth of the Middle Peninsula Planning District overall. The County has grown by over 2,200 persons since 1980.

The population of the Jamaica, Pinetop, and Saluda Magisterial Districts grew from 1990 – 2000, although growth in Jamaica leveled off. The population of the Jamaica Magisterial District has dropped since 1920. The populations of the Pinetop and Saluda Magisterial Districts are twice as great as the Jamaica Magisterial District. County population has increased 57.2 percent since 1950.

Of the five counties which were surveyed on the Rappahannock River, Middlesex County had the second highest percentage (21.96 percent) of retirement-age individuals in 1990. With 10.74 percent of its population retired, Middlesex has twice the percentage of retirees as the State average.

Comparative data for 2000 not available for use in this update. The 2000 racial composition of the County is 78.5 percent white, 21.5 percent non-white. The median age is 43 years. Approximately 13.9 percent of the County's citizens fall below the poverty level. Population projections for rural communities tend to be conservative; in this case the projection simply adds 900 people to the County's population each decade.

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There is so much vacant land in Middlesex and so much opportunity for development that the County should not be led to believe that it will only grow 2,700 people between the year 2000 and 2030.

E. HOUSING

There were 7,099 housing units in Middlesex County in 2000. In 1990, a very high number of units (28.8 percent) are seasonal. This is significantly higher than other nearby communities surveyed and 28 times higher than the state average. Over 70% of the housing stock was built since 1960. About 39% of the housing stock has been newly occupied since 1980 indicating the existence of an increasing number of new residents in the County. The median value of a home in Middlesex County in 1990 was $77,500. Over 80 percent of the housing in the County is owner-occupied. Only 3.5 percent of the housing stock is multi-family, a figure significantly lower than the state average of 22.7 percent. However, over 15 percent of the housing units are mobile homes which is much greater than the state average of 6.4 percent. The average household in 2000 had 2.3 persons.

F. ECONOMIC AND EMPLOYMENT CHARACTERISTICS

Real per capita personal income increased by 23.4 percent from 1992 ($18,842) to 1998 ($23,255). Employment in the manufacturing, farm, forestry, and fishing sectors has been on a steady decline for 20 years. Government (29 percent), services (22 percent), and retail trade (22 percent) are the leading employment sectors. Construction, retail trade, and services sector jobs have increased due primarily to new housing starts, increased retail sales associated with population growth and greater disposable incomes, and the service requirements of a retirement population in combination with service sector increases experienced nationwide. Unemployment rates for Middlesex County are consistently below State and National rates and consistent with other communities within the region.

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COUNTY OF MIDDLESEX, VIRGINIA EXECUTIVE SUMMARY COMPREHENSIVE PLAN UPDATE G. TOURISM

Tourism is primarily experienced in Middlesex in two ways:

• Seasonal visitors "summering" in Middlesex (28.76 percent of housing stock is

seasonal).

• Visitors passing through the County on the way to the waters of the Chesapeake Bay. (There are over 3,500 boat slips in marinas and other places where boats are moored in Middlesex.)

III. NATURAL CONDITIONS A. CLIMATE

Middlesex County is located in a temperate zone of climate where neither winter nor summer temperatures are generally severe. The climate is supportive of agricultural and forestry activities as well as seasonal tourism and recreation.

B. AIR QUALITY

There are no major point sources of air pollution in Middlesex County.

C. PHYSIOGRAPHY

The elevation of land in Middlesex County ranges from sea level to 123 feet above sea level at the intersection of U.S. Route 17 and State Route 606. Middlesex County is characterized by three principal marine terraces each demarcating a former shoreline.

D. SLOPE

Approximately 15 percent of Middlesex County is characterized by slopes in excess of 15 percent.

E. GEOLOGY

Middlesex County is located within the Atlantic Coastal Plain Province. Basement rock or bedrock below the land surface of Middlesex County varies in depth from 2,500 feet below sea level at Stingray Point rising upward to 1,500 feet below sea level at Saluda to 1,200 feet below sea level at the Essex County line.

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COUNTY OF MIDDLESEX, VIRGINIA EXECUTIVE SUMMARY COMPREHENSIVE PLAN UPDATE F. MINERALS

Mineral production in Middlesex County is limited to sand and gravel.

G. GROUNDWATER

Groundwater is the source of all domestic and industrial water supplies in the County. 1. Risks to Groundwater

Risks to groundwater include: • Depletion of groundwater supplies due to over pumping; and

• Pollution of groundwater supplies due to

- malfunctioning, inadequate, or misused septic systems - leachate from sanitary landfills - contaminants (i.e., insecticides, herbicides, industrial waste, motor oil) - nitrates - saltwater intrusion.

2. Existing Conditions

There are eight water-bearing aquifers underlying the County.

The continued withdrawal of large quantities of water has resulted in a steady decline of groundwater levels. Recent studies have indicated there is evidence of groundwater movement from one aquifer to another. Studies to date indicate no evidence of aquifer contamination on a wide scale resulting from surface contaminants or nitrates. Surface-related pollution in the form of malfunctioning septic fields, nitrates from excessive application of fertilizers and many contaminants such as motor oil will tend to have an impact on groundwater only near the source of the pollution. Toxic chemicals and carcinogens, however, present much greater problems if they pollute groundwater aquifers.

The Virginia Groundwater Act of 1973 enabled the State to designate areas of the state for state-managed groundwater protection. Any proposed large groundwater withdrawal must be permitted by the State Water Control Board in an area so designated. Although the Eastern Shore, southeastern Virginia, and the Peninsula are so designated, Middlesex County is not.

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COUNTY OF MIDDLESEX, VIRGINIA EXECUTIVE SUMMARY COMPREHENSIVE PLAN UPDATE H. SURFACE WATER

The many rivers, creeks, and swamps within and adjoining Middlesex County have and continue to influence the County's character and development. The tributaries of the Piankatank and Rappahannock Rivers are tidal at their mouths where the water is brackish to saline. Dragon Run Swamp is freshwater. There are no surface water impoundments or reservoirs supplying drinking water supplies within the County.

I. FLOODPLAINS

The 100 year floodplain is that area of land which could be inundated by a flood that has a statistical probability of occurring once in 100 years. Middlesex County requires new residential construction within a 100-year floodplain to have the lowest floor at or above the 100-year floodplain level. Nonresidential structures must be flood-proofed to that level.

J. WETLANDS

According to the Middlesex County Tidal Marsh Inventory, there are approximately 1,675 acres of tidal wetlands in the County. Of this total, 1,240 acres are along the Rappahannock River and its tributaries. The County has a Wetlands Board to ensure that water-dependent development proposals have minimal impact on wetlands, both vegetated and non-vegetated. The Dragon Run Swamp is a freshwater marsh containing hundreds of acres of freshwater wetlands.

K. SHORELINE EROSION

In a survey of erosion events from 1850 to 1950, Middlesex County ranks 16th among Tidewater Counties in the loss of acres per mile of shoreline. Some areas experiencing erosion problems have been "hardened" with bulkheads and groins as waterfront residential development has occurred. The highest erosion rates witnessed in the County occurred at Stingray Point where the rate of erosion was calculated to be 6.1 feet per year.

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COUNTY OF MIDDLESEX, VIRGINIA EXECUTIVE SUMMARY COMPREHENSIVE PLAN UPDATE L. SHELLFISH RESOURCES

Harvesting oysters has been a significant vocation in the lives of Middlesex County residents since it was originally settled. Oyster fisheries have been in decline since 1900.

M. AQUACULTURE

With the downturn in traditional finfish and shellfish harvest, watermen are beginning to involve themselves in land-based aquaculture endeavors.

N. FINFISH RESOURCES

Finfish resources have also suffered declines on the Rappahannock and in the Chesapeake Bay. Saltwater fish found along the Middlesex County shoreline include rockfish, croaker, bluefish, spot and weakfish. Fish found in the freshwaters of Dragon Run Swamp include carp, perch, sunfish, and largemouth bass.

O. SOILS

1. General Characteristics

The soils of Middlesex County were formed from sediments that were deposited by an ancient river or ocean. The Soil Survey of Middlesex County, Virginia identifies 21 different soils within the County.

