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Shepherdstown Comprehensive Plan
DRAFT July 2000
Apparently the final has the same text as this, in a nicer format.
TABLE OF CONTENTS
CHAPTER I INTRODUCTION
Introduction
Process
Legal Basis
Organization of This Plan
CHAPTER II GOALS AND POLICIES
Preamble
The GOALS and Policies (13)
1. Maintain Character
2. Residential Primarily Residential
3. Preserve Central Commercial
4. Strategic Commercial Uses
5. Preserve Green Areas
6. Protect Historic
7. Cooperative with Shepherd College
8. Communications
9. Public Facilities
10. Transportation
11. Expansion
12. Shepherdstown's Place
13. Protect Influence Areas
CHAPTER III PLANNING ANALYSIS
Introduction
Land Use
Appearance
History
Neighborhoods - Planning Areas
Shepherd College
Transportation
Utilities
CHAPTER IV FUTURE PLANS
Introduction
Land Use - Future Plans
Introduction
Commercial Land Use
Residential Land Use
Land Use Related GOALS and Policies
CHAPTER IV FUTURE PLANS (Continued)
Historic and Natural Areas
Introduction
Historic
Natural Areas
Related GOALS and Policies
Community Facilities
Introduction
Key Recommendations
Standards for Facilities
Related GOALS and Policies
Transportation
Introduction
Key Recommendations
Functional Classification
Related GOALS and Policies
Utilities
Introduction
Recommendations
CHAPTER V GREATER SHEPHERDSTOWN AREA
Introduction
Summary of Major Recommendations
Description of Greater Shepherdstown Area Planning Boundaries
Planning Analysis
CHAPTER VI IMPLEMENTATION
Residential
Commercial
Historic
Greater Shepherdstown Area
Corridors
CHAPTER VII EXISTING CONDITIONS
Introduction
History
Shepherd College
Greenness
Population and Economy
Land Use
Public and Community Facilities
Transportation
Utilities
INTRODUCTION
The content of this introduction is organized into four sections:
ò Introduction
ò Process
ò Legal Basis
ò Organization of This Plan
INTRODUCTION
This Shepherdstown Comprehensive Plan is intended to continue the process of planning in our town. It is a major revision and update to the Shepherdstown Comprehensive Plan of 1978. This revision builds upon efforts started in 1997 by the Region 9 Planning Organization under Dr. Ken Green's leadership.
This 2000 edition of the Comprehensive Plan signals the first effort to revise the original work and to update the plan to more accurately reflect development conditions for future community change while safeguarding the aesthetic, natural and historic qualities that typify Shepherdstown.
The initial preparation of this Plan has been guided by the Shepherdstown Comprehensive Plan Task Force (appointed by the Town Council) consisting of the Mayor, and interested citizens. Other persons including Council members, planning commissioners, citizens and the press have attended meetings from time to time. Members of the task force included:
Susan Smith (Chair)
Phil Coffey
Bruce Dahlin
Harvey Heyser
Vernon Hunter
Georgia Lee McElhaney
Susan Nash
Mayor Vince Parmesano
Mary Ann Zimmerman
In addition, Mr. Al Ingle of Shepherd College was active in providing new and updated information about Shepherd College for inclusion in the Plan.
The Comprehensive Plan revision project was financed by a grant made available by the State through the efforts of Delegate Doyle.
PROCESS
Shepherdstown began actively soliciting citizen and public input by conducting three meetings in November and December of 1997. The entire community was invited to attend these meetings which have been described as charrettes.
Additional meetings were conducted by the consultant (Bruce Drenning, AICP) to discuss the nature of a Comprehensive Plan and receive additional input. A variety of comments were received, including numerous suggestions about planning for the area around Shepherdstown as well as within the Corporation. The new Comprehensive Plan includes a (non-binding) chapter entitled Greater Shepherdstown Area which responds to this aspect of public input as well as to direction of the Task Force.
Following recommendations of the Task Force, the draft Comprehensive Plan is turned over to the Planning Commission for its deliberations and meetings prior to the Commission passing the Plan to the Council for review and adoption.
LEGAL BASIS
The procedure to develop a town comprehensive plan is detailed in West Virginia Code, Chapter 8, Article 24. The Town Planning Commission is tasked to "make and recommend for adoption to the governing body...a comprehensive plan for the physical development of the territory within its jurisdiction."
ORGANIZATION OF THIS PLAN
CHAPTER I. INTRODUCTION
CHAPTER II. GOALS AND POLICIES
CHAPTER III. PLANNING ANALYSIS
CHAPTER IV FUTURE PLANS
CHAPTER V GREATER SHEPHERDSTOWN AREA
CHAPTER VI IMPLEMENTATION
CHAPTER VII EXISTING CONDITIONS
THE GOALS OF SHEPHERDSTOWN
PREAMBLE:
The Goals of Shepherdstown are grounded in several key elements of the community:
* Its varied and well-preserved historical/architectural character.
* The shaping forces of the river and railroad as integral legacies of the Community.
* The strength of the relationships with Shepherd College, the NPS (C&O Canal), and the Potomac riverside scenic backdrop.
* The opportunities to positively influence the nature and extent of growth, development and environmental change surrounding Shepherdstown.
* The implementation of this plan depends on cooperation and goodwill among all segments of the community.
* Rural farmland and habitat surrounding the area.
THE GOALS and Policies:
The thirteen goals forming the foundation for this Comprehensive Plan are:
1. Maintain the small, quiet village character of the community.
2. Residential sections shall remain primarily residential in land use, architectural character and context, allowing for permitted residential/business uses within mixed-use zone areas, and allowing for development of affordable housing.
3. Preserve the central commercial district as a district of small shops and of offices compatible with residences.
4. Strategically establish and maintain commercial uses on the basis of land use compatibility and infrastructure capacity.
5. Preserve, improve, increase and protect parks, cemeteries, and other open green space areas.
6. Preserve, protect, maintain and utilize historic properties and land use patterns, architectural character and context, in a manner conducive to the general benefit of the community.
7. Maintain a cooperative working relationship with Shepherd College to address mutual community/college concerns.
8. Establish lines of communication between internal and external, formal and informal organizations, institutions and governmental jurisdictions.
9. Provide an adequate level of public facilities and services consistent with an historic small town.
10. Transportation within and around Shepherdstown should not be solely dependent on individual's autos, vans, and trucks.
11. Permit the expansion of the community through annexation where feasible.
12. Recognize Shepherdstown's place in the surrounding environment and take steps to protect, preserve and restore that environment.
13. Identify and address that area around Shepherdstown's limits which directly influences the realization of all the other goals, in order to enhance and protect Shepherdstown.
The thirteen goals together with associated policies and directives for action are presented on the following pages.
1. MAINTAIN THE SMALL, QUIET VILLAGE CHARACTER OF THE COMMUNITY.
A. The current planning process should be improved by incorporating professional assistance.
B. The existing building heights are agreeable, in human scale, and should be used as a guideline for future building planning and construction.
C. Lot sizes should continue to reflect the historical size, scales, and relationships of buildings to each other and the historical open space proportions and placements.
D. Historic lots-of-record In the Historic District designation shall be respected, and merging of lots is to be discouraged. Lots should take into consideration lotting patterns and be sensitive to the surroundings.
E. Adverse effects of auto and truck traffic through Shepherdstown should be minimized through volume reduction strategies, route designations arid weight restrictions for trucks and other noise/pollution mitigating methods.
F. Shepherdstown's compactness should be reinforced by incorporating internal pedestrian ways and pedestrian connections to historic Shepherdstown on the part of all new development outside the current corporation boundaries.
G. Public gathering and sociability should be facilitated by land use decisions.
H. Streetscape guidelines should be developed based on the existing Shepherdstown model.
I. Demolition of historic or contributing structures is a threat to the historic district and the general appearance of Shepherdstown and should be discouraged.
J. Maintain a mix of housing sizes, costs and structures against any tendency to demolish older structures or to add larger, less representative housing. Offer assistance to owners of older and representative housing resources.
2. RESIDENTIAL SECTIONS SHALL REMAIN PRIMARILY RESIDENTIAL IN LAND USE, ARCHITECTURAL CHARACTER AND CONTEXT, ALLOWING FOR PERMITTED RESIDENTIAL/BUSINESS USES WITHIN MIXED-USE ZONE AREAS, AND ALLOWING FOR DEVELOPMENT OF AFFORDABLE HOUSING.
A. Converting residences to business uses should be discouraged. Noted: A business in a residential unit is different from converting a residence into a business.
B. Allowed home occupations should have no new separate structures for business purposes on their residential lots.
C. Keep residential areas quiet, walkable, and free from excessive traffic.
D. A policy dealing with the percentage of business activities allowable in residential areas should be developed.
E. A policy should be developed to encourage a mix of residential housing, including elements such as student flats, accessory apartments and affordable housing.
F. Churches and schools should remain integrated into residential areas.
G. The Housing Authority, as the designated agent of Shepherdstown, should be proactive in implementing a healthy balance of housing for all ethnic, racial, age, and income groups within the scope of their authorized activities and with the full support of the Town Council. The Housing Authority should work with other public and private agencies to provide information and assistance.
* Characteristics of residential areas or neighborhoods are included in this Plan. A classification system and palette of building characteristics and choices that is grounded in the characteristics of existing neighborhoods is intended to guide decisions about changes within and adjacent to neighborhoods.
3. PRESERVE THE CENTRAL COMMERCIAL DISTRICT AS A DISTRICT OF SMALL SHOPS AND OF OFFICES COMPATIBLE WITH RESIDENCES.
A. The return of those shops providing basic services should be encouraged.
B. Shepherdstown should provide incentives and regulations for property owners to hold commercial areas to the first floor, to mix residential with commercial and to add residential uses upstairs which can extend the daytime life of commercial and commercial/residential areas.
4. STRATEGICALLY ESTABLISH AND MAINTAIN COMMERCIAL USES ON THE BASIS OF LAND USE COMPATIBILITY AND INFRASTRUCTURE CAPACITY.
A. The impact of all vehicular traffic should be addressed. Ways of controlling truck traffic through Shepherdstown should be considered, such as through volume reduction strategies, route designations, weight restrictions for trucks, other noise/pollution mitigating methods and limiting truck sizes in Shepherdstown.
B. The main shopping area is the two-block German Street R/C district with the commercial district at the end of Princess Street where it bisects E. Washington St. Neither the RC nor C zoning districts should be expanded within the present corporate limits.
C. Expansion of Commercial zoning should only be in areas that are currently undeveloped in Shepherdstown and surrounding areas.
D. Change from residential to commercial as included in the land use plan and policies should be discouraged.
E. Parking in C zones should recognize shared parking potential and accommodate demand as well as attractive appearance guidelines.
5. PRESERVE, IMPROVE, INCREASE AND PROTECT PARKS, CEMETERIES, AND OTHER OPEN GREEN SPACE AREAS.
A. Zoning regulations should reflect existing proportions of open space in various zoning districts to be applied as minimums to any new development or redevelopment under such zoning categories.
B. Landowners are encouraged to place open/green space areas under scenic easements or restrictive covenants to protect open space.
C. Uses should be found for Shepherdstown-owned brown space which converts it to green space.
D. Provide incentives in land use regulation, tax policies to increase open green space.
E. All streets should be tree-lined.
F. Streets should be maintained to accommodate trees. Shoulders, parking lanes should not be
paved in the same manner as streets.
