Resiliency Planning in Norfolk Vision 2100

Norfolk Zoning Ordinance Rewrite

Military Circle/Military Highway UDA Study

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Presentation Agenda

Norfolk and Resilience

– George Homewood, FAICP, City of Norfolk

Vision 2100

– Jeremy Sharp, AICP, City of Norfolk

Norfolk Zoning Ordinance Rewrite

– Pete Sullivan, AICP, Clarion Associates

Military Circle/Military Highway UDA Study

– Vlad Gavrilovic, AICP, Renaissance Planning Group

Q&A

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Norfolk and Resilience

• Norfolk is one of the Rockefeller Foundation’s 100 Resilient Cities

• International network of cities dedicated to becoming more resilient to the physical,

social, and economic challenges that are a growing part of the 21st century

• RC100 defines resilience as the capacity of individuals, communities, and systems to

survive, adapt, and grow in the face of stress and shocks

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Norfolk and Resilience

• Norfolk recently launched a resilience strategy, with three goals:

• Design the coastal community of the future

• Create economic opportunity

• Connect communities, de-concentrate poverty, strengthen neighborhoods

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Creating the 22nd Century

Norfolk

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What is Vision 2100?

• Strategy for addressing sea level rise in long-term future • In the past, the focus was on the challenges

• In the future, those challenges will give rise to opportunities

• Blueprint for aligning decision-making today with the needs of tomorrow • Focus is on land use, but economic and social considerations will also be a part of the

vision

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Why plan for 2100 now?

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Our world is changing…

• Sea level rise could significantly impact Norfolk by 2100 • Projections vary from a 1.6’ to 7.5’

rise in sea levels

• As much as 5% of land would be inundated

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Our world is changing…

• Even with 2-3 feet of water rise, the impact is significant • Up to 47% of land would be in a

high-risk flood zone

Flood zones today

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Our world is changing…

• Even with 2-3 feet of water rise, the impact is significant • Up to 47% of land would be in a

high-risk flood zone

Flood zones with

moderate water rise

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But there remains opportunity

• Even with sea level rise, there is plenty of opportunity • More than half of land would be

outside a high-risk flood zone

• ¾ of commercial/industrial land would be outside a high-risk flood zone • Much of that land is underutilized and

served by abundant infrastructure

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Our population is growing…

• Norfolk’s recent growth is projected to continue • By 2040, Norfolk should grow to

261,000

• By 2060, Norfolk could grow to 272,000

• By 2100, Norfolk may reach 299,000

• To accommodate this growth, 20,000+ housing units will be needed

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But we can support the growth

• Hundreds of acres of land are vacant • Many thousands more are under-

developed

• The infrastructure can support higher densities • Bus/light rail transit

• Pedestrian walkability

• Utility availability

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We have infrastructure needs…

• Norfolk’s facilities are aging • Dozens of Norfolk’s facilities are

more than 50 years old

• 25+ schools

• 9 of 14 fire stations

• Replacing those facilities is expensive • Now building 5 elementary schools

for $130+ million

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And infrastructure planning is ongoing

• Community Facilities • 5 Elementary Schools under

construction

• 2 new libraries planned

• 2 new fire stations planned

• Transportation • Light rail extension to Naval

Station Norfolk

• Improved Elizabeth River harbor crossings (tunnels/bridges)

• Strategic bicycle network

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What should Vision 2100 tell us?

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What should Vision 2100 tell us?

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What is the planning process?

• Awareness building (Fall 2015) • Research on challenges/concepts

• Group exercises to develop concepts

• Asset mapping (Winter 2016) • Community exercises

• Identifying Norfolk’s key assets

• Vision Development (ongoing) • Series of workshops

• Confirming vision concepts, developing strategy

Phase I:

Awareness

Phase II:

Asset Mapping

Phase III:

Vision Development

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Vision 2100 Asset Mapping

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Community Value Areas

• Green dots – economic value

• Blue dots – cultural value

• Yellow dots – identity value

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Potential Value and Transformation Areas

• Red dots – potential value

• Red lines – areas to

change

• Blue lines – areas to keep

the same

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Planning Areas

• “Red” – “economic engine”

• “Yellow” – “water-oriented”

• “Green” – “opportunity”

• “Gray” – “neighborhood character”

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“Red” Areas

• Norfolk’s “economic engine” • Rich in economic, social, or cultural assets

• Assets can’t/shouldn’t be relocated

• Where might these be?