2. Highly Erodible Soils

Soils that are characterized as highly erodible (Erodibility Index of 8 or greater) have a potential for erosion and sedimentation problems. Approximately 60 percent of the County soils are highly erodible. The highest concentrations are west of Grafton. Middlesex County has adopted and enforces an Erosion and Sediment Control Ordinance. The agricultural community incorporates best management practices within their farming operations to minimize the loss of soils from fields to streams.

3. Highly Permeable Soils

Soils that are characterized as highly permeable are extremely susceptible to pollutant leaching, and thus have a high potential for contributing to groundwater pollution.

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Approximately 60 percent of the County soil is considered highly permeable. The highest concentrations of highly permeable soil are in the eastern part of the County where shallow groundwater aquifers provide the only source of potable water.

4. Hydric Soils

Hydric soils are those that are sufficiently wet under undrained conditions to support the growth of hydrophytic vegetation (plant life growing in water or soil that is at least periodically deficient in oxygen as a result of excessive water content). Hydric soils encompass over 11,000 acres or 13 percent of the County. Hydric areas have seasonally high water tables or are inundated year round. For this reason, it is very difficult for these areas to support functional effective septic tank absorption fields.

5. Prime Agricultural Soils

Over 59 percent of the soils in Middlesex County are consider prime agricultural soils. This is a very high percentage for any Virginia community. From 1920 and 1987, the land area devoted to farming dropped from 75.3 percent to 22.9 percent. However, recently there has been an increase in farming land area.

P. FORESTS

Middlesex County enjoyed positive net annual growth of both growing stock and saw timber despite the loss of over 1,500 acres of forestland since 1985.

Q. WILDLIFE AND NATURAL HERITAGE RESOURCES

The rural nature of the County, which combines watercourses, forests, and fields, provides ideal circumstances for quality wildlife habitats and biological diversity.

R. RARE, THREATENED AND ENDANGERED SPECIES

Many rare, threatened, and endangered species are found in Middlesex County.

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COUNTY OF MIDDLESEX, VIRGINIA EXECUTIVE SUMMARY COMPREHENSIVE PLAN UPDATE IV. COMMUNITY ASSETS AND FACILITIES A. PUBLIC AND SEMI-PUBLIC FACILITIES

County Administrative offices are centrally located within the County Courthouse Complex in Saluda. School Board and Social Services offices are located at the Cooks Corner Office Complex.

B. MUSEUMS

The Middlesex County Museum is now located on Business Rt. 17 within walking distance from the Courthouse Square. The old tobacco warehouse in Urbanna is on the National and Virginia Historic Landmarks Registries. It is owned by the Town of Urbanna which is renovating it into a Museum / Tourism Information Center with an Enhancement Grant Award through the Virginia Department of Transportation. Renovation of the building is expected to be completed in 2003.

C. SCHOOLS

The Middlesex County Public Schools system includes four schools presently with another (elementary) school under construction at the time of this writing. The new elementary school, in Locust Hill adjacent to St. Clare Walker Middle School, is proposed to replace the two existing schools and is scheduled to open Fall 2002.

D. PUBLIC LIBRARIES

The Middlesex County Public Library operates two facilities in the County: a 12,000 volume branch in Urbanna and a 5,000 volume branch in Deltaville.

E. UTILITIES

Middlesex County does not own or operate any utility systems. Saluda is served by a privately-owned central water system. The Town of Urbanna operates central water and sewage treatment systems. Most property owners within the County utilize individual wells and septic tank absorption fields for water and sewer needs.

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COUNTY OF MIDDLESEX, VIRGINIA EXECUTIVE SUMMARY COMPREHENSIVE PLAN UPDATE F. SOLID WASTE DISPOSAL

Middlesex County generates an estimated 14,000 tons per year of solid waste. Middlesex County has joined Essex, Gloucester, James City, King William, Mathews, and York counties and the City of Williamsburg to form the Virginia Peninsula Public Service Authority (VPPSA). VPPSA has developed a solid waste transfer system plan which utilizes three acres near the to-be-closed Stormont landfill as the site of a transfer station for handling waste quantities of less than 100 tons per day. Manned convenience centers are located off State Route 33 in Deltaville and Hartfield, as well as off State Route 640 in the Jamaica Magisterial District.

G. TRANSPORTATION

1. Roads

There are 46.86 miles of state primary highway in Middlesex County. U.S. Route 17 is a four-lane divided highway and Middlesex County supports the continued four-laning of State Route 33 east of Harmony Village.

2. Trucking

A number of interstate trucking companies operate on the Middle Peninsula including Middlesex County. U.S. Route 17 and State Route 3 provide fast and ready access to the Norfolk, Richmond, and Washington Metropolitan Statistical Areas.

3. Rail

There are no railroads in Middlesex County. Passenger and freight service is available in Richmond.

4. Water/Ports

Middlesex County is located on the Chesapeake Bay and is also accessed by both the Rappahannock River and the Piankatank River. The Rappahannock River channel is no shallower than 30 feet. The Port of Richmond and the Port of Hampton Roads are the nearest large commercial port facilities for importing and exporting.

5. Air

Commercial air service is available at Richmond International Airport and Newport News-Williamsburg International Airport.

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Hummel Airfield, a general aviation facility, is located on State Route 3 near the Rappahannock River.

V. LAND USE, DEVELOPMENT, AND GROWTH MANAGEMENT ISSUES

A. INTRODUCTION

As Middlesex County evolves, several land use and development issues will require repeated consideration as various development patterns emerge. It is not possible to conduct land use planning without considering the issue of individual landowners’ rights versus the need to regulate for the common good. In preparing this Comprehensive Plan, the citizens of Middlesex County recognized the complexities associated with applying the balancing test when land use conflicts arise, and seek to provide meaningful guidance to their representatives who must make difficult decisions on their behalf. This guidance takes the form of several prioritized fundamental objectives stated below and repeated throughout this Plan.

First, highest priority must be placed on the preservation of the rural character of

the County. As defined, the rural character includes natural and open spaces between concentrations of activities. Strip development along highways cannot be permitted to extend beyond acceptable bounds. All development and improvements must respect and be compatible with this vital objective.

Second, this is primarily a residential and recreational County. The happiness and

well-being of its citizens depend on the preservation of the high quality of those aspects of this place. It is the combination of the rural character of the landscape and high quality residential and recreational land uses which define and give Middlesex County its unique character. That combination must be preserved.

Third, the vitality of the County depends on a viable and expanding commercial

community. For the present, that means utilizing and building upon the assets available within the territory. Primarily those assets include: the surrounding waters and natural areas as recreation and tourist attractions; ample property for residential and recreational development; the existing towns and villages as centers of commerce and social development; other destinations for vacationers and weekenders seeking recreation on the water or at nearby golf, tennis, and natural scenic attractions; a growing population of relatively affluent retirees to offset the seasonal nature of the economy; and the myriad of supply, support, medical, and service enterprises needed by an active community of visitors and residents.

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Fourth, as the population expands and the County's infrastructure develops, suitable clean industry which seeks to be compatible with the community's needs will be welcomed. In the meantime, the County should begin preparing for that eventuality by defining the qualities suitable industry must possess, defining the characteristics suitable sites must contain, and establishing those incentives the County can offer to new industry. This preparation will enable Middlesex to respond quickly and positively when industrial opportunity arises.

B. FINANCIAL STABILITY OF THE COUNTY

Middlesex County has historically enjoyed a relatively stable financial position and has a long history of operating within budget. The primary source of revenue in Middlesex County continues to be from real estate and personal property taxes. The County seeks to control the increasing imbalance in revenues contributed by equivalent types of housing units in Middlesex County relative to the neighboring waterfront counties. The trend toward a proportionately higher percentage of manufactured and mobile homes should be limited by encouraging strict enforcement of existing ordinances affecting their use. In addition, consideration should be given to restricting mobile home installations from areas identified as tourist corridors or scenic preserves. The use of mobile homes as rental properties or storage facilities should be phased out.

C. EXISTING LAND USE

1. Preserving the Rural Character of the County

Middlesex County places a high priority on preserving its rural character, including its shoreline.

