Shenandoah County-Town of Strasburg Joint Land

Transcription

2013
Prepared For: Shenandoah
County, Town of Strasburg,
VA
Prepared By: Northern
Shenandoah Valley
Regional Commission
SHENANDOAH COUNTY-TOWN OF STRASBURG JOINT LAND-USE PLAN
Northern Shenandoah Industrial Park
Shenandoah County-Strasburg Joint Land-Use Plan: Northern Shenandoah Industrial Park
Table of Contents
Table of Contents ......................................................................................................................................................1
Introduction ................................................................................................................................................................2
Assessment of Strategic Plans ..................................................................................................................................5
Joint Planning Recommendations ...........................................................................................................................13
References ..............................................................................................................................................................18
Page 1 of 18
Draft Revised: 14 November 2014
Introduction
The purpose of the Shenandoah County-Strasburg Joint Land-Use Plan was to formulate a land-use strategy that is
mutually agreeable between the Town of Strasburg and Shenandoah County regarding the Northern Shenandoah
Industrial Park. The Northern Shenandoah Valley Regional Commission (NSVRC) staff met with key County and
Town staff to review strategic planning documents, met with Town/County stakeholders to identify desired future
uses and synthesized best practices into joint land-use recommendations. Deliverables include:
A small area plan for the site that should be adopted by both the Town and County; and included as
amended sections of local comprehensive plans;
A comprehensive land use map that outlines the joint-land use classifications; and
Presentation(s) to key Boards/Commissions/Councils
Why a Joint Land-Use Plan?
The Joint Land-Use Plan between Shenandoah County and the Town of Strasburg outlines strategies to ensure
harmonious transition of the Northern Shenandoah Industrial Park parcels from the County to the Town; and to
stimulate growth by clarifying the roles and expectations of the involved stakeholders.
Comprehensive Planning (and/or small area planning) is required by Virginia state law, Section 15.2-2223 to
effectively manage the orderly use of land and provide localities a tool to prepare and cope with change. Changes in
land-use, increasing opportunities for economic development and trends in town-centered clustering in Shenandoah
County have led to discussions of annexation and joint settlement agreements. In 1984, Shenandoah County and the
Town of Strasburg adopted an Annexation Agreement, allowing the Town to annex developing areas that it serves
with public utilities by ordinance.
Location
The Northern Shenandoah Industrial Park covers an area of land in northern Shenandoah County adjacent to
northern Strasburg and several parcels within the Town’s current limits. The Northern Shenandoah Industrial Park as
identified in Map 1 (see page 3) includes approximately 366.83 acres of land. The eligible annexation area by the
Town of Strasburg (identified in Map 1 in red) is comprised of 23 parcels and approximately 302.65 acres of land.
Five parcels (Americold, Mercury Paper, First Bank, Carper’s Woodworking, and Holtzman Oil) are currently
developed (totaling approximately 87.28 acres) and the other parcels are currently vacant or undeveloped (totaling
approximately 215.37 acres). Table 1 (page 4) provides an inventory of all property owners and acreage by parcel
within the eligible annexation area. This key economic development asset abuts Interstate-81, is less than a mile
from Interstate-66, has easy access to US Route 55 (John Marshall Highway) and has railroad access (Charleston
Southern). Also, the Northern Shenandoah Industrial Park is currently served by water and sewer infrastructure
provided by the Town of Strasburg and electric and fiber utilities.
This plan is not a zoning ordinance. The plan itself does not change the zoning of parcels, and it is not a
development proposal for a specific project. Rather, this plan is an official policy document used to guide future
development regulations, development policies, public infrastructure improvements, and evaluations of future
development proposals. The plan provides development guidance to landowners, citizens, professional staff, elected
officials and developers in the proposed joint plan area.