G. Encourage the underground placement of utilities. The underground installation of all new utilities and facilities will minimize their visual impact and be made compatible with their surroundings.
H. Establish and increase incentives and regulations for landscaping, including transitions between uses, streetscapes and parking areas and entrances.
6. PRESERVE, PROTECT, MAINTAIN AND UTILIZE HISTORIC PROPERTIES AND LAND USE PATTERNS, ARCHITECTURAL CHARACTER AND CONTEXT, IN A MANNER CONDUCIVE TO THE GENERAL BENEFIT OF THE COMMUNITY.
A. Establish a Landmarks Commission for the purpose of compatibility reviews. The Landmarks Commission should work closely with the National Trust for Historic Preservation and should coordinate its efforts with the Housing Authority.
B. Establish a design manual with architectural standards to assist property owners in improving properties and officials in reviewing and making decisions on applications for changes in historic areas, and design of new structures.
C. The demolition of any historic or contributing structure in Shepherdstown is discouraged. Before a permit is issued, a representative of the State Historic Preservation Office should conduct an on-site evaluation of the structure and report to the Planning Commission.
D. Historic log homes should be identified and restoration encouraged through proactive community involvement.
E. Shepherdstown shall follow federal and state guidelines with respect to public improvement's impacts on historic structures and sites.
F. Encourage continuation of historic lot, block, building and street patterns in planning for new developments or annexations related to the historic Town.
G. All utilities should be underground whenever possible. Those that only function above ground should be visually minimized.
H. The Landmarks Commission should advise property owners on the significance and preservation of their properties.
I. Building permit applications should include data from the Historic District inventory.
7. MAINTAIN A COOPERATIVE WORKING RELATIONSHIP WITH SHEPHERD COLLEGE TO ADDRESS MUTUAL COMMUNITY/COLLEGE CONCERNS.
A. Shepherdstown shall be represented on the college Strategic Planning Group, and the College shall be represented on Shepherdstown's Planning Commission.
B. There shall be continuing review of and on-going dialogue about mutual problems, such as parking.
8. ESTABLISH LINES OF COMMUNICATION BETWEEN INTERNAL AND EXTERNAL, FORMAL AND INFORMAL ORGANIZATIONS, INSTITUTIONS AND GOVERNMENTAL JURISDICTIONS.
A. Provide information concerning pending government deliberations and actions to various organizations and jurisdictions through the most efficient means possible, including electronic.
B. Maintain cooperative relations with public media to insure information is available through print and other media.
C. Explore the feasibility of providing information electronically, including e-mail or a Web site for Shepherdstown to keep the community and other interested parties informed.
D. Establish regular and formal channels of communication with Jefferson County government agencies.
E. Request a periodic report of build-out projections for Shepherdstown Area from the Jefferson County Planning Commission.
F. Shepherdstown should continue to be represented at the policy-making level of regional and area planning organizations.
9. PROVIDE AN ADEQUATE LEVEL OF PUBLIC FACILITIES AND SERVICES CONSISTENT WITH AN HISTORIC SMALL TOWN.
A. Establish normative and goal-based standards for facilities operated by Shepherdstown and use to evaluate public services.
Water and sewer: establish an area of responsibility
Library
Parks and recreation
General Government
Police
Fire and Rescue
Refuse collection and recycling
B. Shepherdstown should actively work to insure that civic functions, such as town offices, the library, post office, and police station remain in the Town Center
10. TRANSPORTATION WITHIN AND AROUND SHEPHERDSTOWN SHOULD NOT BE SOLELY DEPENDENT ON INDIVIDUAL'S AUTOS, VANS, AND TRUCKS.
A. Where possible, extend sidewalks and bike paths for alternate means of transportation to destinations outside Shepherdstown.
B. Provide adequate sidewalks to address pedestrian needs throughout Shepherdstown, especially in residential areas.
C. Establish and maintain attractive and convenient pedestrian connections between businesses and parking.
D. Parking: Establish a Task Force to explore additional off-street business-related parking.
E. Public works and the police should monitor vehicular traffic patterns on a continuous basis.
F. Shepherdstown should work with other public/private bodies in the region to promote public transit serving Shepherdstown and Shepherd College. A train commuter stop, behind Southern States, should be added.
G. Co-ordinate with private groups providing transport whenever possible: PanTran; Shepherd College; Federal Management Center; Fish and Wildlife Training Center; Employers; Good Shepherd Interfaith Volunteer Caregivers.
H: Provide adequate public facilities to accommodate alternative transportation needs such as rail commuter parking areas and carpooling parking areas.
I. Establish a network of bike paths connecting destinations in Shepherdstown with those outside Shepherdstown.
J. Traffic regulation within the historic district should be regulated only by stop sign, not by traffic light.
Reference also #1.E. about minimizing adverse effects of through traffic
11. PERMIT THE EXPANSION OF THE COMMUNITY THROUGH ANNEXATION WHERE FEASIBLE.
A. Only annexation requests adjacent to Shepherdstown would be considered. Annexation will only be considered upon request by those affected.
B. Define a two-tier level of regulation: one level applicable to the historic district and other historic structures; a second level for areas and structures outside the historic district.
C. Establish and apply criteria to evaluate annexation possibilities.
D. Develop a subdivision ordinance: Encourage the continuation of historic lot, block, building and street patterns in planning for new developments or annexations related to the historic Town.
E. Encourage and plan green space in annexation areas.
12. RECOGNIZE SHEPHERDSTOWN'S PLACE IN THE SURROUNDING ENVIRONMENT AND TAKE STEPS TO PROTECT, PRESERVE AND RESTORE THAT ENVIRONMENT
A. Monitor and protect the Town Run and its watershed. As the alternate potable water source for the Town, the establishment of a wellhead protection zone and district should be pursued in order to insure the continued reliability of the springs that feed potable water to the stream. Specific policies and locations are to support public and private protection efforts, review development proposals affecting the water supply and participate in the County planning process.
B. Plant shade trees in Shepherdstown, especially along streets, and encourage tree planting along roads and in parking lots outside of Shepherdstown.
C. Promote energy-efficient buildings: provide information on one of the model energy codes for new construction and renovation; disseminate information about improving energy efficiency in historic buildings; support efforts to weatherize and insulate homes of low income citizens; improve energy efficiency of Town buildings.
D. Operate and promote a comprehensive public recycling program; support further private efforts.
E. Develop strategies to bring water and sewer to existing development within the Utility
Service Areas in and outside of Shepherdstown' currently served by well and/or septic.
F. Make a good faith effort to deal with "green" companies and use "green" products.
13. IDENTIFY AND ADDRESS THAT AREA AROUND SHEPHERDSTOWN'S LIMITS WHICH DIRECTLY INFLUENCES THE REALIZATION OF ALL THE OTHER GOALS IN ORDER TO ENHANCE AND PROTECT SHEPHERDSTOWN.
A. The development of any area adjacent to Shepherdstown should be compatible with the principles of Shepherdstown's comprehensive plan. Encourage continuation of historic lot, block building and street patterns in planning for new developments.
B. Shepherdstown should actively work for an area plan at the county level, requesting periodic build-out projections in order to plan for water and sewer service.
C. Shepherdstown should actively work to develop a comprehensive open-space plan for the area around Shepherdstown; and should protect and restore the Town Run watershed.
D. Shepherdstown should actively participate in the county zoning process and should discourage the rezoning of agricultural lands around Shepherdstown to residential growth.
E. Shepherdstown should encourage preservation of the rural character viewsheds along the gateway arteries leading into Shepherdstown, particularly from the south, including preservation of historic farm properties and buildings as part of the Jefferson County Plan. Shepherdstown supports continued designation of Agricultural versus Residential areas.
F. Shepherdstown should work with neighbors in the county to discuss items of mutual concern; work together within the framework of the local area plan and open space plan.
G. Communicate to local landowners and developers the benefits of conservation development such as clustering, preservation of open space, working farms, networks of greenways, habitat and buffers along roadways.
H. Shepherdstown will encourage clustering of commercial development in a concentrated area on the west edge of Town so as to provide easy access by pedestrians and bikers.
PLANNING ANALYSIS
INTRODUCTION
The Planning Analysis chapter presents pertinent information about key elements of the Future Plan for Shepherdstown.
Sections of this chapter include:
* Land Use
* Appearance
* History
* Neighborhoods - Planning Areas
* College
* Transportation
* Utilities
Land Use
The land uses and land use patterns of Shepherdstown are well established. Much of Shepherdstown was developed over 100 years ago. The land use patterns are well consolidated.
Commercial
Almost all commercial activity is concentrated in just two areas and many of the civic and semi-public (community, civic, churches) uses also located in proximity to these two areas. The size and nature of the downtown business district prohibits any major commercial retail or industrial developments.
The health of the downtown is witnessed by one of the key ingredients - restaurants - which are important uses. The improvement and renovation of some storefront and second floor space for residential and mixed residential/business space adds variety and long term stability to a downtown commercial area such as that of Shepherdstown. With a variety of markets to serve: college, local employment, residents, tourists, the downtown can adapt and survive without being solely dependent on providing uses which compete directly with tenants of modern shopping centers and big box retail establishments. Commercial development along State Route 45 on the western outskirts of Shepherdstown provides the residents with access to modern supermarket and pharmaceutical service; other major shopping errands require fairly convenient commutes or catalog orders.
The nature of specific uses in the downtown commercial area is, in the last analysis, determined by the marketplace operating within the constraints of the infrastructure and the zoning rules. If local-oriented retail is a goal to be pursued in the downtown, it will be necessary to provide some incentives to make the downtown more attractive. Based upon almost universal experience in downtown areas, one of the key ingredients to successful retail is an adequate supply of convenient parking.
Residential
The residential areas are relatively uniform and dominated by single family houses. A variety of houses exist ranging from grand old homes to modest log cabins and bungalows and a few mobile homes. This variety is threatened by the prosperity of Shepherdstown and its attractiveness as a place to live. The land use patterns of Shepherdstown have become institutionalized and thus controlled by the zoning ordinance and zoning map. Some of the goals and policies of the Comprehensive Plan address the need to maintain the variety of housing.
Regardless of the changes in population counting procedures by the Bureau of Census, it is evident that the Town's limits-to-growth govern a slow rate, as most available housing is in use and additional space can only be created by conversion of single family units into multiple units or by building new homes and apartments. Land available for new construction is limited and is being quickly developed.
General
The newly-annexed area on the southwestern edge of town may offer some opportunity for land use planning but the long-term institutional nature of the property's ownership (Catholic Church) seems to make it more likely that this property will not be developed or will develop with an institutional use sometime in the future.
Other land use change may occur by infill development on vacant lots, replacement of existing structures with new structures and mix of uses, conversions of use under zoning regulations and conversion of property to higher density use. In general, the higher density housing (multi-family apartments) developed in the past represents a new use which was not part of the long term character of Shepherdstown's land use palette.
Adaptive reuse of buildings has occurred a number of times and is to be encouraged when a part of the historic and architectural fabric of Shepherdstown can be conserved or preserved. Examples of adaptive re-use include the Free School (Extension office), George Tyler Moore House (college use/studies), service station (Blue Moon Restaurant), Shepherd's Mill (guest house), Jefferson Security Bank (Yellow Brick Bank restaurant), firehouse (residence), Rifle Factory (Chinese restaurant).