2. Origins of the Rural Development Pattern

Middlesex County's primary development pattern has its roots in the agrarian environments of the 17th and 18th century. Urbanna, the most densely settled area within Middlesex, was created by an act of the General Assembly to serve as a port for the export of tobacco.

The growth of Deltaville as a fishing, shipping, and ship building center occurred as a result of its proximity to the Chesapeake Bay. By contrast, Saluda and Hartfield have developed as the result of being located on intersecting land transportation routes, and Saluda has further benefited from its designation in the 19th century as the new County seat of government.

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A second settlement pattern – the hamlet – developed around crossroads or boat landings such as occurred at Wake and Water View. The third settlement pattern consisted of randomly spaced farmsteads scattered widely throughout the County. The twentieth century brought with it a faster paced lifestyle as a result of transportation and vehicular advancements. Paved roads for fast moving automobiles opened Middlesex County up to a new development pattern. The twentieth century also brought with it a broader selection of building materials and colors.

3. Defining the Rural Development Pattern

The rural development pattern is one which includes the appearance of the pre-twentieth century town-, hamlet-, and farmstead-like settlements typical of early Middlesex County but which take full advantage of twentieth century practices which do not detract from those patterns. a. Town-Like Development

Existing development in Middlesex County includes several town-like settlements. The currently evolving town-like settlements are occurring within a series of adjoining circles starting at Stingray Point (centering roughly in Deltaville) and continuing west through centers at Hartfield, Saluda, Warner, Jamaica, and Church View.

b. Hamlet-Like Development

The development of hamlets containing groupings of about one to three dozen homes, their related churches, stores, and public buildings (e.g., post office, day care facility, community building, recreation facilities, etc.) should occur between, but not attached to or extending from towns. Both towns and hamlets should be encouraged to emphasize access by pedestrian traffic and, therefore, should utilize higher densities in both residential and commercial areas. Towns might straddle both sides of arterial roads, although towns and hamlets both would be much better designed if they were arranged with arteries along their edge.

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c. Farmstead-Like Developments

New farmstead-like settlements should be modeled after the architectural scale and layout of the traditional farmstead.

D. ISSUE AREAS

1. Environment

The natural environment of Middlesex County is best served by the wise use of its land.

2. Residential Development

a. Twentieth Century Housing Patterns

No area of the County is unacceptable for twentieth century housing patterns and types. However, provisions should be established to minimize the intrusion on the landscape of housing subdivisions characterized by large, regularly shaped lots along straight roads cutting through open fields. The present trend to "fill in" along these roadways between settlements must be avoided. Distinct and abundant areas must be left undeveloped if the rural nature of the County is to be preserved. Similarly, open space should remain a visible characteristic along secondary roads and in residential areas. Large-scale subdivisions should be screened from direct view along these roads or arranged to display the least possible presence to passersby. Low-density residential developments require far more land per dwelling thereby reducing open space and agricultural uses and diminishing the rural nature of the area. Density increases (smaller lot sizes) should be considered on a case-by-case basis for large-tract development projects predicated on the following terms: 1) The project must be designed to emphasize and preserve the unique

characteristics and natural aspects of the land involved, including the nearby off-site surroundings;

2) The maximum number of permitted lots should be calculated by dividing

the total developable area in the tract by the permitted gross density (tracts containing large portions of undevelopable land will require additional consideration); and

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3) The density increase will result in the creation of a worthwhile undeveloped area which must be permanently set aside in a suitable open space use such as a park or natural area, adjoining natural resource access point or agricultural use.

b. Other Housing Issues

. The County envisions a wide range of housing being provided by the private sector. Residential development aimed at special segments of the market (such as entry-level buyers, those desiring special care such as the elderly or disabled, or even those having a common recreational theme such as golfing, boating, or flying) might find density variations available to facilitate a more efficient grouping of several dwellings having common functional criteria. Owner-occupied single-family homes incorporating secondary dwellings such as guesthouses, "Mother-in-Law" apartments, or accessory dwelling units should be permitted by special use permit, subject to local development restrictions. Waterfront housing is a major component of the housing market in Middlesex and is expected to remain so in the coming years. The County encourages that waterfront housing developments consider setting aside waterfront common areas for public access and enjoyment. Owner-occupied and rental residential units should also be encouraged on the second floor of commercial structures. The development of alternatives to mobile homes is strongly encouraged. Mobile homes, whether in mobile home parks (rental), mobile home subdivisions (owner-occupied), or on isolated individual lots should be as unobtrusive a feature on the landscape as is reasonably possible.

c. Golf Course Communities

Middlesex County has an expanding retirement population, receives tens of thousands of tourists/visitors every summer, and is located in the rapidly growing Middle Peninsula - all conditions potentially supportive of golf course development. There are golf courses in Gloucester, King William, and most recently Middlesex County (Piankatank River Club) on the Middle Peninsula. Golf course construction is expensive. Golf course construction can be environmentally sensitive.

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The Soil Survey for Middlesex County indicates that 41% of the soils in the County are highly suitable for golf course construction. The County recognizes the significant potential for suitable economic expansion related to golf course/residential developments.

3. Parks and Recreation

A significant portion of the population of Middlesex County is in one way or another involved with organized youth athletic recreational activity. The Parks and Recreation Director should be authorized to serve as the agent of the County in dealing with the mostly volunteer organization which conducts and supervises these athletic activities. A long-range function of the Director will be to evaluate existing parks and recreational facilities and services and provide a continually updated plan and forecast recommending to the Parks and Recreation Committee how changes and improvements may be made to serve the community. The majority of organized and un-organized recreational activities are held at the Middlesex County Sports Complex. Additional opportunities to expand recreation activities exists at the new St. Clare Walker Middle School (Sports Complex), Cook’s Corner Office Complex, and at the two present elementary school properties, as potential reuses after their closure upon completion of the new elementary school located at Locust Hill. Individual commercial development projects and proposed residential subdivisions could benefit by including suitable recreational and park-like facilities as a part of their design.

4. Agriculture, Forestry, and Fishing

Agricultural and forested lands are a critical component of Middlesex County's rural environment and lifestyle. Agricultural and forested lands not only make a needed contribution to the rural environment, they also contribute positively to the County's revenues. The importance of agricultural and forestry activities must be reflected in County policies, practices, and ordinances.

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It is the intent of the County that agricultural operations be unconfined in their reasonable day-to-day functions.

Owners of timberland should work closely with the Virginia Department of Forestry, which maintains an office in the Courthouse, to ensure that timber stands are well managed. The County can best preserve, protect, and enhance its recreational and fishing assets by adopting or supporting programs to enhance the quality of its estuarine waters and productive fisheries.

5. Tourism

Middlesex County should seek ways to promote tourism as an industry, particularly heritage and eco-tourism opportunities.

6. Commercial Development

A major goal of the County is to provide ample opportunities for commercial development to serve existing and anticipated demand. The Plan intends to provide consumers with centralized shopping locations without perpetuating the tendency to succumb to strip development. Commercial development is a most appropriate and essential part of any new town or hamlet-like development, whether in an existing settlement or a suitably located new development. In general, the County encourages commercial expansion to be situated where the most favorable economic conditions exist so as to provide the best opportunity for the enterprise to succeed. A pressing objective of the County is to interrupt the lateral extension of existing commercial areas along State Route 33 between Amburg/Deltaville and Hartfield and also between Hartfield and the Saluda/Cook's Corner area. West of Saluda, along the central path followed by U.S. Route 17, settlements seem to be merging near Warner and Jamaica. While these settlements have not evolved sufficiently to be established as commercial centers, they appear to possess the attributes which indicate that future development is likely. Other settlements exist off the central corridors of U.S. Route 17 and State Routes 3 and 33. Commercial development should be strongly encouraged to be designed in a manner compatible with the rural/residential character of the County. Parking areas should be landscaped and buffered and signs should be much smaller than are currently allowed.