Page 2 of 18
Page 3 of 18
Table 1: Inventory of Existing Property Owners and Acreage (by Parcel Number)
Parcel Number
16-((13))-4
16-((13))-3A
16-((A))-145B
16-((A))-145
16-((13))-1
16-((13))-1A
16-((13))-2
16-((13))-3
16-((4))-1B
16-((A))-123
16-((A))-123 Lot 123
16-((4))-1G
16-((4))-1A Lot 1C
16-((4))-1A Lot 1A &
1D
16-((A))-145A
16-((A))-86Z
16-((A))-86W
16-((A))-143
16-((A))-141
16-( A))-86V
16-((A))-125
Owner Name
WINDCREST DEVELOPMENT LIMITED
CAMS INVESTMENTS LLC
NORTH SHENANDOAH INVESTORS LLC
FIRST BANK
COLLEY BLOCK RD/RADIO STATION/IND
INDUSTRIAL DEVELOPMENT AUTHORITY OF
STRASBURG INTERSTATE LLC
Parcel Acreage
3.59
6.77
20.02
29.15
10.45
3.74
12.11
7.50
19.18
13.10
12.30
9.19
9.50
ART MORTGAGE BORROWER PROPCO 2006-2
STRASBURG COMMERCIAL DEVELOPMENT
Approximate Total Acreage: 302.65
19.20
48.17
0.03
0.24
4.59
0.82
47.15
24.85
Data Source: NSVRC GIS, 2013
Page 4 of 18
Assessment of Strategic Plans
Both Shenandoah County and the Town of Strasburg have undertaken previous planning efforts to address existing
and future land use of the Northern Shenandoah Industrial Park. A comprehensive summary of each plan’s
recommendations for the proposed annexation are provided in the following pages. Staff review included the
following documents:
Strasburg Annexation Agreement (1984) & Strasburg Industrial Park Agreement/Annexation Moratorium
(1998)
Shenandoah County Comprehensive Plan (2007, updated 2012)
Shenandoah County Economic Development Strategic Plan (2012)
Town of Strasburg Community Plan (2012)
Additionally, the Virginia Department of Transportation (VDOT) published a Final Report in the spring of 2013 which
specifically addresses transportation considerations and recommendations for Borden-Mowery Drive that would have
a direct impact on the future viability of sites within the proposed annexation area. These findings are also
summarized below.
Strasburg Annexation Agreement (1984) & Strasburg Industrial Park Agreement/Annexation Moratorium (1998)
In 1984, Shenandoah County and the Town of Strasburg entered into an agreement through which Strasburg would
be able to annex County land outlined in the Strasburg Annexation Agreement Area (see map 2, page 6) pending
certain considerations including:
Maintaining its designation as a town;
Executing an annexation ordinance;
Maintaining harmonious/complementary land-use classifications and ordinance;
Providing water/sewer infrastructure to all annexed areas; and
Extension of government and public safety services to the annexed areas.
A supplementary agreement pertaining specifically to the development of the Northern Shenandoah Industrial Park
was adopted in 1998 which stipulated the Town of Strasburg’s would extend water and sewer into the to-bedeveloped industrial park north of Town (present day Northern Shenandoah Industrial Park). As a condition of this
agreement, Shenandoah County and Strasburg jointly desired to provide critical infrastructure to promote economic
development activities to the industrial parcels. Finally, this agreement provided a stipulation that for 15 years, there
would be an annexation moratorium during which the Town would not be able to annex the industrial park. This
agreement expired on June 30, 2013 and the Town of Strasburg is considering options regarding possible
annexation of parcels within the industrial park.
Page 5 of 18
Map 2: Strasburg Annexation Agreement
Area (1984)
Page 6 of 18
Shenandoah County Comprehensive Plan (2007, updated 2012)
Shenandoah County’s Comprehensive Plan outlines existing conditions, overarching principles and policies for
achieving the County’s Vision statement and Plan goals. The Land Use section of the Shenandoah County
Comprehensive Plan states that “[a] major industrial park, the Northern Shenandoah Industrial Park, was developed
in the northern end of the County just outside of Strasburg corporate limits. It contains several major industries and
plans are proceeding to create additional connectivity within the park to stimulate future growth. It is served by rail
and all utilities including water, sewer, electric and natural gas.”
Shenandoah County’s Existing Zoning Map denotes that the Northern Shenandoah Industrial Park is classified as
General Industrial (M-1) and General Business (B-2). The General Industrial District (M-1) is designed to permit
limited industrial uses in order to encourage the development of the local economy. This classification is found in
several areas of the County, with large parcels in the Strasburg area. The General Business (B-2) is designed for
operations and services which require frequent access from a major roadway. General Business districts are located
primarily at interchanges of I-81. Shenandoah County Comprehensive Plan states that commercial and industrial
uses should also be concentrated in areas where public services are available, and need to be adequately buffered
from adjacent uses and that there should be coordination with the adjacent towns (joint planning exercises).