Appearance
One of the chief characteristics of Shepherdstown is its distinctive appearance which results from its historic and architectural heritage as reflected in its buildings, street patterns, lotting and green spaces. Shepherdstown had only one major fire which affected two blocks around the Entler Hotel in 1910. Thus the downtown business area escaped the "makeovers and modernization" characteristics of many downtown areas in the 1950's and 1960's, and a large percentage of the residential areas were developed prior to 1900.
The historic architectural character of Shepherdstown is afforded some protection through the status of buildings within the historic district and through zoning/building regulations. A key part of Shepherdstown 's historic character is the variety of building styles and types, the differences in areas developed at different times (for example, lot and block sizes south of New Street versus those north of there). In order to maintain the variety of historic styles (and variety of housing as expressed above) it will be necessary to establish some rules and guidelines which will allow change within the context of the setting of existing buildings and existing lots/patterns.
Among the distinctive features of buildings in Shepherdstown that help to form character and Shepherdstown's sense of the place are:
* raised porches and stoops
* small setbacks, on-sidewalk
* architectural building details
* pitched roofs and gables
* fences and walls
* shutters, window fenestration
* brick, stone, lap siding
Greenness
This is the second most important element of the character of Shepherdstown's appearance. A section of the Existing Conditions chapter is devoted to it.
Trees and expanses of grass dominate Shepherdstown and make it a truly green place from April to October. The presence of trees in almost all areas of Shepherdstown is one of its chief trademarks. Greenness is supported by the presence of deep lots, ownership of two or more lots with only one developed, cemeteries, parks, natural areas along Town Run, trees planted along streets and alleys, school play facilities, and Shepherd College.
The principal ingredients of Shepherdstown's greenness that can be the focus of efforts to maintain this part of the beauty of Shepherdstown include:
* shallow or on-sidewalk setbacks creating deep back yards and garden spaces
* multiple lots in one ownership with existing buildings and not developed
* buildings close to a side lot line, creating larger side yard green areas
* low percent of lots covered by buildings
* building placement/coverage shared by groups of lots, yielding larger green spaces
* street trees
* landscaping of a traditional rather than modern style
* cemeteries
* parks
History
Shepherdstown is steeped in history, as may be expected of a place with over 220 years as an established center of commerce and residential activity. Shepherdstown has also had the luxury, as pointed out elsewhere in this plan, of escaping the modernization of its buildings, alteration of its basic street patterns, and other changes which can lessen an awareness of heritage and roots. This is worthy of preservation and conservation. It is, however, important to remember and to recognize that Shepherdstown has grown by annexation, that there are variations on the original pattern of streets/lots/alleys in these additions which are also integral to the heritage. The same is true of the historic buildings. Not all buildings are either colonial or antebellum in style. Part of the charm of Shepherdstown is in the occurrence of the juxtaposition of different styles from different periods, when the representative buildings are well conceived and well maintained.
Neighborhoods - Planning Areas
Several neighborhoods or planning areas have been selected for this analysis:
Downtown
West Edge
West End
East Side
Downtown:
The downtown or Central Business District area along German Street has many virtues, and few vices. It would be the envy of most small towns in America. It offers on-street parking near establishments. It provides a wonderful architectural appearance with classic old buildings and many examples of fine architectural detailing. It is well landscaped with trees in most areas. There are opportunities for landscaping west of King Street. It has wide sidewalks, some of which are in need of repair to be safer for pedestrians, including some short "missing links." It has good signage; there seem to be no street level vacancies. The job here is to build on what is established by maintaining and perhaps improving on the supply of convenient parking, allowing a mixture of uses, and monitoring changes to historic and architecturally valuable facades.
West Edge
The planning needs for the west edge are to provide pedestrian connections, provide a distinguishing edge to separate Shepherdstown from the modern commercial influences (e.g. signage, landscaping) and maintain buildings and properties in an attractive fashion. Transition uses might be appropriate for some buildings on German Street.
West End
The west end plays an important part in several aspects of Shepherdstown's quality of life. Most importantly it contains the majority of the modest and affordable housing stock in town. It has historic structures such as the settlers cabins and old cemeteries. It is a major repository of green area and large specimen trees. It has a park/playground. This area is important from these standpoints and continued efforts to improve infrastructure (pedestrian, storm, utilities), and assist in improving housing, maintenance of housing, protection of housing and protection of the green areas (including cemeteries), are all planning needs in this area.
East Side
This is generally the area east of Princess Street and the railroad. This area contains a mixture of some of the finer residences and modest residences. It also has some non-residential activity and some modern house types. Planning needs in this area are to define the type of additional building that might take place, to improve the infrastructure and maintain the open/ green aspect of this area.
The area east of the railroad does not incorporate the lotting or street patterns of Old Shepherdstown. It has limited water utility service at the present time. It should be the subject of a mini-neighborhood plan with guidelines for any future development that might occur.
Shepherd College
The presence of the College is a major force in Shepherdstown. Consider the following:
* Shepherdstown is a college Town.
* It is an established State institution and a successful one.
* It is expected to remain and flourish.
* The college's enrollment is greater than the population of Shepherdstown.
* It is an economic presence which stimulates and sustains businesses.
* It provides facilities for public use and it offers cultural and educational opportunities beyond which a small town can expect to enjoy without such an institution.
* Its roads and streets are directly tied into the heart of Shepherdstown's road and street system.
* It puts strain on parking resources in the downtown and in residential areas.
* It contributes to demands on the roads and other Town resources.
* It is not under the control of the Town zoning ordinance.
* It is an established place on the northwest border, controlling that edge of the Town as well as some adjoining land it owns which forms the edge with Jefferson County.
Projections for continuing growth of the college student population indicate that the demand for corporation services will increase, especially as commuting students are expected to account for most increases in enrollment.
The issues between the College and Town are few and surmountable. The key to the future is in working together to further the symbiotic relationship that has and must continue to exist.
Transportation
Roads and Streets
It is anticipated that traffic will continue to increase on Shepherdstown's streets that serve the business areas and connect with the outside world. Factors contributing to this will be increased employment in the downtown area, gradual increases in enrollment at Shepherd College emphasizing commuter or off campus-residing students, increased tourism, and increased interstate traffic (growth of Jefferson, Berkeley and Washington counties).
The proximity to Loudoun County and other Northern Virginia locations will continue to put pressure on area road systems. It is also anticipated that train traffic may increase on the railroad occasioning more frequent and/or longer traffic interruptions.
The potential closure of North King Street and a portion of Rocky Street by Shepherd College is a serious issue that needs to be addressed cooperatively. The ability of the road system to provide alternate routes and diversions is an important function of preserving and utilizing capacity so that congestion can be minimized. In general, the closure of a street when capacity is limited has only undesirable effects on the workings of the overall system. This issue deserves the attention of a traffic consultant to address the issues and needs of all parties before coming up with any drastic solutions.
In the few instances where it is still practical to extend Shepherdstown street and alley patterns into adjoining lands, this should be done. It provides continuity and cuts down on the confusion that can be created by abrupt changes and variations.
The new connector road from Route 45 west of the Old Martinsburg (Billmyer) Road to Route 480 at Morgan Grove Road will provide a much needed improvement to the ability to reach Charles Town and the new Route 9 without going into or through Shepherdstown. Thus it offers the potential for relief from some through traffic now coming through Town and improvement of conditions at the dangerous intersection of Old Martinsburg Road and Route 45.
The alleys are an important component of the road system.
Parking
Little can be done in terms of the parking conditions due to the built up nature of Shepherdstown. The possibility of some additional parking on the fringe of the downtown area would help, but it is doubtful if the demand can ever be fully met. A more rewarding strategy may be to work with/encourage the college to provide additional parking resources and incentives for students to use shuttles or walk, to reduce pressure on the downtown and surrounding residential areas.
Pedestrian
The chief needs for pedestrian ways are to insure that every street has at least one sidewalk and all are in usable and safe condition so that residents have the opportunity to take advantage of the walking scale of Shepherdstown.
The issue of maintenance and improvement of existing sidewalks needs to be addressed in some areas where
walks have heaved or fallen into disrepair. These discourage walking, an effect that is counter-productive in a place with limited parking and street capacity resources.
Railroad
In June of 1998 the Surface Transportation Board approved a major reorganization of lines in the eastern U.S. which leaves Norfolk Southern as one of four of the major railroad companies. Growth in the rail industry has been steady over the last 20 years and volume increased by about 50% from 1980 to 1997. Continued growth is expected. Generally, rail lines and activities are not subject to state and local permitting requirements. The Interstate Commerce Commission Termination Act of 1995 broadly preempts state and local permitting. The U. S. Supreme Court upheld a test case in June of 1998. Shepherdstown may need to ally itself with other towns to discuss safety and environmental improvements with the railroad and perhaps seek impact funds in conjunction with increased rail freight traffic. Fencing, landscaping, sound walls, signal improvements are examples of mitigation efforts that might be subjects for such funding. In addition to funding by the railroad, there may be funding available from congress in the future. The increasing shipping of freight by rail is an overall positive trend from an environmental and road traffic standpoint but local impacts still need to be considered and addressed.
Utilities
The internal service and working of the water and sewer systems have not been addressed in this plan. One of the overriding issues to be addressed is the service of lands outside the corporation which may be developed in the future. There are over 2,600 acres of land in the designated growth areas of Jefferson County surrounding Shepherdstown. The extent and manner of serving these areas should be carefully thought out by both jurisdictions working together. Each has something to gain and to lose. What happens in terms of utilities directly impacts issues such as sprawl, impacts on Town Run, identity and sense of place of Shepherdstown, attractiveness of Shepherdstown as a tourist and business location, and the traffic/street congestion environment. Utilities should be treated as what they are: plumbing; and not as the driving and guiding force that designs the fabric of the community and directions of its growth.
LAND USE
INTRODUCTION
Future Plans includes sections entitled
* LAND USE
* HISTORIC AND NATURAL AREAS
* COMMUNITY FACILITIES
* TRANSPORTATION
* UTILITIES
LAND USE-FUTURE PLANS
INTRODUCTION
The future land use plan builds upon the background provided in Existing Conditions, takes direction from Planning Analysis, and responds to the Goals and Policies. The Goals and Policies most specifically related to future land use are repeated at the conclusion of this section.
The great majority of land use in Shepherdstown is well-settled. Most of the community is built up and built out, street and lotting patterns are well-established and streets and utilities are related to supporting the established levels of uses.
The emphasis and focus of the future land use plan needs to be upon:
* Maintaining existing land use patterns and physical arrangement of land use desired as specifically expressed in the Goals and Policies.
* Calling attention to any needs for infrastructure and/or transportation facilities needed to maintain such existing land use patterns and arrangements.
* Prescribing types of land use and end-state guidelines for undeveloped or under-utilized lands in the Corporation.
* Coordinating with Greater Shepherdstown Area recommendations - especially in areas which might be annexed at some future time.
COMMERCIAL LAND USE:
The overriding element and goal of the future land use plan is to keep commercial development within the confines of its present locations; those locations being the downtown business district along German Street and immediately peripheral areas already in commercial use, and the south eastern part of Shepherdstown where Southern States, the hardware store, Jefferson Security Bank, the one block mixed retail/office strip, the auto repair and hardware gift shop are established.
