Shep Plan 2000

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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.

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.

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.