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Roadside commercial development should avoid front yard parking areas. Within hamlets, commercial development should be low intensity in nature. Convenience stores, service stations, banks, and other commercial developments acceptable to hamlet-like settlements should not be permitted unless architecturally compatible with the community. a. Waterfront Commercial Development

Waterfront commercial activities are recognized as a critical element of the overall economic activity within the County. It is the intent of the County to capitalize on the waterfront development opportunities available within the area to stimulate reasonable, progressive long-term economic growth. New marina and seafood industrial development, including aquaculture, should be located in areas already predominated by such uses. A distinction should be recognized between boat docking facilities and other facilities like boat maintenance and service yards. Boatels, high-and-dry storage buildings, covered slips, boathouses, mooring buoys, or other similar marine structures should not be permitted to disrupt the aesthetics of the scene or interfere with neighboring viewsheds. Campgrounds in Middlesex County are located on waterfront property and are a significant part of the County's commercial economy. The revenue generated by campgrounds and the economic impact to commercial entities exceed the services provided by the County.

b. Marinas

In 1999, Middlesex County had 2,941 boat slips at 46 marinas as classified by the Virginia Department of Health. An additional 306 slips are located at “other places where boats are moored” (VHD). The greatest concentration of marinas is on Broad Creek (1,104 slips), followed by Urbanna Creek (429 slips), Fishing Bay (363 slips), and Locklies Creek (278 slips). Other marinas are located in tributaries to the Rappahannock and Piankatank Rivers. Several residential and campground developments also have marina facilities. Marinas have the potential to contribute pollutants to the ground and surrounding waters. Individual boats can also impact the waters through the discharge of untreated sewage from onboard facilities. Boats may additionally leak oil, fuel, and antifreeze into the water and contribute trash and refuse overboard in the marine habitat. As of 1999, SARA Title III reports identify one small spill of unknown cause and origin in Wilton Creek that was investigated.

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As water dependent uses, marinas interface with a number of environmental features of shoreline areas. These include wetlands, floodplains, and soils with development limitations. The Deltaville area of the County includes the areas surrounding Broad Creek, Stingray Point, and Fishing Bay. This area is one of the most popular boating centers in the Chesapeake Bay region. Marinas and other places where boats are moored are regulated by the Virginia Department of Health. The Virginia Marine Resources Commission provides criteria for the siting of marinas or community boat moorings.

Every time a new boat mooring facility is approved by the Board of Supervisors and opened for operation, the Health Department, Division of Shellfish Sanitation must restrict direct shellfish harvesting in adjacent shellfish waters. The County recognizes the benefits of marinas but is also cognizant of public concerns about water pollution, littering, and visual obstruction, which remain as very high priorities in the planning process. The County also recognizes the difficulties created by existing zoning boundaries which may not always contain adequate transitions between high impact marina activities and low impact commercial or residential uses. Recognizing the need for adequate transition zones around high impact marina activities, detailed reviews of existing waterfront commercial zoning boundaries should be done to determine what can be done to maximize the development potential of suitably situated commercial properties while minimizing their impact on neighboring non-commercial properties.

7. Industrial Development

Middlesex County can increase the probability that suitable industry will locate in the County by preparing in advance. Preparation largely relates to the willingness of the population to provide, or at least plan, the accommodations necessary to attract industry and the level of preparation County officials achieve in order to smooth and speed the approval process.

In order to attract desirable high wage industries, the skill level of the labor force in Middlesex County will need to be enhanced.

To be successful, the industrial development program must have an inventory of suitable industrial sites to show to prospective businesses. Many areas along the U.S. Route 17 corridor may be considered as Industrial Development Opportunity Zones. The County should initiate a study to identify several general sites which possess the qualities desired by typical suitable industry.

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Middlesex County strongly encourages industrial development which is compatible with its rural environment and does not generate excessive levels of point source pollution. In defining selected areas as Industrial Development Opportunity Zones, the County should do sufficient preparatory work to make possible the quick approval of acceptable rezoning applications a marketing feature.

8. Public Facilities and Services

a. Schools

With the recent completion of St. Clare Walker Middle School, Middlesex County has adequate facilities for grades six through eight. Plans are underway to add to and improve the High School as well. The elementary facilities at both Wilton and Rappahannock Central will be replaced by a new elementary school in Locust Hill, which is under construction on State Route 620 near the Middle School. The new Middlesex Elementary School will open in 2002.

b. Cultural Assets

The auditorium included in the new St. Clare Walker Middle School will provide a facility for conducting a wide range of social and cultural activities. Libraries located in Urbanna and Deltaville will serve the future needs of their communities well into the next decade.

c. Government Facilities

At present the County seems adequately served by government facilities. The Middlesex County Courthouse and the Woodward Administration Building house the County administrative offices. A new courts facility is being considered. The County Sheriff's Office and jail are nearby. A facility occupied by the Middle Peninsula Planning District Commission (MPPDC) contains a conference center available for occasional meetings. School Board and Social Services offices are located at the Cook’s Corner Office Complex.

d. Waterfront Access

Middlesex County owns or controls several natural areas and water access points. Some are currently in use while others are not generally known to the public or are simply not suitable for public use.

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The County should encourage the progressive development of publicly owned natural areas and water access points. There is a need for more immediate and suitable waterfront access to the Chesapeake Bay fishery by commercial watermen.

9. Transportation

a. Highways

The transportation network in Middlesex County is generally suitable for existing and foreseeable needs. Typical arterial roadway system improvements will be necessary to meet state and regional needs. Plans are underway to continue to upgrade State Route 33. Also as Rappahannock and Piankatank River Bridge traffic on State Route 3 increases, a new arterial highway from near Hummel Airfield more directly into Hartfield may also be warranted. An eastern bypass around Saluda may become necessary.

b. Pedestrian and Bicycle Traffic

Selected roadways should be designated as bicycle routes and, as normal roadway maintenance and improvements are scheduled, these roadways should be widened and marked for Class II bicycle paths.

c. Aviation

Middlesex County and its neighboring communities are served by Hummel Airfield. A regional aviation facility has been developed in West Point providing service to Middle Peninsula localities.

10. Utilities

The Deltaville and Saluda areas need to be considered for central utility systems. Utility construction will also be necessary to support economic development initiatives. The County should consider any opportunity to form a public/private partnership for utility construction in order to reduce initial costs.

11. Water Quality and Chesapeake Bay Preservation Act

a. Surface Water

In 1988 the Virginia General Assembly passed the Chesapeake Bay Preservation Act (Bay Act) as Virginia’s commitment to improving the health of

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the Chesapeake Bay. The intent of the Bay Act is to balance the needs of economic development and environmental protection. The Chesapeake Bay Local Assistance Department (CBLAD) was created to develop regulations thereby establishing the criteria for local governments to use in designating and managing Chesapeake Bay Preservation Areas in their jurisdictions. All local governments in Tidewater, Virginia, including Middlesex County, are responsible for implementing the Bay Act and therefore are required to designate Chesapeake Bay Preservation Areas and adopt a local program regulating the use and development of these areas in a manner consistent with the Bay Act. The Bay Act attempts to identify and focus on those critical land areas, which if improperly developed, could result in substantial water quality degradation. These areas are called Chesapeake Bay Preservation Areas (CBPA’s) and include two components. The two components are the Resource Protection Area (RPA) and the Resource Management Area (RMA). Approximately seventy-two percent (72%) of Middlesex County is classified as a CBPA. A Resource Protection Area (RPA) includes land area at or near the shoreline that contains sensitive natural features that play an important role in protecting water quality through the ecological and biological processes they perform. The CBP District regulations of the Middlesex County Zoning Ordinance designates land areas meeting the following criteria as RPA’s:

1) Tidal wetlands; 2) Nontidal wetlands connected by surface flow to tidal wetlands or perennial

tributary streams; 3) Tidal shores; and, 4) A 100 foot wide buffer area located adjacent to and landward of perennial

tributary streams and the other above RPA features.

