hilltop strategic growth area master plan · 15 march 2012 Public presentation of design alternatives 21–22 may 2012 Phase 3 – Final Public Presentation of Master Plan Recommendations

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Adopted by reference as an amendment to Virginia Beach Comprehensive Plan MMMM DD, 2012

Virginia Beach, Virginia

h i l lt o p s t r at e g i c g r o w t h a r e a m a s t e r p l a n

u r b a n d e s i g n a s s o c i a t e sj u l y 2 0 1 2

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1

P r e Pa r e d f o r

City of Virginia Beach

P r e Pa r e d by

Urban Design Associates The Miles Agency

RCLCO URS Corporation

VHB WPL

St e e r i n g C o m m i tt e e

John E. Uhrin, City Council

James L. Wood, City Council

Jeff Hodgson, Planning Commission

Robert Thornton, Planning Commission

Jack Whitney, Planning Director

Barry Frankenfield, SGA Manager

Steve Herbert, City Manager’s Office

Dorothy L. Wood, Virginia Beach Development

Authority

Ray Firenze, US Navy- NAS Oceana

Deborah Kassir, Virginia Beach Vision

Walter Potter, Potter and Company

Bruce Gallup, Gallup Surveyors and Engineers

Kristina Chastain, Captain George’s Restaurant

Sam Reid, Oceana Gardens Coalition Civic

League

Nancy M. Riedemann, Linlier Civic League

Linda Serrette, Virginia Beach Friends School

Christopher Felton, Saint Nicholas Greek

Orthodox Church

Preston Midgett, Resort Advisory Commission

Elizabeth Friss, Mayor’s Youth Leaders in Action,

Ocean Lakes High School

June Robertson, Sentara Virginia Beach

General Hospital

Brock Potter Potter and Company

Hilltop Strategic Growth Area Master Plan

acknowledgements

h i l lto P S u P P o rt Sta f f

Debbie Zywna, Planning, Project Manager

Robert A. Davis, Comprehensive Planning

Jeryl Phillips, Comprehensive Planning

Mark Schaufer, SGA Office

Richard Lowman Public Works

Barbara Duke Parks and Recreation

Peter Pommerenk Public Utilities

Rob Hudome Economic Development

Bill Johnston Public Works

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Table of Contents

table of contents

IntroductIon 3

ExEcutIvE Summary 4

analySIS 5

Portrait of Existing Conditions 6

X-Ray Exhibits 7

AICUZ and APZ /CZ Restrictions 8

Public Outreach 9

Market Analysis 10

The Design Challenge 12

IlluStratIvE maStEr Pl an 13

InfraStructurE nEt work 14

Street Network Plan 15

Transit 25

Parks and Open Space Networks Plan 29

Conceptual Bikeways and Trail Network Plan 31

Stormwater Management 33

Sanitary Sewer Systems 36

Water Systems 37

l and uSE and dEvEloPmEnt caSE StudIES 38

Land Use Plan 39

Building Heights Plan 40

Development Case Studies 41

Development Standards 50

ImPlEmEntatIon StratEgIES 56

nEx t StEPS 59

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3 hilltop str ategic grow th area master pl an: v irginia beach, v irginia | MAY 2012 | urban design associates introduction

Introduction

CounCil’S 5 goalS

Create financially sustainable City services1

Grow the local economy2

Become a competitive, first class resort for residents, businesses, 3 and tourists

Improve the transportation system4

Revitalize neighborhoods and plan for the future5

Source: A Strategic Plan to Achieve City Council’s Vision for the Future, December 2011

See more about SGAs in the Virginia Beach Comprehensive Plan: http://www.ourfuturevb.com/specialareas/urban/Pages/default.aspx

Strategic Growth Areas along the Virginia Beach Boulevard Corridor

the city of virginia beach has identified Strategic GrowthAreas (SGAs) that have the potential to become future areas of eco-nomic growth and unique identity within the City. Six of the eight SGAs are located along the Interstate 264 /Virginia Beach Boulevard corridor and a future transit alignment. This corridor is the commer-cial spine of the city, well served by road access, and adjacent to stable residential neighborhoods to the north and south. The corridor is predominantly auto-oriented and low-density development. The City has embarked on a series of planning studies for the SGAs that will provide visions for future growth. The strategic growth area plans will identify appropriate land uses, infrastructure needs, opportunities for private development, and civic amenities. The Hilltop SGA 7 is located in the eastern part of the City between the Lynnhaven SGA 6 and the Resort Area SGA 8. Hilltop is served by an Interstate 264 interchange at First Colonial Road /Oceana Boulevard, in addition to Laskin Road, and Virginia Beach Boulevard. This study was prepared within a multi-disciplinary, process-based approach to design in three phases: understanding, exploring, and deciding. The Hilltop Strategic Growth Area Master Plan has been a public planning process that unfolded over the course of several months with many public planning events to ensure a thorough and implementable Master Plan.