• Within projected high-risk flood zone (some areas protected by sea wall)

• Downtown Norfolk a prime example • High density/mixed-use

• Large-scale, public funded capital investments (flood walls)

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“Yellow” Areas

• “Water-oriented” neighborhoods • Rich in non-location-specific assets

• Large-scale transformation not appropriate

• Where might these be? • Located throughout the city, including many

historic districts

• Within projected high-risk flood zone

• Ohio Creek Watershed a prime example • Smaller-scale, collaborative projects

• Adjusting to “living with the water”

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“Green” Areas

• “Areas of opportunity” • Few current assets, rich in potential value

• Ripe for transformation

• Where might these be? • Underutilized commercial/ industrial properties

• Outside projected high-risk flood zone

• On current or potential transit corridors

• Military Circle Mall area a prime example • Market-driven effort

• Traditional infrastructure investments

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“Gray” Areas

• “Stable neighborhood areas” • Rich in non-location-specific assets

• Large-scale transformation not appropriate

• Where might these be? • Located throughout the city

• Outside projected high-risk flood zone

• May be lagging economically

• Park Place and Fairmount Park as prime examples • Neighborhood-led efforts to protect and enhance

existing assets

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Context – regulation & resiliency

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Themes

User-friendliness

Resiliency Character

Development

standards Nonconformities

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Themes

Resiliency

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How does this translate to development regulation?

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How does this translate to development regulation?

Preserve and protect

Build sustainably Increase choices

Environmental

Economic

Social

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What’s On The Books:

Enhanced three-foot flood elevation requirement

Chesapeake Bay Preservation Area Overlay (CBPA-

O) riparian buffer standards supplemented by

uncodified administrative guidelines—most of city

designated as Intensely Developed Areas (IDAs)

with reduced protection

Modest tree protection regulations

Limited open space standards

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Safeguard vulnerable undeveloped areas from

incompatible development :

Explore limiting IDA designations and reduced buffer

requirements

Use incentives such as sliding -scale density bonuses,

reduced off-street parking, and tailored non-conformity

standards to encourage buffer revegetation

Consider sea level rise in establishing buffers and

reviewing development proposals

Strengthen tree protection and open space requirements

Environmental resiliency

Preserve and protect

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Protect People and Buildings In Vulnerable

Areas:

Adopt tighter standards for locating critical facilities

like hospitals, schools, police, and fire/ems in

flood-prone areas

Allow use of green infrastructure approaches such

as pervious pavement, bioswales

Tailor nonconformity standards to encourage safe

rebuilding

Explore adoption of no-adverse impact floodplain

development regulations as recommended by

certified floodplain managers

Environmental resiliency

Preserve and protect

Build sustainably

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Encourage Sustainable Development In Safe

Growth Areas

Identify less vulnerable safe growth areas

Remove unnecessary impediments to development

in safe growth areas (e.g., excessive off-street

parking standards; restrictions on mixed-use

buildings and accessory housing units)

Focus capital improvements in safe growth areas

Promote sustainable development like energy

conservation, alternative energy, and urban

agriculture by removing code obstacles and

providing incentives

Environmental resiliency

Preserve and protect

Build sustainably

Increase choices

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Include broad array of development options that

provide economic development opportunities for

businesses

Provide a diverse, safe, affordable, and livable range

of housing options

Remove obstacles for, and support, redevelopment

that is consistent with city’s desired character and

context

Provide for efficient and streamlined procedures,

especially for preferred development

Economic resiliency

Increase choices

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Promote a diverse, safe, affordable range of

housing options

Provide tools that allow for aging in place

Support better care for the elderly

Support active lifestyles

Incentivize healthy food options

Social resiliency

Increase choices

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Resilience – tying it all together