Two separate types of business are established and to be encouraged:
* Small shops oriented to the downtown and business-serving uses.
* Community and neighborhood serving businesses.
A need for mid price and lower price restaurants to complement high end restaurants is a commercial objective of the plan. Typical franchise restaurants are not desired to fill these needs.
Local employment generating businesses which meet off-street parking needs and which patronize other local businesses are identified as a desirable component of existing commercial areas in the plan. The community is concerned about such businesses contributing to a decrease in the supply of "upstairs apartments" in the commercial areas which provide for a lively mix and extended street life hours for the downtown.
Infrastructure and transportation needs to support the business district include the curing of any storm drainage problems, the encouragement and facilitation of repairs to sidewalks for safety and ease of customer use, the continued enforcement of parking policies to allow turnover of parking spaces and discourage on-street employee parking, the provision of additional off-street parking to augment the on-street resources and the protection of the low area behind Southern States for a potential future train commuter parking lot.
Coordination with Jefferson County regarding commercial land use should include:
* the limitation of commercial development to the nodes already established on main roads leading into Shepherdstown;
* the limitation of the scale of new commercial development so that it is appropriate to the market size of Shepherdstown;
* the recognition of Charles Town, Martinsburg and Hagerstown as the major sources of commercial services in the area;
* the careful control of the traffic impact and roadside appearance impact of new commercial development on the main approaches/entrances and on the commercial heritage of Shepherdstown.
RESIDENTIAL LAND USE:
East Side:
The areas available east of the railroad between E. German and E. High streets should be developed in a traditional style similar to other parts of Shepherdstown if possible. Lotting patterns need not be identical to other parts of Shepherdstown but can reflect existing subdivision lotting patterns and other variations.
The following design principles should be incorporated in such traditional design for available/developable lands in this as well as other areas of Shepherdstown:
* small front yards
* small side yards
* intervening open space
* mix of institutional uses
* grid-like streets and alleys
* prohibition of "garage-scape" street frontage
* predominance of two story construction
* use of sympathetic architectural materials and features
* discourage parking between buildings and the street; encourage garage and open parking in rear of lots; encourage on-street parking.
If traditional design patterns as recommended are not used, then densities should be low, support of infrastructure improvements by Shepherdstown should be limited and visual screening and buffers on non-railroad edges should be incorporated.
Southwest:
The area immediately south of Shoe Lane, recently annexed, needs to be considered in terms of at least two possible eventualities: Institutional use such as a church or school, or residential use.
Institutional use should contribute to the green aspect of Shepherdstown, should address the need for a green edge to Shepherdstown, should make essential pedestrian and street connections and should channel traffic so as not to adversely affect existing residential areas.
Residential use: If this area is developed residentially it should emulate some part or parts of older Shepherdstown. Perhaps one of the better solutions would be a mixture of lot sizes, house types and green spaces arranged in an extension of the traditional connected grid pattern south of Back Alley or east of Shoe Lane and along Washington Street. Note that some streets are already platted which would assist in achieving the desired end-state land use.
Balance of Residential Areas:
In order to maintain the balance of house types, appearance and physical arrangements, the activities of infill building, demolition of buildings/rebuilding, additions to buildings and changes to lotting patterns of record should be carefully determined by reference to the immediate environment where change is proposed. For example, if building on a lot as infill is proposed and all the nearby houses have 10-foot setbacks, then the new structure should not have a 20 foot or greater setback. If all houses in the vicinity are 1000-1500 square feet, then the new house should not be 3000 or 4000 square feet.
Land Use Related GOALS and Policies:
2. RESIDENTIAL SECTIONS SHALL REMAIN PRIMARILY RESIDENTIAL IN LAND USE, ARCHITECTURAL CHARACTER AND CONTEXT, ALLOWING FOR PERMITTED RESIDENTIAL BUSINESS USES WITHIN MIXED-USE ZONE AREAS, AND ALLOWING FOR DEVELOPMENT OF AFFORDABLE HOUSING.
A. Converting residences to business uses should be discouraged. Noted: A business in a residential unit is different from converting a residence into a business.
B. Allowed home occupations should have no new separate structures for business purposes on their lots.
C. Keep residential areas quiet, walkable, and free from excessive traffic.
D. A policy dealing with the percentage of business activities allowable in residential areas should be developed.
E. A policy should be developed to encourage a mix of residential housing, including elements such as student apartments/rooms, parent/in-law apartments and other variations of affordable housing.
F. Churches and schools should remain integrated into residential areas.
G. The Housing Authority, as the designated agent of Shepherdstown, should be proactive in implementing a healthy balance of housing for all ethnic, racial, age, and income groups within the scope of their authorized activities and with the full support of the Town Council. The Housing Authority should work with other public and private agencies to provide information and assistance.
* Characteristics of residential areas or neighborhoods are included in this Plan. A classification system and palette of building characteristics and choices that is grounded in the characteristics of existing neighborhoods is intended to guide decisions about changes within and adjacent to neighborhoods.
3. PRESERVE THE CENTRAL COMMERCIAL DISTRICT AS A DISTRICT OF SMALL SHOPS AND OF OFFICES COMPATIBLE WITH RESIDENCES.
A. The return of those shops providing basic services should be encouraged.
B. Shepherdstown should provide incentives and regulations for property owners to hold commercial areas to the first floor, to mix residential with commercial and to add residential uses upstairs which can extend the daytime life of commercial and commercial/residential areas.
4. STRATEGICALLY ESTABLISH AND MAINTAIN COMMERCIAL USES ON THE BASIS OF LAND USE COMPATIBILITY AND INFRASTRUCTURE CAPACITY.
A. The impact of all vehicular traffic should be addressed. Ways of controlling truck traffic through Shepherdstown should be considered, such as through volume reduction strategies, route designations, weight restrictions for trucks, limiting truck sizes, and other noise/pollution mitigating methods.
B. The main shopping area is the two-block German Street R/C district along with the commercial district at the end of Princess Street where it bisects E Washington St. Neither the RC nor C zoning districts should be expanded within the present corporate limits.
C. Expansion of commercial should only be in Shepherdstown and surrounding areas that are currently undeveloped.
D. Change from residential to commercial should be discouraged.
E. Parking in C (commercial) zones should recognize shared parking potential and accommodate demand as well as attractive appearance guidelines.
HISTORIC AND NATURAL AREAS-FUTURE PLANS
INTRODUCTION:
As transportation established the fact of Shepherdstown coming into being and growing, the historic and natural features of Shepherdstown have established how it looks and acts and, in recent times, have been the principal cause of its renewed popularity as a place to live with attendant high property values. The community takes a great deal of pride in its appearance and in the way it functions as a heterogeneous place.
The historic and natural areas plan builds upon the background provided in Existing Conditions, takes direction from Planning Analysis and responds to the Goals and Policies. The Goals and Policies most specifically related to future historic and natural areas are repeated at the conclusion of this section.
HISTORIC:
The key recommendation of the future plan is to take advantage of the historic district status of areas in Shepherdstown and to augment the district tools with other incentive and regulatory measures as are feasible and equitable.
It must be recognized that new buildings are, at very best, reproductions. They are not the real thing in terms of historic buildings in Shepherdstown. Thus Shepherdstown is not desirous of encouraging the building reproductions, i.e. a "Williamsburg" approach.
The major positive effects of preserving the historic and natural appearance of Shepherdstown is self-evident.
NATURAL AREAS
Protection of Shepherdstown's "greenness" is a worthy objective. Even more worthy, however, is the protection and preservation of those green areas which are visible from public vantage points.
The preservation and conservation of green areas is not necessarily a prohibition of the use of property. A reasonable use must be allowed for all property. Thus the focus must be on attention to (a) having very low impervious surface (roof and gravel/pavement) areas and (b) placement of buildings with respect to prevailing patterns in their immediate and block vicinity.
The following elements are worthy of preservation and conservation:
* shallow or on-sidewalk setbacks creating deep back yards and garden spaces
* vacant or largely vacant lots in common ownership with lots occupied by existing buildings
* buildings close to one side lot line, allowing for adjacent yards to create larger side yard green areas
* low percent of lots covered by buildings
* maintenance of large (11,000 s.f.) minimum lot size
* building placement/coverage patterns shared by groups of lots, allowing for larger green spaces
* street trees
* landscaping of a traditional rather than modern style
* cemeteries
* parks
The subject of greenness is one which brings lotting patterns and attendant matters of subdivision and vacation of subdivision or lot lines to the fore. The planning principle that should apply in such matters is to keep one's eye on the goal or the ends, not the means.
When two lots can legally be created from one lot, and both lots meet all zoning and subdivision regulations, then the emphasis should be on (a) preservation of as much as the greenness of a formerly green/vacant lot as possible and (b) placement of any new buildings so that the essential character of the previous condition is conserved to the greatest extent possible. For example, if the previous condition is that the green/vacant lot created a gap between buildings on the street frontage and interruption by open space, then that is the characteristic to be sought in the after (subdivision) condition. Where one lot can be created from two by vacating a property line meeting all zoning and subdivision regulations, then the emphasis should be on continuing to allow what could have been built on the previously vacant lot on the new(larger) lot in combination with what existed before the consolidation. Focus should be on the questions of how a proposed lot consolidation affects the character of the street front and appearance of the immediate environment.
Historic And Natural Areas Related GOALS and Policies
5. PRESERVE, IMPROVE, INCREASE AND PROTECT PARKS, CEMETERIES, AND OTHER OPEN GREEN SPACE AREAS.
A. Zoning regulations should reflect existing proportions of open space in various zoning districts to be applied as minimums to any new development or redevelopment under such zoning categories.
B. Landowners are encouraged to place open/green space areas under scenic easements or restrictive covenants to protect open space.
C. Uses should be found for Shepherdstown-owned brown space which converts it to green space.
D. Provide incentives in land use regulation and tax policies to increase greenspace.
E. All streets should be tree-lined.
F. Streets should be maintained to accommodate trees. Shoulders and parking lanes should be tar-chipped.
G. Encourage the placement of utilities underground. The underground installation of all new utilities and facilities will minimize their visual impact.
H. Establish and increase incentives and regulations for landscaping, including transitions between uses, streetscapes and parking areas and entrances.
6. PRESERVE, PROTECT, MAINTAIN AND UTILIZE HISTORIC PROPERTIES AND LAND USE PATTERNS, ARCHITECTURAL CHARACTER AND CONTEXT, IN A MANNER CONDUCIVE TO THE GENERAL BENEFIT OF THE COMMUNITY.
A. Establish a Landmarks Commission for the purpose of compatibility reviews. The Landmarks Commission should work closely with the National Trust for Historic Preservation and should coordinate its efforts with the Housing Authority.
B. Establish a design manual with architectural standards to assist property owners in improving properties and officials in reviewing and making decisions on applications for changes in historic areas and design of new structures.
C. The demolition of any historic or contributing structure in Shepherdstown is discouraged. Before a permit is issued, a representative of the State Historic Preservation Office should conduct an on-site evaluation of the structure and report to the Planning Commission.
D. Historic log homes should be identified and restoration encouraged through proactive community involvement.
E. Shepherdstown shall follow federal and state guidelines with respect to public improvement's impacts on historic structures and sites.
F. Encourage continuation of historic lot, block, building and street patterns in planning for new developments or annexations related to the historic Town.