The Future Land-Use Map (through 2025) identifies the Northern Shenandoah Industrial Park as part of the
Strasburg town limits, referencing the Annexation Agreement (1984).
Finally, the Shenandoah County Comprehensive Plan outlines goals for the future through 2025 relating to future
development potential and growth management, specifically:
Goal #1: Guide and direct growth into and around the towns and public service areas, while preserving the rural and
open space character of the balance of the County.
Objective A: Guide major development to locate in and around the towns and utility service areas.
Strategy 1: Coordinate County zoning in adjacent areas around towns with zoning in the towns so as to
ensure compatible zoning.
Strategy 2: Identify potential public service areas and seek annexation agreements or urban growth area
plans with towns to define those areas.
Strategy 4: Create incentives for development where public services are available.
Objective D: Guide future industrial land uses to locate near the interstate corridor and interchanges where public
utility services are available and adequate transportation facilities exist:
Strategy A: Promote new industry to locate in the existing industrial parks whenever feasible.
Shenandoah County Economic Development Strategic Plan (2012)
The Shenandoah County Economic Development Strategic Plan identifies the Northern Shenandoah Industrial Park
as one of two (2) “state of the art” industrial parks in Shenandoah County available for site development. This Plan
notes the Park’s strategic location in the “golden triangle” between Strasburg, Interstate-81 and Interstate-66, with
easy access to major metropolitan areas including Winchester, Washington DC and Harrisonburg. Although this Plan
Page 7 of 18
does not provide specific recommendations for the joint plan area, it does note that Shenandoah County is an ideal
location for “emerging niche markets,” information technology and government sectors. Strengths and Opportunities
identified for economic development in Shenandoah County are:
Competitive cost of land, infrastructure and employees;
Availability of land (compared to Northern Virginia);
Proximity to major metropolitan areas and airports;
Advanced data connectivity (site served by fiber infrastructure)
Town of Strasburg Community Plan (2012)
The Strasburg Community Plan (2012-Comprehensive Plan) provides for inclusion of parcels identified in the
Annexation Agreement (1984), including the Northern Shenandoah Industrial Park. This includes identification of the
industrial park which is presently outside of the Town boundary on the Future Land-Use Map, and goals and
strategies to ensure a smooth transition of the industrial park into the Town functional service area.
The Future Land-Use Map (see map 3, page 10) identifies the Northern Shenandoah Industrial park as primarily
industrial, with limited commercial uses identified on the western-most parcels adjacent to US Route 55. The Plan
identifies industrial uses as “warehousing, manufacturing and distribution;” and identifies limited commercial as “more
restrictive commercial uses that are generally known to have less impact on public facilities…in addition, limited
commercial uses are more employment oriented (professional services) and less focused around the automobile (no
drive-thru windows, smaller parking areas), commonly known as ‘9 to 5’ commercial land-uses.”
The Community Plan presents a number of goals and strategies, outlining the Town’s desire to further economic
development opportunities and explicitly outlines goals and strategies for the to-be-annexed industrial park,
specifically:
Goal #5: Continue to work in a collaborative effort to further develop the Northern Shenandoah Industrial Park and
the supporting periphery for business and industrial uses.
Strategy A: Perform an in-depth analysis of the costs and benefits of annexing the Industrial Park prior to
the expiration of the current annexation moratorium. If appropriate, work with Shenandoah County to create
a mutually beneficial revised agreement governing annexation in this area and potential areas of nonresidential development beyond I-81.
Strategy B: Include funds for the completion of the Industrial Park access road in the five-year Capital
Improvement Program. Work in collaboration with the County to extend Radio Station Road to the west side
of the railroad tracks in order to serve the undeveloped parcels in this area.
Strategy E: Select and adopt available tax incentive programs which would help attract quality employers to
the Industrial Park.
Additionally, Strasburg presents goals and strategies to support such annexation of an industrial park including
access and collaboration with key partners:
Goal #7: Provide an environment that attracts businesses compatible with the rural small-town character of the town
in order to increase employment opportunities and broaden the tax base.