The Resource Management Area (RMA) is land area that protects and buffers the sensitive features of the RPA. The RMA is located landward and contiguous to the RPA. The CBP District identifies RMA’s as land containing any of the following features:

1) The one hundred (100) year floodplain;

2) Nontidal wetlands not connected by surface flow and contiguous to tidal

wetlands, tributary streams or other tidal waters; 3) Highly erodible and highly permeable soils;

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4) Slopes in excess of fifteen percent (15%); and, 5) Where none of the above features exist, the RMA shall be a one hundred

fifty (150) foot linear distance from the landward side of the RPA. A more complete discussion of Bay Act objectives and permitting requirements is found in The Middlesex County Chesapeake Bay Preservation Area Development Handbook available from the Middlesex County Planning Department.

b. Groundwater Resources

Groundwater resources in the County are generally adequate to meet the existing and future water demands of the County, primarily supplying residential development and limited commercial and light industrial development. Sources of potential groundwater contamination in the County come primarily from malfunctioning septic systems, abandoned well sites, use of agricultural chemicals, and possible leaking underground storage tanks. The County will continue to work with local Health Department officials in the location and construction of individual septic systems to reduce the potential threats of these systems to groundwater resources. As of January 1, 1999, the Division of Shellfish Sanitation had identified 33 properties in Middlesex County that have sewage deficiencies. These sites are located over a broad area of the County with the greatest number of deficiencies found in the Urbanna Creek watershed, followed by the Lagrange and Robinson Creeks Watershed. The County will continue to work with the Tidewater Soil and Water Conservation District in reviewing and encouraging the use of the soil conservation and water quality plans and nutrient management plans among farmland owners in the County, especially where such activities occur in RMA and RPA designated areas. The County should also encourage the State to make financial assistance available to property owners seeking to identify problems with leaking underground storage tanks and remediation. Another potential source of water pollution is from illegal dumpsites and junkyards. The County has two ordinances that it aggressively enforces to prohibit and remediate these potential problems. In February 1998, Middlesex County became a member of the Hampton Roads Sanitation District (HRSD). In the Town of Urbanna, HRSD has taken over the operation of the water treatment and sewage treatment facilities.

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12. Historic/Archaeological Resources

The Middlesex County Museum, the first County museum in the State, is located in Saluda across from the Courthouse grounds. The Museum owns two buildings in Saluda. The Museum is reviewing expansion options and will require support from the County in its endeavors.

13. Redevelopment

In its June 21, 1999 Resolution, “Determination of Consistency – Final”, the Chesapeake Bay Local Assistance Board agreed with its staff recommendation of a finding of consistency with respect to the Middlesex County Comprehensive Plan with one condition. That is, after considering and evaluating the information presented, the Board agreed with the recommendation in its staff report that during the County’s next Plan revision the inclusion of additional implementation actions relating to shoreline erosion and redevelopment would be expected for review. During the preparation of this Update, the County Planning Commission and staff considered the issue of redevelopment (and shoreline erosion which is discussed later in this chapter) and formulated a goal statement, objectives, and implementation strategies. In some localities, the designation of Intensely Developed Areas (IDA’s) is used to address the water quality impacts of heavily urbanized or development areas. No areas in Middlesex County are considered to meet the criteria for IDA designation and therefore there are no IDA’s in the County. Even without the identification of IDA’s, Middlesex County will continue to seek ways to improve water quality on individual redevelopment and renovation projects. Currently, redevelopment and renovation projects in the County are primarily single-family home construction projects. With respect to housing redevelopment and water quality improvements, there are relatively few homes (195 units in 1990) in the County that lack adequate indoor plumbing facilities. Other potential redevelopment opportunities that exist include waterfront seafood processing plants that have either been abandoned or operate sporadically. The County will (again) assess the potential designation of areas as IDA’s and the promulgation of additional water quality protection and development standards for such areas.

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14. Shoreline Erosion

In this update, based on the deliberations of the County Planning Commission and staff, a goal statement, objectives, and implementation strategies were developed pertaining to shoreline erosion. Shoreline erosion in the County is most prevalent along portions of the Rappahannock River, and especially Stingray Point, due to their northeast exposure. In December 2000, the Middlesex County Shoreline Situation Report was released through the Comprehensive Coastal Inventory Program by the Virginia Institute of Marine Science (VIMS) and the College of William and Mary. Copies of this extensive report are available for use and review in the Middlesex County Planning Department offices. Preparation of the report was supported by the Chesapeake Bay Local Assistance Department (CBLAD), the Tidewater Soil and Conservation District, and the Virginia Coastal Resources Management Program of the Virginia Department of Environmental Quality (DEQ). Using the Shoreline Situation Report (SSR) as an information base, the County should seek the assistance of CBLAD, VIMS, and the MPPDC in developing a comprehensive shoreline protection plan for Middlesex County. In its workplan, the Planning Commission should use the report to evaluate subdivision ordinance requirements related to new waterfront subdivision proposals in terms of shoreline conditions and mitigating potential erosion impacts. The County should use the SSR when developing management strategies or making regulatory decisions. The SSR provides important information and thus is a valuable management tool.

E. FUTURE LAND USE

1. Land Use Development Patterns Many factors are considered and weighed in determining what types of development should be encouraged where in the County. These factors include, but are not limited to, existing development; transportation facilities; the location of public facilities and services; water and sewer; environmental concerns and constraints; and the development needs, goals and priorities (affordable housing, business development, open space preservation, etc.) as may be established by the citizens and Board of Supervisors of Middlesex County. The County attempted to designate more intensive development areas referenced as Hamlet-like, Farmstead-like and Transitional Development Areas on the Future Land Use Map at locations where significant environmental features were minimal. However, given the fact that much of the County is composed of one or more

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sensitive environmental features such as highly erodible soils, highly permeable soils, hydric soils (an indicator of wetlands), steep slopes and floodplains, these features are difficult to avoid and may be present in some measure in designated development areas.

2. Commercial Centers

Commercial development opportunities are primarily found in Town-like Developments. At the center of these developments is a district zoned for General Business (GB) which is suited for commercial activities of medium-to high-density and impact. Surrounding each General Business district is a Village Community (VC) district suited for a mix of low-impact commercial, community service and residential activities in a moderate- to low-density setting. Similar to Town-like developments, Waterfront Commercial (WC) developments contain commercial activities which have the special requirement of being situated on or near the water. Hamlet-like and Farmstead-like developments may include low-impact commercial activities which are related to the most immediate needs of the inhabitants and occasional passersby.

3. Residential Areas

No area of the County is unacceptable for suitable residential development, but preserving Prime Farmland is a high priority of the Plan. The density of dwellings and the number of dwelling units per structure vary from high- and medium-density single- and multi-family dwellings in Town-like settlements to low-density, single-family dwellings in rural and agricultural districts.

4. Industrial Development Areas

Opportunities for suitable industrial activities exist in Light Industrial Districts located at Grey’s Point near Hummel Airfield, near Urbanna, and along U.S. Route 17 south of Saluda. In addition, areas along the U.S. Route 17 corridor may be designated Industrial Development Opportunity Zones.

5. Water and Sewer Study Areas

As development intensifies, certain areas possessing limited potable water resources and soils with poor sewage absorption capacity may seek to facilitate continued development by constructing public sewer and/or water systems.

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6. Public Access Points

Middlesex County residents are blessed with several opportunities to access and enjoy unique and beautiful natural resources located in and around the County.

7. Transportation Corridor Highway Improvements

Transportation corridor highway improvements are those central arterial highways currently scheduled for improvement (usually widening to four lanes/divided) while transportation corridor highway improvements (future) are those central arterial highways which may require improvement and/or re-routing in the foreseeable future.

8. Scenic Tourist Corridors

Scenic tourist corridors are those highways identified as contributing significantly to the scenic attractiveness of the County as a tourist route.

F. GENERAL ZONING

Zoning is the legal process by which the local governing body controls and regulates the use and development of property as defined by assigned, differentiated districts. The Zoning Ordinance is a technical document that spells out terms, uses, administration and enforcement of zoning.

G. COMPOSITE (POTENTIAL) DEVELOPMENT CONSTRAINTS

Several land and environmental features – individually and in combinations – may act to constrain certain types of development in Middlesex County. Soils, the presence of wetlands, and areas regulated by the Chesapeake Bay Preservation Act (CBPA) are foremost among these features.