G. All utilities should be underground whenever possible. Those that only function above ground should be visually minimized.
H. The Landmarks Commission should advise property owners on the significance and preservation of their properties.
I. Building permit applications should include data from the Historic District inventory.
12. RECOGNIZE SHEPHERDSTOWN'S PLACE IN THE SURROUNDING ENVIRONMENT AND TAKE STEPS TO PROTECT, PRESERVE AND RESTORE THAT ENVIRONMENT
A. Monitor and protect the Town Run and its watershed: support public and private protection efforts; review development proposals affecting Town Run watershed and participate in the County planning process.
B. Plant shade trees in Shepherdstown, especially along streets, and encourage tree planting along roads and in parking lots outside of Shepherdstown.
C. Promote energy efficient buildings: provide information on one of the model energy codes for new construction and renovation; disseminate information about improving energy efficiency in historic buildings; support efforts to weatherize and insulate homes of low income citizens; improve energy efficiency of Town buildings.
D. Operate and promote a comprehensive public recycling program; support further private efforts.
E. Develop strategies to bring water and sewer to existing development within the Utility
Service Areas in and outside of Shepherdstown currently served by well and/or septic.
F. Make a good faith effort to deal with "green" companies and use "green" products.
COMMUNITY FACILITIES-FUTURE PLANS
INTRODUCTION
The future community facilities plan builds upon the background provided in Existing Conditions takes direction from Planning Analysis and responds to the Goals and Policies. The Goals and Policies most specifically related to future community facilities are repeated at the conclusion of this section.
Shepherdstown is very well served by a range of community facilities for a community of its size. Plans for improving some facilities are also under study and underway and should be supported to improve general quality of life.
KEY RECOMMENDATIONS
Key elements and the focus of the community facilities plan is upon:
Maintaining the variety and level of service that Shepherdstown presently has.
Support the location and operation of the fire and rescue facilities which are close to town and to many high-value commercial buildings.
Maintaining good relationships with Shepherd College to continue policy of sharing College facilities with Shepherdstown residents and, perhaps, expand the range of shared facilities.
Strengthening the recreational advantages of being close to attractions such as the tow path, battlefields, Morgans's Grove; provide better pedestrian and way-finding connections as opportunities arise.
Expanding and improving the library. The present resources are well-used and well-organized in a challenging physical configuration. Do the expansion at the present location if at all possible.
Encouraging and supporting Jefferson County to maintain and improve the elementary school and junior high school. These are very valuable components of the community.
Maintain the existing location of the Post Office and the type of service within the corporation.
Improving the external appearance and internal functioning of Town Hall as funding permits.
Seeking good ideas for adaptive reuse of the Tobacco Warehouse and external funding for improvements and conversion.
STANDARDS FOR FACILITIES
PROPOSED STANDARDS
The following pages present recommended standards for public facilities which build upon Shepherdstown's existing facilities. As background, the estimated current population is around 1,300. The holding capacity of the largely undeveloped planning areas within Shepherdstown is probably less than 2,000 population if land use recommendations are followed.
PUBLIC SAFETY SERVICES
Police
Shepherdstown currently provides a standard of approximately ___ sworn police officer per 500 residents. There are no universally accepted standards for such ratios. A widely used standard is two officers per 1,000 population but numbers vary widely from community to community based upon population density/land area characteristics, degree of commercial establishments, tourism, institutions and community expectations. Given the presence of the college population and traffic, mix of uses, density and type of growth envisioned for Shepherdstown, this current standard of practice should be adequate in terms of manpower.
A standard for location of facilities should be based upon proximity to areas which provide reasonable average travel times to patrol areas. Based on the centrality of the existing station on North King Street and the relatively short distances within Shepherdstown, there will not be a need for substations.
Fire and Rescue
* Fire Protection
Fire flows available in Town water mains for all new development should be based upon standards for Required Fire Flow published by Insurance Services Office (ISO)).
According to the National Board of Fire Underwriters, residential districts should generally be within a service radius (as measured along roadways) 1.5 to 2 miles of a fire engine-ladder company, depending on height of structures and intensity of development. All existing and planned new residential development in Shepherdstown will fall within the recommended service radius from the existing fire station located just outside of the west edge of Shepherdstown. High value (i.e. commercial) districts should be within .75 miles of an engine-ladder company. Existing and any new commercial development meeting plan policies will be within this recommended distance.
* Ambulance and Rescue
In general, location of ambulance and rescue equipment together with fire equipment as is done in Shepherdstown is recommended practice. From the point of view of Shepherdstown's area, the present location should provide adequate coverage as long as the road network permits adequate response.
RECREATION & PARKS
The recommended minimum standards for Neighborhood and Community Parks for Shepherdstown are:
Table 1 - RECREATION ACREAGE STANDARDS
Acres per 1000 Population
Minimum Site Size
Minimum Effective Service Area
Neighborhood
3 acres
5 acres
5 minutes - 1/2 mi.
Community
3 acres
15 acres
10 minutes - 1 mi.
At the present time Shepherdstown has 4 Community parks which together provide a standard of about ___ acres per 1000 population. In addition to more than meeting applicable acreage standards, these parks are admirably located to serve both existing and future population. A ___ park is proposed on ____________ Road. The need for such a park is relatively far in the future.
There are 2 sites classified as Neighborhood Parks which comprise about ___ acres of Town-owned/leased land and some portion of ___ acres of School Board properties. In addition, there are ___ Play lot /Mini parks and ___ which total between ___ acres. Meeting the current standard of 3 acres per 1000 population would require about ___ acres of neighborhood parks. It appears that the current acreage standard is met. The neighborhood and play lot/ mini parks are well-dispersed throughout the existing development areas so that most residents are within a few minutes of a park. The ___ area ___ could be better served and a site in the ___ portion of the ___ Area would improve the distribution and level of service.
Facilities
Overall suggested standards for facilities for Shepherdstown parks are as follows:
Table 2 RECREATION FACILITY STANDARDS
Facility Type
Population per Facility
Number Needed 1,300 Population
Location(s)
Athletic Fields
1,500
Softball
3,000
n.a.
Neighborhood
Baseball (60',90')
3,000
n.a.
Community
Football
10,000
n.a.
Community
Soccer
3,000
n.a.
Neighborhood
Playground /Play Equip
2,000
1
Neigh./Community
Basketball
2,000
1
Neigh./Community
Multi-Purpose Courts
2,000
1
Neigh./Community
Picnic Areas /Sites
3,000
n.a.
Neigh./Community
Tennis
2,000
1
Neigh./Community
Swimming Pool
10,000
n.a.
Community
Community Center
20,000
n.a.
Community
Horseshoes
2,000
1
Neigh./Community
Volleyball
1,000
1
Neigh./Community
Picnic(table)
400
3
Neigh./Community
In terms of population-derived needs for facilities based upon standards such as those above, Shepherdstown will need relatively few new facilities. Comparison of existing facilities with needs projected above indicates need for
___. Due to the projected need for new neighborhood parks (___) in ___ Area and in the ___ Area (1), it will be desirable to provide facilities in addition to those generated based on population standards, in order to have reasonable geographic coverage and convenience. Therefore, Shepherdstown should concentrate on acquiring and equipping new neighborhood sites, providing additional facilities at ___, striving to even out neighborhood park facilities.
LIBRARY
The recommended standard is to provide a library within a 1 to 1.5 mile radius in a developed area. The current location at King and German streets meets this standard. Shepherdstown Public Library is largely state supported. Patrons in the town also use Shepherd College Library and the regional library in Martinsburg.
A recommended standard is an aggregate square footage of 0.6 square feet per person which would amount to about 780 square feet to serve residents in Shepherdstown plus additional footage to serve County residents using the facility. The current facility at 2280 square feet meets the standard for a population equivalent of 3800.
There are a variety of standards for book stock. One such standard for communities of Shepherdstown's size is 3.0 volumes per capita. On this basis, the present collection of 18,000 volumes would serve a population equivalent of 6,000 persons. The planned addition of 2,000 volumes over the next 3 years would raise the population-equivalent which could be served by probably up to 10,000 persons.
Shepherdstown Public Library fulfills several roles for library service in the greater Shepherdstown community, but foremost among them are: to provide "popular materials" to patrons; and to serve as a "gateway to learning,"i.e. to serve pre-school children and their parents with materials and programs which will promote reading and learning experience.
The addition of internet access, educational software, and access to general internet databases of magazines and journals to our physically small facility, adds immeasurable resources to the library. Access by patrons with home computers to many of these same resources, and the advent of electronic books bring new factors to the task of setting "standards" for public library service in the present time.
Community Facilities Related GOALS and Policies
9. PROVIDE AN ADEQUATE LEVEL OF PUBLIC FACILITIES AND SERVICES CONSISTENT WITH AN HISTORIC SMALL TOWN.
A. Establish normative and goal-based standards for facilities operated by Shepherdstown and use to evaluate public services.
Water and sewer: establish an area of responsibility
Library
Parks and recreation
General Government
Police
Fire and Rescue
Refuse collection and recycling
B. Shepherdstown should actively work to insure that civic functions, such as town offices, the library, post office, and police remain in central Shepherdstown.
TRANSPORTATION-FUTURE PLANS
INTRODUCTION:
The future transportation plan builds upon the background provided in Existing Conditions, takes direction from Planning Analysis and responds to the Goals and Policies. The Goals and Policies most specifically related to future transportation facilities are repeated at the conclusion of this section.
Transportation has been one of the major factors which created Shepherdstown and has continued to influence its development. The river crossing, canal, railroad and road connections have been important.
It is important to note that the road network in Shepherdstown is one that has been achieved by pre-design and plan and this network has generally served Shepherdstown very well. The grid street and alley pattern has a human scale that encourages pedestrian use and contributes to the high quality of life in Shepherdstown. Grid patterns such as this have recently come back into vogue nationally as part of the "neo-traditional" design concepts. The grid pattern can disperse traffic evenly throughout a grid as compared to alternative patterns which tend to concentrate traffic on a few roads. Thus the grid pattern is desirable from efficiency as well as from a human scale neighborhood standpoint.
KEY RECOMMENDATIONS
Key elements and the focus of the transportation plan is upon:
* Extending the grid street and alley pattern into undeveloped/underdeveloped/newly annexed areas wherever possible; prohibit construction and other obstacles in alley ways as has occurred in the past.
* Maintaining good relationships with Shepherd College to jointly commission a professional study to determine the impacts of any closure/alteration of North King Street and Rocky Street and alternates thereto.
* Transportation needs to support the business district include the encouragement and facilitation of repairs to sidewalks for safety and ease of customer use, the continued enforcement of parking policies to allow turnover of parking spaces, discouragement of on-street employee parking and the provision of additional off-street parking to augment the on-street resources.
* Encouraging and supporting Jefferson County to protect the viability (limit curb cuts, achieve common entrances, assure safe sight distances, use secondary roads to channel access, provide turn lanes, etc.) of the arterial roads serving Shepherdstown: Routes 45, 480 and 230. Retain other roads in a bucolic condition.
* Support Jefferson County in its comprehensive and transportation planning efforts which may lessen truck and other through traffic through the heart of Shepherdstown.
* Improving the parking conditions in downtown through lessening demand by college students, requiring sufficient off-street parking by employment-based businesses and seeking supplementary off-street parking to serve retail uses.