Page 8 of 18
Strategy A: Encourage businesses to locate on sites with proper access to transportation and utility
infrastructure. Where existing areas are not served by adequate access, new access roads should be
developed when fiscally justified and in keeping with the small-town character of the Town.
Goal #9: Encourage active participation and collaboration with citizens and officials of Shenandoah County and other
neighboring jurisdictions in planning efforts that will benefit the town and region.
Strategy A: Closely coordinate with the County regarding plans for development in the study area.
Collaborate with the County in updating both the Town and County comprehensive plans, and in carrying
out programs and regulations to implement those plans. Formally adopt joint comprehensive planning
policies for the study area, in conjunction with the County.
Strategy B: Coordinate with the County in planning and fostering compatible land uses surrounding the
Town, in harmony with these strategies and the Future Land Use Map.
Strasburg has actively planned for the inclusion of the industrial park into the Town boundary, providing a
comprehensive land-use strategy and appropriate goals and strategies to ensure future and sustained development
of the park parcels.
Page 9 of 18
Page 10 of 18
Virginia Department of Transportation Final Report: Borden-Mowery Drive/Route 55 (Strasburg-2013)
The Virginia Department of Transportation (VDOT), recognizing future development implications on the existing
transportation infrastructure conducted a study to assess the “traffic operations and safety of existing and future
conditions on roadways surrounding the Northern Shenandoah Industrial Park (defined in the study as the Strasburg
Commercial Center), northwest of the Town of Strasburg.”
The Strasburg Commercial Center is a development southeast of the interchange of I-81 and John Marshall Highway
(Route 55) and will contain approximately 299,900 square feet of commercial and 400,000 square feet of light
industrial space. There may be significant impacts on the interchange due to the development’s close proximity and
the location of the access point and intersection control. As a part of this study, various options for site access and
the overall safety along Route 55 will be reviewed. There is a railroad with occasional (one train per day) freight rail
traffic, located south of the approved access point of the development.
The roadway segments analyzed in the study area include the following intersections and their approaches (see map
4 below):
The intersection of I-81 southbound (SB) ramps and Route 55;
The intersection of I-81 northbound (NB) ramps and Route 55;
The intersection of Route 55 and Aikens-Claytor development entrance; and
The intersection of Route 55 and Borden Mowery Drive.
Map 4: VDOT Borden-Mowery/Route 55 Final Report Study Area (2013)
The VDOT Borden-Mowery Drive/Route 55 Final Report recommends the following transportation improvements to
accommodate future growth at the Northern Shenandoah Industrial Park (through 2020):
Page 11 of 18
At the intersection of Route 55 and Borden Mowery Drive, signalize the intersection and construct a
southbound left-turn lane with 200 feet of storage.
At the intersection of Route 55 and Aikens-Claytor development entrance, construct a northbound left-turn
lane with 200 feet of storage (ensure signal is installed as part of that development).
At the intersection of Route 55 and the I-81 northbound ramps, signalize the intersection and construct a
northbound right-turn lane with 200 feet of storage.
At the intersection of Route 55 and the I-81 southbound ramps, signalize the intersection.
Summary of Strategic Plans
To date, Shenandoah County and the Town of Strasburg have partnered and actively worked together to identify
long-term goals and strategies for the development of the Northern Shenandoah Industrial Park. The Northern
Shenandoah Industrial Park is a key economic development opportunity for the County and Town and in both
jurisdictions is desired to be reserved for primarily industrial and general commercial uses including: warehousing,
manufacturing, distribution, general office and non-automobile intensive commercial uses. The park is currently
served by water and sewer infrastructure provided by the Town of Strasburg as a result of the 1984 Annexation
Agreement and 1998 Northern Shenandoah Industrial Park Agreement. Long-term improvements, primarily efficient
access through improved roadway infrastructure, and the improvement of available properties to become “pad-ready”
sites are critical to future development of the undeveloped parcels especially along US Route 55 and Borden-Mowery
Drive.
Page 12 of 18
Joint Planning Recommendations
The proposed Joint Land-Use Map incorporates the following principles that are important to both Shenandoah
County and the Town of Strasburg. The Northern Shenandoah Industrial Park will:
Have appropriate road access for trucks, cars and pedestrians to support a variety of uses;
Have land uses that are compatible and harmonious;
Be marketable and profitable to support potential new businesses and industries;
Ensure continue collaboration and communication between the County and Town for sustained economic
vitality.