VI. GOALS, OBJECTIVES, AND IMPLEMENTATION STRATEGIES A. GENERAL GOALS

Enhance and preserve the agricultural - forestal - open space identity of Middlesex County, the continuation of current village development patterns, and the prevention of lateral expansion between village areas. Guide and encourage the coordinated, balanced, and harmonious development of Middlesex County to ensure achievement of the highest possible quality of living environment.

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Encourage public participation in the planning, decision-making, and implementation processes. Utilize this Comprehensive Plan to achieve the preceding goals.

B. GENERAL OBJECTIVES

Foster policies and programs which ensure the well-being of Middlesex County citizens. Focus public and private attention on these policies and programs. Continue to define and delineate the physical, social, and economic characteristics of Middlesex County. Promote and develop recreational, cultural, and public use facilities. Preserve and promote a desirable visual and ecologically sound environment. Develop and build the economic tax base of the County by encouraging the location of new business opportunities and the expansion of existing businesses.

C. ISSUE AREAS' GOALS, OBJECTIVES, AND IMPLEMENTATION

STRATEGIES Fourteen general issue areas have been identified by Middlesex County. These are environment; residential development; parks and recreation; agriculture, forestry, and fishing; tourism; commercial development; industrial development; public facilities and services; transportation; utilities; water quality; historic/archaeological resources; redevelopment; and shoreline erosion. Goals, objectives, and implementation strategies for each of the issue areas have been developed. Goals are long-range community aspirations for the significant positive gains that should be achieved by the County and serve to establish the future direction of the County. Objectives are more specific than goals and will delineate the definite direction pursued in order to achieve the County goals. Implementation Strategies are specific actions or work items which direct the accomplishment of goals and objectives. As such, these represent the County's land use planning work plan to be spearheaded by the Planning Commission.

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1. Environment

Goals: Ensure the protection and stability of the natural and man-made environment of Middlesex County by encouraging growth to occur in accordance with the Comprehensive Plan. Objectives: • Recognize the limitations of the land to support, at varying densities and

intensities, differing uses and to be aware of the levels of use at which environmental degradation occurs.

• Protect the natural and rural character of the County by encouraging the retention of forests, agricultural lands, and open-space areas.

• Encourage the conservation and protection of safe and adequate water supply areas, both above- and below-ground.

• Protect rivers, marshes, wetlands, and other bodies of water, e.g., the Dragon Run System, from pollution, disturbance, and destruction.

• Preserve, protect, and enhance the historic, scenic, cultural and architectural

character of the County.

• Encourage new development that is visually attractive and compatible with the natural beauty of the County.

• Provide governmental improvements that support rural development patterns

as opposed to sprawling "non rural" development. • Support the update of shoreline mapping and conditions for Middlesex County

by the Middle Peninsula PDC. • Support planning activities and ordinance amendments that serve to preserve

open space, promote the clustering of development, protect ground and surface water resources, protect wetlands and other sensitive environmental features, and reduce stormwater runoff.

Implementation Strategies: • Amend the zoning and subdivision ordinances to require applications to include

identification of significant and sensitive historic, scenic, and natural resources as a part of any Plan of Development submittal.

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• Revise ordinances to require that any incidental discoveries of such resources be immediately identified to County officials prior to continuing any activities which jeopardize the resource.

• Require the setting aside of land containing significant and sensitive resources and the clustering of residential dwellings on larger parcels of land.

• Amend the zoning ordinance to encourage development patterns contained in "towns", "hamlets", and "farmsteads" and golf course communities.

• Revise the sign ordinance to significantly reduce the size and number of freestanding signs in the County. Prohibit off premises signs. In commercial zones signs should be no greater than 32 square feet in area per side or 64 square feet total. Sizes should be designed in other zones. Signs should be externally illuminated and at ground level. The business community should be encouraged to agree upon a uniform design theme for freestanding signs and associated landscaping. Establish procedures for the fair and orderly elimination of existing signs not conforming to these criteria.

• Adopt ordinance provisions which will result in parking areas being obscured year round from the view of adjacent rights-of-way by means of buildings, earthen berms, landscaping, or any combinations thereof.

• Incorporate architectural and landscaping regulations as part of the zoning ordinance and institute a review process under the auspices of the Planning Commission to ensure that development or modifications are coordinated and harmonious with their surroundings in order to preserve the rural character of the community.

• Amend the zoning ordinance to protect greenspaces. • Adopt an ordinance which will give the County control of mooring buoys. The

County could then control the number of buoys and the location of them and could derive revenue from them.

• Develop and adopt an ordinance pertaining to property and structure maintenance which will regulate structures deemed non-rehabitable and consequently a hazard to the safety of the community as well as an eyesore to our County. Such structures should be improved or razed.

• Participate in the overall state program to protect the waters of the Chesapeake

Bay through the administration and enforcement of applicable zoning, subdivision, and erosion and sediment control, floodplain, and wetlands land use development ordinances and the periodic review and amendment of said ordinances when required.

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• Rely on the Health Department to identify and inspect malfunctioning septic systems and to initiate appropriate action to repair such systems.

• Work with the Soil and Water Conservation District in the review of soil

conservation and water quality plans and nutrient management plans for agricultural operations.

• Through zoning, direct major commercial, industrial, and residential

developments to designated planned development areas. • Coordinate County permitting of development with applicable state and federal

regulatory agencies and continue to make state and federal permitting a condition of local permit issuance.

• Require new development and redevelopment of properties in designated Bay

Act Areas to satisfy Bay Act performance criteria and establish and maintain appropriate best management practice to mitigate potential environmental impacts.

• Enforce the zoning ordinance. • Develop greenspace protection strategies. • Develop cellular communications tower standards and incorporate same into

the zoning ordinance. • Identify prime agricultural land and forestland and protect such areas from

incompatible or unwanted development through the zoning ordinance.

2. Residential Development

Goals: Ensure the availability of affordable, safe, and sanitary housing for all County residents. Objectives: • Promote residential renovation and new construction which will provide a

variety of permanent dwellings to fulfill the needs of low- to high-income households.

• Encourage residential development which primarily provides single-family dwellings.

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• Promote residential development which is preferably concentrated in and around designated population centers rather than on open prime farmland. Prime farmland is defined here as land that is presently farmed or has the capacity to be farmed and that is not considered Highly Erodible Land (HEL) or wetlands.

• Encourage patterns of development along the fringes of productive farmlands, open areas, and scenic views so as to preserve the open space atmosphere.

• Promote residential architecture which is consistent with the traditional character and design of the County.

• Promote and encourage an alterative to mobile homes. Implementation Strategies: • Institute proceedings to condemn and remove dilapidated structures when

safety issues are identified. • Meet with forestry and extension service personnel to identify prime forest and

agriculture areas. • Conduct a work session(s) on the purpose and extent of the Low Density

Residential (LDR) District. • Develop zoning text and map revisions as necessary resulting from work

session(s) on the Low Density Residential (LDR) District. • Develop standards for animals in residential districts. • Enforce the zoning ordinance. • Examine the need to develop additional residential zoning districts to meet

varying residential development needs and concerns.

3. Parks and Recreation Goals: Ensure the development of the County's parks and recreation facilities to meet the needs of its Parks and Recreation Programs and enhance public access to natural and recreational resources.

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Objectives: • Support the re-establishment of a Parks and Recreation committee in the

organization and implementation of a county-wide recreation program.

• Provide the necessary facilities to support the Parks and Recreation Program and to increase public access to natural and recreational resources. Access should not be detrimental to that resource.

• Continue support of the County parks and recreation director and consider

expanding the services currently offered and making the director position a full-time position.

Implementation Strategies: • Expand recreation facilities at public schools and County properties and make

facilities available to the programs of the Parks and Recreation Department with facility development proceeding based on the projected needs of these programs.

• Purchase parkland and natural areas in accordance with the standards provided in this Plan.

• Establish a program to solicit support persistently from the State authorities in

the siting of a State Park within the County.

• Establish a program for the evaluation of properties owned by the County which have potential as suitable sites for public use as access points to the waterways, natural areas and scenic and historic assets. Consideration should be given to the liquidation of such properties having no foreseeable potential use to the County.