* Assuring that new parking is not at the expense of removing contributing buildings or important green spaces. When parking is done in currently "green areas," require extraordinary landscaping to achieve the objective of "parking in a garden."
* Assuring that every street has at least one good sidewalk if not two to encourage pedestrian use. A well-planned and maintained pedestrian system can reduce vehicular traffic by providing alternate travel.
* Exploring Transportation Management:
o Incentives for ridesharing, carpooling
o Increased convenience of shuttle van services (College, Clarion, National Training Center)
FUNCTIONAL CLASSIFICATION
The arterial roads serving Shepherdstown are German Street (routes 45 and 230); Duke Street (Route 480); and Washington Street extended (Route 230)
Collector roads are King Street, Princess Street, and High Street.
Other streets are primarily or exclusively local in function.
These classifications are generally reflected in road maintenance responsibilities (see map on following page)
Transportation Related GOALS and Policies:
10. TRANSPORTATION WITHIN AND AROUND SHEPHERDSTOWN SHOULD NOT BE SOLELY DEPENDENT ON INDIVIDUAL'S AUTOS, VANS, AND TRUCKS.
A. Where possible, extend sidewalks and bike paths for alternate means of transportation to destinations outside Shepherdstown.
B. Provide adequate sidewalks to address pedestrian needs throughout Shepherdstown, especially in residential areas.
C. Establish and maintain attractive and convenient pedestrian connections between businesses and parking.
D. Parking: Establish a Task Force to explore additional off-street business-related parking.
E. Public works and the police should monitor vehicular traffic patterns on a continuous basis.
F. Shepherdstown should work with other public/private bodies in the region to promote public transit serving Shepherdstown and Shepherd College, and add a train commuter stop behind Southern States.
G. Co-ordinate with private groups providing transport whenever possible: PanTran; Shepherd College; Federal Management Center; Fish and Wildlife Training Center; Employers; Good Shepherd Interfaith Volunteer Caregivers.
H: Provide adequate public facilities to accommodate alternative transportation needs such as rail commuter parking areas and carpooling parking areas.
I. Establish a network of bike paths connecting destinations in Shepherdstown with those outside Shepherdstown.
J. Traffic regulation within the historic district should be regulated only by stop sign, not by traffic light.
Reference also #1.E. about minimizing adverse effects of through traffic
UTILITIES-FUTURE PLANS
INTRODUCTION:
The planning and provision of water and sewer service is a key element and ingredient of what happens in the areas of Jefferson County on several sides of Shepherdstown.
Shepherdstown is obligated to provide utility service under current institutional arrangements and is desirous of working with Jefferson County to achieve land use, transportation, economic, environmental, historic and sense-of-place goals of mutual benefit to the two jurisdictions.
Jefferson County is obligated to plan for and administer its land use and growth management responsibilities and is desirous of working with Shepherdstown to achieve utility services in a fashion that coordinates with its planning and that is cost effective.
The following information has been assembled during the Planning process to assist in this effort.
Table 3 - Growth Areas of Jefferson County Adjoining Shepherdstown
Acres of Land by Category
Geographic Area
Total
Residential - Growth
Residential - Growth-Light Industrial-Commercial
Rt. 230 - Rt. 480
360
360
0
Rt. 480 - Rt. 45
890
850
40
Rt. 45 - Potomac River
1380
1230
150
Rt. 45 Corridor
660
510
150
Rt. 5 Corridor
720
720
0
TOTALS
4,010
3,670
340
Portions of this area are presently platted and developed or committed (e.g. subdivisions, apartments, shopping center, Shepherd College, golf course community, etc.) but a substantial portion is open and potentially developable.
RECOMMENDATIONS:
This plan has identified over 2,500 acres of land in the vicinity of Shepherdstown that can benefit from careful land use, transportation and utility services planning.
Utility planning can be one of the strongest planning tools to help Shepherdstown and Jefferson County be partners in a model comprehensive planning and land use regulation process.
Immediate needs are to establish areas of responsibility. Refinement and subsequent analysis of land use plans would be a logical step in the direction of projecting locations and quantities for future water and sewer service. An area plan for the Greater Shepherdstown Area done as partners is one approach to beginning this process in a cooperative fashion. Several tasks to be undertaken near the outset, with respect to utility planning, could include:
A formal service district line to be drawn and established, thereby defining the respective roles of the PSD and the Corporation with respect to providing public utility services in this area. It is also necessary for the Corporation to know Jefferson County's formal adopted policy, regulations and long range plans concerning sevice to areas around Corporations and concerning the establishment of package wastewater treatment plants and/or development of community water supply systems in the GSA or in nearby areas.
The County to determine and then inform the Corporation of the ultimate buildout under zoning and Comprehensive Plan for the area around the Corporation (GSA). With this information, the Corporation will be able to determine its abilities to serve development planned for the area, to prepare plans for future facilities and to be better able to respond to proposed changes in zoning and planning in the GSA.
GREATER SHEPHERDSTOWN AREA
INTRODUCTION
Background
This chapter is a new component of the Comprehensive Plan. As growth pressures have increased on the Town and especially as they have increased by new development in Jefferson County, an awareness of a need for planning around Shepherdstown has grown and is expressed in this chapter.
Purposes
Shepherdstown fully recognizes that the surrounding area is not under the corporation's control for purposes of comprehensive planning, zoning and subdivision regulation. Therefore it wishes to work cooperatively with Jefferson County and agencies responsible for infrastructure to plan for this area. Toward this end, Shepherdstown is formally expressing its ideas concerning planning and development around the Corporation for consideration by the County and other agencies'. At the highest level of achievement it is hoped that one or more of the following can occur in terms of planning process:
* Jefferson County creates an area plan as part of its Comprehensive Plan and incorporates elements of this Greater Shepherdstown Plan in the County Plan.
* Jefferson County and Shepherdstown work cooperatively under existing or new state planning legislation to establish a joint planning and regulation framework for this area.
* Development and infrastructure proposals in Jefferson County be referred to Shepherdstown for review and comment. Shepherdstown will relate such proposals to the Greater Shepherdstown Area element of its Comprehensive Plan.
* Provision of utilities may be strongly linked to planning and zoning with Jefferson County, Jefferson County Public Service District, West Virginia Public Service Commission and the West Virginia Department of Natural Resources.
* Friendly annexations by Shepherdstown to incorporate logical additions may occur.
The Corporation's legitimate interests and concerns leading to a cooperative planning effort with Jefferson County for the areas around the Town include:
* The Corporation is responsible for its road network and street system. Some traffic is and can be generated in the GSA in the future and the Corporation has an interest in assessing the capacity of its road infrastructure to handle new traffic from these tributary areas.
* The Corporation has some responsibilities for providing water and sewer in Jefferson County proximate to the Corporation and such responsibilities need to be better defined and coordinated.
* Shepherd College is both in the Corporation and in the County.
* Town Run watershed is both in the Corporation and in the County.
* The history of Jefferson County and Shepherdstown are closely intertwined.
* There are strong public and private economic ties between Jefferson County and Shepherdstown.
Content
The contents and organization of this chapter are as follows:
SUMMARY OF MAJOR RECOMMENDATIONS
DESCRIPTION OF GREATER SHEPHERDSTOWN AREA PLANNING AREA BOUNDARIES
PLANNING ANALYSIS
GOALS AND POLICIES
SUMMARY OF MAJOR RECOMMENDATIONS
The key recommendation is to establish a dialogue and working relationship with Jefferson County for the planning of this area. Without this, little can happen that does not rely on annexation.
There are only a few select areas that are logical places and offer an opportunity to extend the historic lotting and architectural character of the Town. These would be Leeland Plantation and adjoining lands to the west. Incentives and other techniques should be explored to further the potential for this activity.
Commercial development should be limited to the Route 45 corridor in locations adjacent or in close proximity to existing commercial zoning and development. Other approaches to Shepherdstown do not have significant amounts of commercial development, strip or planned, and this is a desirable situation in terms of both visual appearance and of the health and vitality of businesses within Shepherdstown and the existing shopping areas in/near Maddex Farm.
The primary focus of joint planning efforts then seems to be that of providing green edges to the greater Shepherdstown area and to providing attractive approaches along the major road corridors leading into Shepherdstown. This can be done in the areas not already platted and/or developed through a variety of techniques. These should rely on incentives and tradeoffs so that green areas can be provided without adversely affecting ability of landowners to use their properties.
Related recommendations and findings brought forth from the planning analysis include the following:
1. Efforts could focus on the concept of graduated or feathered density from in Town to adjoining subdivisions to a very low density/conservation/farm environment;
2. Protection of the open space appearance of the non-platted portions of the major road corridor frontages;
3. Encourage the conservation of intervening open spaces on the larger lots/acreage fronting on the major road corridors;
4. Encourage major setbacks and open space along the major road corridors;
5. Discourage or prevent the subdivision of the undeveloped/unplatted frontage along the major road corridors;
6. Promote and encourage the possible conservation of large parcels as predominantly green, open space areas to form an inner green space edge to Shepherdstown;
7. Implementation of policies and regulations to include designation of a well head protection area to protect the springs feeding the potable water supply of Town Run, to insure development in the Town Run watershed will have no adverse effects on the Town Run, Town Marsh and related wetlands or on rare habitat/species;
8. The Rural area is suited for rural use as planned. A fundamental question for rural areas is to address where the lines should be drawn for subdivision development. This could be at the limits of present day platted subdivisions;
9. The balance of the interior areas, away from the major road corridors, could be developed as if a substantial open space buffer could be provided to define the edges of Shepherdstown;
10. The rural portions of these major road corridors are not served by roads or other infrastructure/amenities and should remain rural in nature as green area defining Shepherdstown;
11. Planning efforts should be focused on working with Shepherd College to achieve the best appearance for that working edge of Shepherdstown;
12. The following summarize recommendations related to the Town Run Watershed:
The Town heartily concurs with the Jefferson County Comprehensive Plan recommendations of protecting streams from sediments, excessive nutrients, harmful substances, bank erosion and removal of riparian strips.
Devise and implement protection program.
12. Protect the accessibility functions and safety of road entrances into Shepherdstown through techniques such as providing access from intersecting secondary roads wherever possible, consolidating and creating (new and existing) common driveway entrances, limiting entrances to subdivisions to one or two depending on scale, and preparing proactive plans for accessibility, incorporating all modes of transportation for the future.
DESCRIPTION OF GREATER SHEPHERDSTOWN AREA PLANNING AREA BOUNDARIES
Criteria
The criteria for boundaries to the planning area include those that identify where actions can directly affect Shepherdstown.
Description
The initial boundaries of the Planning Area (GSA) are a combination of lines which can be drawn now and ones which can be drawn in the future after joint study by Jefferson County and Shepherdstown.
Those boundaries which can be drawn now include:
* the outer edge of the more intensive zoning districts placed around the Town by Jefferson County
* the Town Run watershed
Those boundaries which can be drawn in the future include:
* areas along major road entrances into Shepherdstown where development has the potential to have adverse or positive impacts effects on:
o economic vitality of Jefferson County and Shepherdstown,
o good accessibility and safety by auto, bike or walking for Jefferson County and Shepherdstown citizens
* open space or buffers which can distinguish, enhance or preserve the special historic, architectural and community character of the Shepherdstown area of Jefferson County.
PLANNING ANALYSIS
Introduction
The planning analysis section presents evaluation relevant to border areas around and adjoining the corporation.