Preserve and protect

Build sustainably

Increase choices

Transfer Development Rights

Coastal Resilience Overlay District

Protecting Vulnerable Areas

Enhanced building code

Limit uses to keep vulnerable structures out

of at-risk areas

Allow certain uses that may help recapture

value (e.g. short-term rentals)

Low and wet areas

Neighborhood Resilience Overlay District

Creating Safe Growth Areas and boosting

development potential

Limit auto-oriented uses to improve

pedestrian access

Mobility improvements

Incentivize density, e.g. increase height

limits, reduce parking requirements, allow

ADUs, reduce lot width

High and dry areas

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Military Circle/Military Highway UDA Study

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Military Circle Area Yesterday & Today

1948 2015

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A 50 year transformation plan

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PUBLIC INPUT

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March 2016 Public Meeting – Review Draft Vision

September 2015 – What should the future be?

REVITALIZE

SURROUNDING

AREA

INCREASE

SAFETY &

SECURITY

BUILD FOR

RESILIENCE

CONNECT &

UNIFY THE AREA

ATTRACT

ECONOMIC

DEVELOPMENT

G O A L S

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LONG TERM RESILIENCE

SPINE OF HIGH

GROUND

PROJECT AREA

Source: adapted from Sea Level Rise Maps for Virginia

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LIGHT RAIL OPTIONS

Options from

the HRT 2015

Naval Base

Study

SITE

A B

NAVAL

BASE

Source: NSN Transit Extension study – February 2015

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REGIONAL TRAVEL MARKETS

PAST

PRESENT

FUTURE

INTERSTATES

BOULEVARDS

LIGHT RAIL

(Potential)

SITE

the crossroads

of the Region:

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MEETING PROJECT GOALS

B2

JANAF MALL

MILITARY CIRCLE

MALL

SENTARA LEIGH

HOSPITAL

EXISTING TIDE LIGHT

RAIL

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A 50 Year Transformation

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Value Capture

2,552 du RESID.

5.9 Mil sf

LOW SCENARIO

NON- RESID.

5,763 du

8.9 Mil sf

HIGH SCENARIO

RESID.

NON- RESID.

Net New Development Potential Value (Present Day $)

$2.37 billion

$1.26 billion

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Military Circle Mall

Area

From Suburban Mall to Urban Center

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CURRENT CONDITION

Existing Mall

Conversion of JC Penney store into office space

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STAGE 1

Begin to develop future road and open space system for new urban center

Work with potential developers and tenants on repurposing additional vacant space in Mall

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STAGE 2

Repurpose additional Mall anchor stores as flexible office space or institutional use

Orient new entrances to outside to prepare remainder of Mall for redevelopment

Continue developing future road and open space system as space leases up

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STAGE 3

Demolition of interior of Mall and conversion to temporary open space or parking areas

Create campus of new office uses organized around future street grid

New – high density office space develops for potential transfer of existing tenants from the Mall anchor stores

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STAGE 4

Eventual demolition of former Mall anchor stores and new development of high density mixed office and residential buildings

Right of Way preserved for future light rail in new urban street system

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STAGE 5

Light rail is built and begins to catalyze the development of new high density mixture of uses according to the Vision

Transit couplet allows slower speed walkable transit streets in the core- also allows off-peak shuttle between this area and JANAF

Final development stages are the highest density and tallest buildings around the station area – mix of residential and office towers

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BELMAR – CASE STUDY

DEVELOPMENT STORY:

Lakewood - city of 150,000 located 9 mi. west of Denver

104 ac. failing “Villa Italia” Mall redeveloped into 22 block urban center with:

Single developer bought mall and did a master plan in 2002

$750 mil. Total project – phase 1 completed in 2009

Free shuttle to light rail station 1 mile away

Generates 4 times the tax revenue of the old mall ($17 mil. Per year)

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ADVICE FROM DANIEL BURNHAM:

Make no little plans

they have no magic to stir men's blood and probably

themselves will not be realized. Make big plans; aim

high in hope and work, remembering that a noble,

logical diagram once recorded will never die, but

long after we are gone be a living thing, asserting

itself with ever-growing insistency

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Closing Thoughts