• Work with local realtors and landowners in the attraction of developers interested in the construction of a golf course/ residential community and identify incentives to be given such developers to facilitate projects.

• Include funding in the Capital Improvement Funding Program for revitalization

and maintenance of properties where such improvements are intended for public use.

• Develop a parks and recreation master plan. • Study re-use options for the Wilton Elementary School and site as a

community-scale park.

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4. Agriculture, Forestry, and Fishing

Goals: Ensure the preservation, protection, and enhancement of agriculture, forestry, and fishing industries in the County. Objectives: • Promote, protect, and enhance the quality of estuarine waters and their use as

areas for shellfish propagation and marketing.

• Protect and enhance productive fisheries.

• Encourage implementation of programs which provide technical assistance to owners of forestlands in areas of management and reforestation.

• Promote the establishment of programs for the reforestation of critically erodible crop and pasture lands as a method of preventing soil erosion and improving water quality.

• Encourage the development of fire control plans for heavily wooded areas.

• Encourage the agricultural community to implement, wherever possible, the conservation techniques advocated under the Virginia Agricultural Best Management Practices Program as a means of controlling "non-point source pollution" and improving farm productivity and efficiency.

• Preserve and protect farmland in Middlesex County. Implementation Strategies: • Meet with forestry and extension service personnel to identify prime forest and

agriculture areas. • Delineate the limits of projected future land use to better identify areas

designated for protection from incompatible or unwanted development.

5. Tourism

Goals: Ensure tourism is recognized and promoted as an industry and encourage its continuing growth and development.

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Objectives: • Promote programs and initiatives that publicize the image of the County as a

quality tourist designation.

• Encourage the re-establishment of a county-wide Middlesex Chamber of Commerce.

• Promote programs and initiatives that utilize the historic attributes and natural beauty of the County as a tourist attraction.

• Promote sports fishing and aquatic recreational activities.

• Encourage the development of bicycle paths between activity centers.

• Encourage entrepreneurial enterprises such as a variety of lodging accommodations, restaurants, and antique and specialty shops.

• Encourage the development of golf courses/golf course resorts and tennis courts.

• Promote tourism as an industry in the County.

• Support the Coordinator of Tourism to ensure that the County takes advantage

of available State programs to promote the area as a tourist destination. • Encourage formation of a County-wide businessmen's organization to promote

the area. • Provide bicycle paths where appropriate to encourage foot/foot-powered traffic

into commercial centers and tourist attractions. Participate in available State programs that can facilitate construction of bike-paths, particularly along primary routes.

Implementation Strategies: • Implement a comprehensive Tourism Program for Middlesex which seeks to

diversify and expand tourism as an industry. Strictly emphasize quality in all programs and developments.

• Assign a Coordinator of Tourism to initiate and coordinate public and private efforts to promote tourism.

• Create and distribute a promotional pamphlet/flyer highlighting the County's attributes for prospective visitors and customers.

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• Require that walkways be included in plans for developments on arterial streets and commercial centers.

6. Commercial Development

Goals: Ensure an effective and sustainable commercial development pattern to achieve a balanced economy and tax base to the fullest extent possible which will supply the greatest possible range of goods and services to the community at appropriate, and convenient locations with consideration of the County's fragile environment. Ensure sufficient land areas are available for commercial development to serve existing and anticipated demand. Objectives: • Promote the layout of commercial centers to preclude "strip" development.

• Protect the natural environment to the greatest extent possible by encouraging

commercial development which makes maximum use of natural amenities and thereby accentuates the rural aspects of the County.

• Promote a desirable shopping environment through proper site plan design.

• Provide consumers with centralized shopping opportunities by promoting clustering of commercial development.

• Promote the use of landscaping, screening, and buffer zones as methods of ensuring a desirable visual environment. Encourage existing business to conform to architectural and landscape criteria.

• Encourage the exclusive use of low-profile signs and other architectural treatments which are in keeping with the traditional aspects of the County.

• Promote an adequate transition from high-impact activities to low impact and non-commercial activities through proper location of land uses.

• Encourage waterfront commercial development within areas already predominated by such activities.

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Implementation Strategies: • Participate in a formal program designed to help rural communities identify and

develop their assets.

• Monitor and pursue the funding opportunities associated with grant and/or loan programs. The Virginia Department of Housing and Community Development, the Small Business Administration, United States Department of Agriculture Rural Development, and the Economic Development Administration have numerous programs to assist commercial growth.

• Develop and implement standards for signs and billboards.

• Develop the necessary infrastructure to accommodate new commercial

development. • Utilize the location and provision of infrastructure improvements to direct and

encourage commercial development into desired areas.

7. Industrial Development

Goals: Ensure the creation of an industrial base with sufficient diversity to provide employment opportunities to County residents without adversely affecting other land uses or the environment. Objectives: • Promote the attraction of clean, light industries within the County.

• Provide sufficient and suitable land areas designated as Light Industrial

Districts to accommodate anticipated future development.

• Promote attractive, well-designed industrial sites which project a positive image of Middlesex County as a desirable location for economic development.

• Provide resources and services to industrial sites. • Support programs, objectives, and initiatives of the Middlesex County Industrial

Development Authority.

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Implementation Strategies: • Adopt a policy stating "Middlesex County is Open for Business" and

communicate same to each regulatory agency operating in the County. • Create a business incubator serving County or area businesses. • Develop additional public accesses to the water and improve existing public

access areas. • Develop central public water and wastewater facilities in areas of existing

concentrated development and areas for future development. • Develop a County park and public day use area that has access to the water

and provides a variety of marine and water-oriented activities. • Prepare an inventory of all businesses, services, and public facilities serving

tourists in the County. • Create a Middlesex County Web Site that includes a comprehensive listing of

services and facilities related to tourism and other facets of economic development.

8. Public Facilities and Services

Goals: Ensure the provision of adequate public facilities and services at appropriate locations in order to serve the needs of the community conveniently, efficiently, and economically. Objectives: • Provide a positive impact on the direction of development through the location

and provision of public utilities and service. • Recognize the existing and anticipated need for public facilities based on

present and future populations as outlined in the Comprehensive Plan.

• Promote the development of new or additional facilities and/or consolidation of existing facilities and services of community service organizations and agencies.

• Promote the re-use of County-owned facilities for the benefit and convenience

of residents and visitors.

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• Promote the utilization of undeveloped County-owned lands for the benefit and convenience of residents and visitors.

Implementation Strategies: • Develop and utilize a Capital Improvements Funding Program in support of the

Goals of this plan. • Conduct a public facilities needs analysis. • Develop a shoreline access and management plan. • Study re-use alternatives for the Rappahannock Central Elementary School

and the Wilton Elementary School and sites.

9. Transportation

Goals: Ensure the development of an effective transportation system that will ensure the safe, efficient movement of people and goods both within and through Middlesex County. Objectives: • Support the upgrade of the roadway system as conditions and traffic

necessitate to achieve the safe and efficient movement of people and goods.

• Foster the development of alternative transportation facilities such as air, water, bicycle/pedestrian and mass transportation in the County.

• Promote residential development patterns that limit excessive direct driveway access to highways, streets, and roads.

• Recognize that an eastern bypass around Saluda may become necessary. In anticipation of that occurrence, development patterns should reflect that the bypass would be a limited access highway.

• Encourage commercial and light industrial development patterns which

concentrate these facilities in areas that provide convenient access to the public while preventing the development of strip development.

• Recognize that increasing Rappahannock and Piankatank River Bridge traffic on Route 3 and secondary routes 626, 624, and 623 may necessitate a new arterial highway from a point east of Hummel Airfield more directly into the Hartfield intersection of Route 3 and 33. In the meantime, truck traffic should

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be restricted on Route 626, 624, and 623 and route on Route 3 through Harmony Village.

• Recognize that interruptions of traffic in commercial and residential centers should be minimized by restricting access to arterial highways. Development patterns should expand away from through-routes by utilizing secondary roads, collector streets, and service roads both to control traffic and to minimize strip development. Residential developments should use collectors and common driveways to minimize access points to primary and secondary roads.