These areas are in Jefferson County with the closest/adjoining areas generally zoned and planned as Growth Areas and the areas at the outer edge of the Growth Areas being zoned and planned as Rural Areas.
The analysis begins by evaluating whether there are any areas adjoining Shepherdstown which, because of special circumstances, do not need to be included in the analysis for future planning purposes. Subsequent analysis deals with areas which are subject to change and susceptible to planning and regulation.
The organization of the Planning Analysis section of this chapter is as follows:
* Border Areas Not Subject To Change Nor Susceptible To Planning
* Border Areas Subject To Change and Susceptible To Planning
* Analysis of Geographic Areas
* Area from Potomac River to Route 230 (Flowing Springs Road) - East Side of Shepherdstown
* Area between Route 230 (Flowing Springs Road) and Route 480 - South Side of Shepherdstown
* Area between Route 480 and Route 45 - Southwest Side of Shepherdstown
* Area On The North Side And In The Corridor of Route 45
* Area in the Route 5 (Shepherd Grade) Corridor - North Side of Shepherdstown and to the Potomac River
* Town Run Watershed
* Town Utility Service Areas
* Major Radial Road Corridors
* Summary of Zoning Regulations of Jefferson County for Areas Around Shepherdstown
Border Areas Not Subject To Change Nor Susceptible To Planning
Shepherdstown's northern and northwestern boundaries can be excluded from this Planning Analysis.
The northern boundary is the Potomac River and, across the Potomac, the National Park. These features and uses are fixed and beneficial borders, not amenable to planning nor logically included as part of the areas susceptible to planning.
The northwestern boundary of Shepherdstown consists primarily of lands owned and planned by Shepherd College. The planning of this area is largely a matter of autonomy on the part of the college but a cooperative relationship exists between the town and college. This Comprehensive Plan intends to further that spirit of cooperation. Discussions with college officials during the preparation of this Plan and other specific recommendations in the Plan are aimed at that purpose.
Areas adjacent to the college should respect and emulate the land planning and campus character of the college setting through transitional uses, complementary uses, rural uses and buffering.
In addition, the Bavarian Inn is a well-known and well-established lodging, dining and recreation attraction in this northwestern edge area along the Potomac River. This is a committed use unlikely to change and it plays a positive role in the area's economy and ability to accommodate tourism.
Border Areas Subject To Change and Susceptible To Planning
Introduction
A large measure of the approach to this analysis is based on the geographic and infrastructure framework of the area surrounding Shepherdstown, which is characterized by radial roads or highways leading into Shepherdstown. Each "wedge" bordered by these radial roads is analyzed as a sub planning area influencing Shepherdstown and influenced by Shepherdstown.
Within these geographic areas, influencing factors such as zoning and acreage of Growth Area in the County, street and lotting patterns, land use, community facilities and physical characteristics are discussed. Note that a summary of the County's zoning regulations for the three zoning districts applied to the borders of Shepherdstown is presented at the end of this section.
The geographic areas of analysis and the radial roads helping to define them are:
ò Area from Potomac River to Route 230 Generally on east Side of Shepherdstown;
ò Area between Routes 230 - Flowing Springs Road;
ò Area between Route 480 and Route 45
ò Area on the north side and in the corridor of Route 45
ò Area in the Route 5-Shepherd Grade corridor generally on the north side of Shepherdstown and Extending to the Potomac River
Area from Potomac River to Route 230 Generally on East Side of Shepherdstown
In Town: East Side
The area within and on Shepherdstown's east boundaries is characterized as being east of the railroad. This area is markedly different in character and use from other parts of Shepherdstown. This area does not provide the basis or foundation for extending similar street or lotting patterns into Jefferson County either under County jurisdiction or annexation conditions. The land bays are of irregular rather than square or rectangular shape and the limited area where subdivision has occurred (between Ray St. and College St. zoned R-1) has lots which are oriented in four different directions rather than north-south like most all of the town.
Uses along or near this border area include the wastewater treatment plant, town landfill, sloping vacant land, scattered single-family houses, a day care center and Ridge Valley subdivision.
With the exception of East German, College, Ray, High and the Day Care Center (zoned R-1), this area is zoned mostly under the town's Conservation Open Space district with smaller amounts zoned for Park/Residential and Commercial.
There is a four-inch water line in this area which probably has limited capacity, if any, to serve additional development either within or outside town.
The character of this area offers no clear-cut guidance in terms of influence on the adjacent land in the County.
Out of Town: East Side
East of Shepherdstown and east of West Virginia Secondary Route 230 (Flowing Springs Road): The area adjoining and extending eastward from the Corporate limits is zoned and planned by Jefferson County for Rural and there is no Residential-Growth or Residential-Growth-Light Industry-Commercial in this area.
The Reformed Graveyard provides green space close to the Town boundary south of E. German St. The balance of the area adjoining and extending eastward from the Corporate limits is predominantly devoted to existing large lots (including Ridge Valley Subdivision) averaging 4 acres or better. Continuing to the east the area remains in very large (e.g. 80 -200+ acres) holdings and has not been subdivided. The area south of Shepherdstown and east of Flowing Springs Road includes three subdivisions (North Thirty, Cavalier West, Fairview Farm) but the great majority of the area is in larger holdings of thirty to several hundred acres.
This area is not well-served with existing roads with only the eastward extension of German Street (which serves primarily as River Road along the Potomac), the north-south leg of Trough Road over a mile east of the corporate limits serving this rural area and Route 31 about six tenths of a mile south of the municipal line.
Topography and physical features include several very steep ravines/stream valleys of Potomac River tributaries. The lands east of Route 230 are cleared with level to gently rolling topography.
There are no public or community facilities existing or planned in this area.
Conclusions: East Side
This area, based on present development patterns, access and physical features is well-suited to remain rural and act as an area which is a green buffer identifying and complementing Shepherdstown on the east and southeast. Efforts could focus on the concept of graduated or feathered density from in Town to Ridge Valley and adjoining subdivision to a very low density/conservation/farm environment between Flowing Springs Road and Trough Road and Route 31. Of the border areas, this area is the least developed, has only rural zoning, and has the best potential to provide a green, rural edge to the Shepherdstown area.
Area between Route 230 (Flowing Springs Road) and Route 480
In Town: 230 to 480
The area north of Church Alley: The area along Washington Street has the street/alley pattern and typical lotting patterns of this south part of Shepherdstown (land bays of 400 x 125 feet, 6-7 lots). It should be noted that the area on the south side of Church Alley and the municipal line is already platted and committed to development. The areas on either side of Princess Street are zoned commercial and the balance of this area is zoned R-1 Low Density Residential.
The patterns of Shepherdstown as represented south of New Street have already been extended into the County area before transitioning to different patterns reflecting the dictates of school planning, affordable housing project and modern-type subdivision design.
Out of Town - Growth Area: 230 to 480
This area includes about 360 acres of Residential-Growth district zoning on both sides of the railroad which extends out seven-tenths to one mile from the corporate limits.
East of the Railroad: The area adjoining and closest to the Corporation boundary is platted in residential lots of less than 3 acres, followed by a parcel of over 13 acres, then the Bee Line Estates subdivision, then Morgan Grove (81+ acres) and adjoining 28 acre parcel on the west. The eastern portion of Morgan Grove Heights subdivision is on the western boundary of the Residential Growth area on the east side of the Railroad. The undeveloped portions of this area include Town Run near the railroad, cleared land and gently rolling topography.
West of the Railroad: The area adjoining and closest to the Corporation boundary is platted with Prospect Avenue, Fairmont Avenue, alleys and small lots in the style of older portions of Shepherdstown. This is a residential area. Proceeding south, uses include multi-family housing and the junior high school. This portion of the Growth Area is already developed and committed. The balance of the Growth area west of the railroad proceeding south to Morgan Grove Road is in larger holdings with a very few small lots along Route 480. The undeveloped portions of this area include Town Run near the railroad, a mix of wooded and cleared land and gently rolling topography.
Public facilities include Shepherdstown Elementary School, Shepherdstown Jr. High School and Morgan Grove Park. Morgan Grove Park is an Historic District
Out of Town - Rural Area: 230 to 480
This Rural area, beginning at the boundary line between the County's Residential Growth and Rural districts, is some seven-tenths to one mile from the corporate limits. It begins with areas already platted and developed into suburban/exurban density (1-5 acre lots) subdivisions.
On the south and east of the railroad (i.e. "Rural district") are platted and developed Glenn Meadows, Glenn Woods and the west part of Morgan Grove Heights residential subdivisions adjoining the Residential Growth Area.
On the west side of the railroad, the rural area begins with larger lots in the 6-25 acre range followed by the platted and developed Morgana residential subdivision at the exurban density of 2-4 acre lots. Continuing south and southwest, the area remains predominantly in rural use and in large holdings.
This area is well served by roads in the inner, developed subdivision band. Roads south of the subdivision band circumscribe areas of one square mile and larger as a rule. In addition, this area is split in two by the railroad with only one crossing in the area anywhere near Shepherdstown.
Topography and physical features are generally favorable for a variety of land uses including agriculture.
There are no public or community facilities existing or planned in this area.
Conclusions
This analysis indicates that planning efforts for the Growth Area should focus on the following:
East Of The Railroad
1. Protection of the open space appearance of the non-platted portions of the Rt. 230/ Flowing Springs Road frontage;
2. Encourage the conservation of intervening open spaces on the larger lots/acreage fronting on Rt. 230 from the Corporation boundary south to Bee Line Estates on the east and west sides;
3. Encourage major setbacks and open space along the east side of Rt. 230 from just south of Bon Aire Drive to The North Thirty subdivision on east side;
4. Discourage or prevent the subdivision of the undeveloped/unplatted Rt. 230 frontage in the approach corridor in the rural area, that is between Shenandoah Junction and the Glenn Meadows and North Thirty subdivisions;
5. Promote and encourage the possible conservation of Morgan Grove and adjacent large parcel as a predominantly green, open space area to form an inner green space edge to Shepherdstown;
6. Implementation of policies and regulations to stop development in this part of Town Run watershed from having any adverse impacts on Town Run, Town Marsh and rare habitat/species.
West Of The Railroad Over To Route 480
1. Protection of the open space appearance of the non-platted portions of the Rt. 480 frontage:
2. Encourage the conservation of intervening open spaces on the larger lots/acreage fronting on Rt. 480 from the Corporation boundary south to Morgana subdivision on the east and west sides;
3. Encourage major setbacks and open space along the east side of Rt. 480 from the Ashbury United Methodist Church to the Morgana subdivision;
4. Implementation of policies and regulations to stop development in this part of Town Run watershed from having any adverse impacts on Town Run, Town Marsh and rare habitat/species.
.
This analysis indicates that planning efforts for the Rural Area should focus on the following:
1. Discourage or prevent the subdivision of the undeveloped Rt. 230 frontage in the approach corridor in the rural area, that is between Shenandoah Junction and the Glenn Meadows and North Thirty subdivisions.
2. The Rural area is suited for rural use as planned. A fundamental question for this rural area is to address where the lines should be drawn for subdivision development south from Shepherdstown and north from the Rattlesnake Run crossing of Route 230. This could be at the limits of present-day platted subdivisions.