These recommendations include the proposed extension to Borden-Mowery Drive across the park and cost sharing
for the proposed extension through a joint agreement between Shenandoah County and the Town of Strasburg to
ensure completion. This also includes recommendations for both the County and Town working collaboratively to
initiate a master planning effort to encompass the entire park and involve all the landowners in the process to
develop a plan for the build-out of the park which would include:
A Vision for the park, how it would look and how it would function;
A Phasing plan for all infrastructure improvements necessary to improve the Park;
Identifying the economic clusters to target based on the regional data and local input;
Any recommended revisions to the zoning regulations; and
Create a marketing and branding plan for the Park.
The Town of Strasburg may also pursue the viability of a Tax Increment Financing (TIF) District for the Park to
construct the infrastructure and would work with the commercial property owner and investors to revise the proffer
based on joint goals for the parcel and TIF funding incentives.
The proposed Joint Land-Use Map (map 5, page 15) merges the Shenandoah County’s Current Land-Use Map with
Strasburg’s Future Land-Use Map. The eligible annexation area will remain primarily industrial use with limited
commercial activities adjacent to Route 55.
Map 6 (page 16) depicts the proposed annexation area as identified by the Town of Strasburg. The Strasburg Town
Council anticipates annexing all eligible parcels (see table 2 below), or approximately 302.65 acres in the eligible
annexation area. Town Council has chosen to annex these parcels as they include the existing businesses within the
Northern Shenandoah Industrial Park (Americold, Mercury Paper, First Bank, Carper’s Woodworking, and Holtzman
Oil) providing additional tax revenue and would create a continuous Town boundary. Other properties within the
proposed annexation area owned by the Industrial Development Authority provide an opportunity for continued, joint
planning efforts between the Town and Shenandoah County. Strasburg anticipates creating a Master Plan for the tobe-annexed area including new marketing efforts once annexation is complete.
Page 13 of 18
Table 2: Inventory of To-Be-Annexed Property Owners and Acreage (by Parcel Number)
Parcel Number
16-((13))-4
16-((13))-3A
16-((A))-145B
16-((A))-145
16-((13))-1
16-((13))-1A
16-((13))-2
16-((13))-3
16-((4))-1B
16-((A))-123
16-((A))-123 Lot 123
16-((4))-1G
16-((4))-1A Lot 1C
16-((4))-1A Lot 1A &
1D
16-((A))-145A
16-((A))-86Z
16-((A))-86W
16-((A))-143
16-((A))-141
16-( A))-86V
16-((A))-125
Owner Name
CAMS INVESTMENTS LLC
NORTH SHENANDOAH INVESTORS LLC
FIRST BANK
COLLEY BLOCK RD/RADIO STATION/IND
STRASBURG INTERSTATE LLC
Parcel Acreage
3.59
6.77
20.02
29.15
10.45
3.74
12.11
7.50
19.18
13.10
12.30
9.19
9.50
ART MORTGAGE BORROWER PROPCO 2006-2
19.20
48.17
0.03
0.24
4.59
0.82
47.15
24.85
Approximate Total Acreage: 302.65
Data Source: NSVRC GIS, 2013
Map 7 (page 17) depicts Strasburg’s new town boundary when annexation is complete.
NOTE: All maps below depict a representation of proposed recommendations and all recommendations are subject
to consideration and adoption by the Shenandoah County Board of Supervisors and the Strasburg Town Council.
Page 14 of 18
Page 15 of 18
Page 16 of 18
Page 17 of 18
References
Shenandoah County, Town of Strasburg. Annexation Agreement, Annexation Agreement Moratorium. 1984, 1998.
Shenandoah County. Comprehensive Plan. 2007, updated 2013.
Shenandoah County. Economic Development Strategic Plan. 2012.
Town of Strasburg. Community Plan. 2012.
Virginia Chapter of the American Planning Association. Managing Growth and Development in Virginia: A Review of
the Tools Available to Localities. October 2012.
Virginia Department of Transportation (VDOT). Final Report: Borden-Mowery Drive/Route 55 (Strasburg). 2013.
Page 18 of 18

Shenandoah County-Town of Strasburg Joint Land

Transcription

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