Implementation Strategies: • Lobby for improvements to the Route 33 artery which would include increasing

the number of lanes from Harmony Village to Hartfield from two to four lanes.

• Consult with Bay Transit concerning the feasibility of implementing a public transportation system in the County.

• Support having certain roadways paved three to six feet wider during repaving

in order to provide Class II bicycle paths. Routes 3, 33 and 227 should be candidates in order to provide biking connections between Saluda, Urbanna, and Deltaville, and between the Rappahannock and Piankatank River bridges. Additionally, delineating bike paths from marinas on Broad Creek and Jackson Creek to Deltaville may induce shopping and tourism into Deltaville.

• Define the uses for water access points and commercial ports.

• Amend the Zoning Ordinance to define uses of commercial ports.

10. Utilities

Goals: Ensure the development of public water and wastewater systems within County to serve designated growth areas and planned residential, commercial and/or industrial developments while providing for the continued use of individual wells and septic systems in areas not served by public systems. Objectives:

• Support efforts and programs to prevent any discharge from sewage treatment

plants into surface bodies of water. • Encourage the development of a water and wastewater master plan.

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• Foster cooperative public/private initiatives with potential developers to achieve affordable system development.

Implementation Strategies: • Conduct a broad scope evaluation of the available potable water sources for

centralized systems throughout the area. The study should include the feasibility of the construction of reservoirs in the western end of the County. Existing and future well sites should be identified and evaluated quantitatively. Incentives should be identified to encourage landowners to cooperate. Regional cooperative initiatives for development and distribution should be explored, as well as the potential for the sale of water to neighboring communities.

• Develop citizen support for groundwater protection strategies through public education.

• Prepare and implement a central water and sewer plan for the eastern end of

the County where groundwater availability is limited and is at the greatest risk of contamination. A central system, operated by the County, would reduce the potential for further groundwater degradation associated with septic tank absorption systems located in soils having a high water table, would reduce the surface water degradation by septic fields and marina and other commercial activities, and would permit the area to continue to develop without jeopardizing existing facilities.

• Investigate opportunities for utility system development on Route 17 in the Saluda development area and potentially for the Virginia Motor Speedway racetrack site in order to support industrial development.

• Rely on the Health Department to control the location, density, and design of

on-site septic systems to reduce threats to groundwater quality caused by cumulative impacts of long-term use.

• Enforce the septic pump-out provision in the zoning ordinance. • Consider requiring installation of sewage treatment facilities in areas of high

density or concentrated development. • Prohibit the use of septic tank tile field systems (mass drainfields) as an interim

disposal system prior to construction of a treatment system in PUDs and major subdivisions.

• Continue to utilize zoning to require reserve/second drainfields for septic tanks.

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• Delineate areas where there is a danger of groundwater contamination and health hazards to residents from septic systems and pit toilets.

11. Water Quality

Goals: Ensure that ground and surface water quality is not degraded by agricultural uses and practices or inappropriate waterfront development.

Objectives:

• Support programs and initiatives that reduce and/or eliminate pollution and the

wasteful use of air, water, soil, and other natural resources in cooperation with the Tidewater Soil and Water Conservation District, Virginia Polytechnic Institute's Cooperative Extension Service, and the United States Department of Agriculture's National Resources Conservation Service.

• Coordinate with State permitting agencies to regulate any mining activities. • Support programs and initiatives that protect and conserve surface and

groundwater resources. • Support programs and initiatives that eliminate water and unnecessary

destruction of plant life and encourage revegetation practices. • Support efforts and programs to control pollution. • Support the efforts of the Virginia Department of Game and Inland Fisheries to

protect and manage wildlife and fisheries resources. • Support programs and initiatives that protect and conserve fragile groundwater

resources, as well as the streams, aquifers, and wetlands within the County. • Support programs and initiatives that protect the land capable of producing

crops. • Promote the scenic and recreational value of the County's waterways and

wetlands for use by residents and recreational visitors from outside the County. • Encourage the use of appropriate best management practices. • Encourage the Adopt a Stream program through the Virginia Department of

Conservation and Recreation.

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Implementation Strategies:

• Implement and enforce the Chesapeake Bay Preservation Act in accordance with the rules and regulations of the Chesapeake Bay Local Assistance Department.

• Utilize sediment and erosion control practices which emphasize the selection of

natural vegetation and preservation of existing stable waterfront land contours and soils in lieu of structural hardening wherever analysis predicts reasonable success. Where structural hardening is required, utilize wave-reducing rip-rap instead of bulkheading. To the maximum extent appropriate, these practices should be consistent across property lines to avoid undesirable effects of incompatible practices.

• Develop a comprehensive stormwater management plan.

12. Historic/Archaeological Resources

Goals: Ensure the preservation of areas and properties of historic and cultural significance in Middlesex County. Objectives: • Protect and preserve scenic, cultural, and historic areas through the

architectural review board. • Support efforts of local historic societies to protect sites and encourage

restoration of buildings. • Encourage efforts to maintain and repair historic structures in the County. • Support efforts to develop and promote heritage tourism and eco-tourism

opportunities. Implementation Strategies: • Apply for funds to inventory historic buildings. Additionally, an archaeological

potentials study should also be developed.

• Develop and adopt land use practices and regulations under the zoning ordinance to protect historic sites and structures and provide adequate buffer areas.

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• Adopt an ordinance regulating activities which might compromise the integrity of a historic building or archaeological site. The ordinance would identify the historic/ archaeological resources and the boundary of a district encompassing these resources. An architectural review board appointed by the Board of Supervisors would administer this ordinance after review of the results of the historic buildings inventory/ archaeological potentials survey.

• Identify areas of Middlesex County that are of multi-generational cultural

significance (farming) which, when combined with the existence of farmhouses and farm structures, may qualify as "rural historic districts".

• Study the creation of corridor protection districts potentially to include Route 227 and any other corridors leading to Urbanna and Routes 33, 3, and 17. • Continually update the County's inventory of Historic Sites and Structures. • Utilize the zoning ordinance to protect historic areas using a historic site overlay

zone. • Coordinate housing code enforcement/redevelopment projects with the State

Department of Historic Resources to ensure that significant architectural details or buildings are identified and preserved.

• Coordinate public works projects with the State Department of Historic

Resources to ensure the identification and preservation of significant archaeological sites.

• Study the need for regulations requiring archeological surveys of land proposed

for development. • Study regulations to require that redevelopment efforts be consistent with the

historic preservation goal.

13. Redevelopment

Goals: Ensure that the character, appearance, and image of Middlesex County is perpetuated in new development and redevelopment proposals. Objectives: • Support the establishment of a redevelopment authority in Urbanna if proposed. • Protect the character of the area (appearance) and the natural environment

eliminating non-conformities where practicable.

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• Support redevelopment of developed areas only after the review of any

redevelopment plans for consistency with the County's land use strategy. Implementation Strategies: • Delineate development areas. • Develop suggested landscaping criteria. • Develop suggested architectural standards. • Review redevelopment plans for consistency with the County's zoning

ordinance and land use plan. • Amend the zoning ordinance to address redevelopment issues.

14. Shoreline Erosion

Goals: Ensure that existing shorelines are preserved to the maximum extent possible by management practices. Objectives: • Support the activities of the Middlesex County Wetlands Board. • Consider the findings in the Middlesex County Shoreline Situation Report

(SSR) on file in the Middlesex County Planning Department (Virginia Institute of Marine Science, December 2000) when reviewing proposed development or redevelopment activities.

• Remain cognizant of current conditions when deliberating shoreline

management decisions. Implementation Strategies: • Develop a shoreline access and management plan. • Consult the Middlesex County Shoreline Situation Report (SSR) closely to

examine the shoreline conditions and the effectiveness of shoreline stabilization structures.

• Seek funding to develop a program for on-going monitoring of non-point source

pollution.

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• Seek funding to target Areas of Concern (AOC) so decisions on funding best

management practices. • Consult the State's targeting for Total Maximum Daily Load (TMDL) modeling --

when developed -- in land use decisions.

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Documents

I. INTRODUCTION - Middlesex County, Virginia Homepage