Area between Route 480 and Route 45
In Town: 480 to 45
The area north of Back Alley from Shoe Lane west includes the street/alley pattern and typical historic lotting patterns between Shoe Lane and German Street. The area south of Shoe Lane, recently annexed, is vacant and owned by the Catholic Church. Shoe Lane is platted south to its intersection with Washington Street. Adjoining the Church's land across the municipal boundary is the large Leeland Plantation estate. This area is residential and is zoned R-1 Low Density Residential.
These ownerships and likely uses give strong direction for this area to function as an open space edge for Shepherdstown. Limited residential or institutional type uses with low building coverage and high percentage of tree and grass cover would be one of the most desirable recognitions of influences in this area.
The area south of Back Alley and west of Duke Street has New Street and Washington Street platted and existing and Union Alley platted to intersections with platted Shoe Lane.
Out of Town - Growth Area: 480 to 45
This Growth Area includes about 890 acres or about 1.4 square miles. 850 acres is Residential-Growth and 40 acres is Residential - Growth - Light Industrial - Commercial district zoning. This area extends out some one-and three-tenths miles from the municipal boundary.
The Route 45 frontage within the Growth Area and closest (e.g. about one-half mile to Shepherdstown) has already been platted into lots predominantly in the 7,000-12,000 square foot range with a mixture of commercial and residential development.
The volunteer fire department and ambulance station is an important public facility in this area.
The Route 480 frontage within the Growth Area has already been platted into lots predominantly in the 3 to 9 acre range for residential use and includes the large Elmwood cemetery.
The outer limit of the Growth Area is platted as the residential community of Ledge Lowe Estates.
The great majority of land between an imaginary line connecting the eastern Old Martinsburg/Route 45 intersection and Ledge Lowe Estates is in larger land holdings ranging from 11 to 48 acres. Thus the interior or wedge portion of this planning sector is rural in character.
Undeveloped areas are predominantly cleared and have gentle topography.
The area from Rt. 45 south beginning near the western Old Martinsburg/Route 45 intersection contains a major north-south band of residential subdivision development (Mecklenburg Heights).
The south frontage of Route 45 west from Mecklenburg Heights is a mixture of 3 acre to 70+ acre holdings except in the vicinity of the Berkeley County line where the frontage is platted into 1 and 2 acre lots.
Out of Town - Rural Area: 480 to 45
This Rural area, beginning at the boundary line between the County's Residential Growth and Rural districts, begins some one-and three-tenths miles from the corporate limits. In addition, the area along the Route 45 corridor is included in the County's Growth Area all the way to the Berkeley County line
The areas west of Mecklenburg Heights and south of the Growth Area are still generally rural and in larger land holdings of 16-to several hundred acres.
The areas along and west of Route 480 and inside Route 48/1 (Persimmon Lane) are rural and also predominantly in larger holdings with scattered smaller lots fronting upon Route 480.
There are no interior roads serving this area.
Topography and physical features are generally favorable for a variety of land uses including agriculture.
There are no public or community facilities existing or planned in this area.
Conclusions: 480 to 45
The rural appearance on both Route 45 and Route 480 should be conserved through setbacks, cluster and other techniques to achieve an open space edge through cluster development and other techniques.
Planning efforts on the Route 45 frontage should focus on providing some green open space as a natural boundary for Shepherdstown from the Rocky Marsh Road intersection east to the vicinity of Rock Spring Acres.
Planning efforts on Route 480 frontage will be limited in the Growth Area portion of this sector. Such effort should focus on providing a green edge/ natural boundary for Shepherdstown by working with the church and Leeland Plantation properties in order to achieve open space appearance. Near Route 45, portions of the undeveloped Growth Area closest to Shepherdstown (south of Route 45, west of Leeland Plantation and Elmwood Cemetery) have the potential to extend the historic lotting and architectural patterns of Shepherdstown if several parcels could be assembled for such development.
The balance of the interior area, away from Route 45 and Route 480, could be developed as subdivisions such as Ledge Lowe Estates if a substantial open space buffer could be provided to define the edge of Shepherdstown. The Rural Area is suited for rural use as planned.
Area On The North Side And In The Corridor of Route 45
In Town: Rt. 45 North/Corridor
West of Maiden Lane: This area includes several cemeteries. The Catholic cemetery forms the west boundary of Shepherdstown from High Street north. This area is zoned R-1 Low Density Residential.
The area between High and German streets is characterized by small lots and includes the street/alley pattern that is such a strong element of the town's physical makeup. This is an area of modest homes and a significant CDBG project was undertaken in this area in 1979-81 to improve housing, add a park, sidewalks and paving. The character of this area should influence lands across the corporate border to the extent possible but such influence may be limited due to strong existing commercial development in that area.
Out of Town - Growth Area: Rt. 45 North/Corridor
The overall Growth Area between Route 45 and the Potomac River includes about 1380 acres or over 2 square miles made up of Residential-Growth (1230 acres) and Residential-Growth-Light Industrial - Commercial (150 acres) district zoning.
This part of the study area, the Growth Area along the north frontage of Route 45 extending to the Berkeley County line, includes all 150 acres of the Residential - Growth - Light Industrial - Commercial zoning and 510 acres of the Residential - Growth zoning.
From the corporate boundary west to the eastern Old Martinsburg road intersection, this area is committed and developed with commercial and residential uses including:
* the planned Maddex Farm development which includes multi-family and townhouse residential as well as shopping center and other commercial uses.
* the Chapline's Choice single-family subdivision.
West of Chapline's Choice Route 45 and Billmyer Mill Road bound the Growth Area. This area is characterized by existing subdivisions along/near the Route 45 frontage (Mecklenburg Heights, Heatherfield, Rocky Spring Acres) and rural areas between the subdivisions and Billmyer Mill Road (with some larger holdings up to 148 acres in area).
Out of Town - Rural Area: Rt. 45 North/Corridor
The areas along and on the north frontage of Billmyer Mill Road are in 2 - to 15 - acre parcels for the most part.
Areas away from Billmyer Mill Road going up toward the old railroad bed are in large rural farm holdings. The physical character of this area is mostly cleared and gently rolling to rolling topography.
Conclusions: Rt. 45 North/Corridor
The area between Rock Springs Acres west to the subdivision near the County line presents the only opportunity to create some open space definition and natural boundary for the Shepherdstown area on the north side of Route 45. The rural appearance should be conserved through setbacks, cluster and other techniques to achieve an open space edge.
The rural portions of this corridor are not served by roads or other infrastructure/amenities and should remain rural in nature as green area defining Shepherdstown.
Area in the Route 5 ( Shepherd Grade) Corridor, North Side of Shepherdstown to the Potomac River
In Town: Route 5 - Shepherd Grade
The character of the boundary and 160 acres straddling the boundary in this area is established by the existing and planned facilities of Shepherd College.
Out of Town - Growth Area: Route 5 - Shepherd Grade
The entire designated Growth Area is committed to platted subdivisions and existing residential development.
Out of Town - Rural Area: Route 5 - Shepherd Grade
The Rural areas on either side of the Growth Area include large holdings and these areas are rural in character. They do not have roads or infrastructure to serve development.
Conclusions: Route 5 - Shepherd Grade
Planning efforts should be focused on:
1. Working with Shepherd College to achieve the best appearance for the working edge of Shepherdstown.
2. Conserving the Rural areas and limiting development on either side of the Growth Area.
3. Establishing a permanent green space/natural edge for the Shepherdstown area on the north limit of the present Growth Area (both sides of Route 5).
Areas Within the Watershed Of Town Run
Town Run goes directly through the Corporation on its way to the Potomac and provides an alternate source of potable water for the town water supply. The tributary watershed of Town Run is mostly in unincorporated areas of Jefferson County. It is in the Corporation's public health interest to not be subject to effects of possible increased storm water runoff or to pollution of the water in this alternate domestic potable water supply source. This water is also a recreational water resource. Establishment of a wellhead protection zone, wetland protection, requirements for flood plain alternation studies, erosion and sedimentation control measures and Best Management Practices are techniques which can assist in protecting the Corporation's interests in this area.
Town Run is a small but very important feature of Shepherdstown. It runs through the heart of town, it is highly visible from German Street near the "main" intersection with King Street, it is visible from many other streets and alleys and it is a visual/landscape feature to many homes and properties in the Corporation. It is accessible in a number of places including fords across alleys-a present day reminder of bygone days. Children (of all ages) play in the Run from time to time. Wading, splashing, sailing handmade toy boats, trying to find a fish or a frog; just looking at the sheer beauty of the clear and swiftly moving water right in the middle of the built-up town are counted among the uses and pleasures provided by Town Run. It complements and enhances the green natural features of the Shepherdstown environment.
The Town Run is also the alternate source of water for the Town's domestic potable water system and has been used for supplying water to the Town during times that the primary source, the Potomac River, has been unavailable because of pump, line, or flow problems.
The nature of the run is that, unlike most streams, it never seems to cause any appreciable flood damage and it seemed not to diminish at all during the record drought of the spring and summer of 1999. Thus the protection of the character and quality of the run is important.
The drainage area or watershed of Town Run extends well beyond the corporation boundaries into Jefferson County. It extends south from the corporate line a distance of about 3.2 miles. The eastern boundary of the watershed parallels Flowing Springs Road (Route 230) on its East Side and the western boundary extends south from the vicinity of the intersection of High and Duke Streets along Route 480. The railroad runs through the watershed for a distance of over three miles. The drainage area in Jefferson County (outside of the corporation and south of Route 45) is estimated to be over 2,000 acres or about 3.3 square miles. Town Run and Town Marsh are identified in the Jefferson County comprehensive plan. This plan identifies Town Marsh as a wetland to be protected and also locates a "rare species occurrence" in the vicinity of the Town Marsh.
The town heartily concurs with the Jefferson County Comprehensive Plan recommendations of protecting streams from sediment, excessive nutrients, harmful substances, bank erosion and removal of riparian strips.
The watershed area in Jefferson County includes areas zoned and planned for Residential-Growth and for Rural-Agriculture.
It is important to insure that when development does occur in the watershed, it is subject to
* a limitation of post-development runoff being equal or less than pre-development runoff,
* Best Management Practices
* a well head protection zone to insure that the springs feeding the Run are not affected so that the quality of potable water is protected.
* The formation of a Town Run watershed association could help in implementing County and Shepherdstown policies as well as monitoring water quality.
Nature And Character Of The Areas Potentially Served by Shepherdstown Utilities
At the present time the Corporation supplies public water and/or sewer service to homes and businesses in the GSA. At the same time, Jefferson County has a PSD with authority to provide public utility services anywhere in Jefferson County.
In order for the Corporation to prepare and maintain adequate plans and facilities to serve the needs of the Corporation and of the surrounding area (GSA), it is necessary for a formal service district line to be drawn and established thereby defining the respective roles of the PSD and the Corporation with respect to providing public utility services in this area. It is also necessary for the Corporation to know Jefferson County's formal adopted policy, regulations and long range plans concerning service to areas around Corporations and concerning the establishment of package wastewater treatment plants and/or development of community water supply systems in the GSA or in nearby areas.
It is also necessary for the County to determine and then inform the Corporation of the ultimate buildout under zoning and the Comprehensive Plan for the area around the Corporation (GSA). With this information, the Corporation will be able to determine its abilities to serve all development planned for the area, to prepare plans for future facilities and to be better able to respond to proposed changes in zoning and planning in the GSA.
The following information has been assembled during