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Pembroke SGA 44

Rosemont SGA 55

Lynnhaven SGA 66

Hilltop SGA 77

Resort Area SGA 88

naval air Station oceanalynnhaven

mall

Bow creek golf course

mt. trashmore Park

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4 hilltop str ategic grow th area master pl an: v irginia beach, v irginia | MAY 2012 | urban design associates executive summary

IlluStratIvE maStEr Plan

altErnatIvE alIgnmEnt for tranSIt along laSkIn road

Executive Summary in 2011, the city of virginia beach commissioned Urban Design Associates (UDA) to prepare a Master Plan for the Hilltop Strategic Growth Area (SGA). The process involved extensive public participation and was guided by a Steering Committee of stakehold-ers and representatives from the community and the City. The UDA Team gathered in Virginia Beach to collect information and discuss the opportunities for redevelopment with citizens interested in the Hilltop SGA. After a period of analysis, the team conducted a design charrette at the Virginia Beach City Public School District’s Laskin Road Annex in March of 2012 to prepare design ideas in an open studio. The purpose of the charrette was to prepare a series of design alternatives for the Hilltop SGA. The charrette events included focus group meetings, a public open house, and a public presentation of design concepts. The UDA team then refined the plan, working with the City, and presented draft rec-ommendations to the public in a May public meeting. The following is a summary of design principles that evolved out of the planning process that will guide the proper frameworks and strategies for imple-mentation of the plan.

Build a network of streets to improve traffic flow1

Provide trails and sidewalks for pedestrians and cyclists2

Provide a mix of retail, restaurants, and office uses3

Build on existing health care, food, and adjacent recreational 4 assets

Match quality of local businesses with equally memorable built setting5

Provide additional transit connections to Hilltop6

Comply with AICUZ land use zoning requirements7

Reduce land areas devoted to parking and replace with more 8 productive uses

Revisit and update old plans for roads and infrastructure 9

Incorporate an Urban Tree Canopy Program10

the hilltoP Sga PubliC ProCeSS: key mileStoneS

25–27 January 2012 Phase 1 – Initial analysis and focus group meetings and Kick Off Public Meeting

12–16 march 2012 Phase 2 – Design Charrette

14 march 2012 Open House

15 march 2012 Public presentation of design alternatives

21–22 may 2012 Phase 3 – Final Public Presentation of Master Plan Recommendations

9–11 July 2012 Presentation of Master Plan Recommendations to Planning Commission and City Council

S t uDy A Re A

analysis

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5 hilltop str ategic grow th area master pl an: v irginia beach, v irginia | MAY 2012 | urban design associates

Analysis the hilltop strategic growth area analysis process began in January 2012 with information-gathering by the consul-tant team composed of The Miles Agency, URS Corporation, VHB, WPL, and UDA. The team began by meeting with City staff and the Steering Committee. A series of focus group sessions were also held where technical experts, community leaders, members of the busi-ness community, residents of nearby neighborhoods, and stakehold-ers were invited to share their experience with the consultants. These meetings covered a range of topics including transportation, utilities and infrastructure, environment and ecology, development, and lead-ership. The initial public meeting invited people to share their opin-ions about the area and their aspirations for the Hilltop area. In early 2011, the UDA Team met with the City and department experts in a special work session to explore planning issues common to Rosemont, Lynnhaven and Hilltop SGAs. These discussions were sum-marized in a memo for use during subsequent planning phases. This was reviewed to kick off the Hilltop SGA process in January 2012. Following the January meetings, the consultants continued their efforts of gathering information and data. The team began to sift through the analysis information, better understand the possibili-ties of the Hilltop SGA, and explore options for implementation. UDA summarized the public input from the first round of commu-nity meetings. UDA also prepared a series of analytical plans called X-Rays as well as a Portrait of Existing Conditions for the study area. The study area boundary shifted from the original boundary sev-eral times throughout the process to reflect public input and observed field conditions.

Pl anS and StudieS affeCting the h illtoP Sga

2009 Comprehensive Plan1

APZ-1 /Clear Zone Master Plan2

Bikeways and trails Plan3

Virginia Beach Outdoors Plan4

Mixed-use Development Guidelines5

Retail establishment & Shopping Centers Guidelines6

Virginia Beach transit extension Study (HRt)7

analysis

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PortraIt of ExIStIng condItIonS

The urban design analysis includes a base plan of the area that com-bines information from several sources to provide a base from which we can develop alternative concepts. It includes all of the elements of the area: streets, buildings, land use, vacant land, topography, and natural features.

Portrait of Existing Conditions

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Whole foods

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marketplace at hilltop

hilltop Shopping Center

regency hilltop Shopping Center

Charles barker toyota

trader Joe's

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upper Wolfsnare Plantation

Parish day School

St. nicholas greek orth.

Church

linkhorn Park elem. School

freedom fellowship

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good Shepherd lutheran Church

laskin road annex

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Virginia beach boulevard

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StrEEtS x-ray the Hilltop SGA is dominated by arterials and restricted access streets. the local network within the SGA is tattered compared to the surrounding neighborhoods, limiting the number of choices drivers have for navigating the area. Large arterials break the SGA into isolated “silos” that are difficult for drivers, pedestrians, and cyclists to cross safely.

ParkS and oPEn SPacE x-ray the open space system in the Hilltop SGA is flanked by branches of the Lynnhaven River to the west and Linkhorn Bay to the east. A series of small parks, fields, and institutions serve the SGA, but typically they are disconnected from the waterways and from one another, lacking a system of trails and connected spaces. Few people are able to walk to local parks.

SEttlEmEnt PattErnS x-ray the Hilltop SGA is largely built out of low-density, parking-lot intensive uses including retail shopping, restaurants, and services. Some smaller multi-family development is present in and around the Hilltop SGA study area.

rESIdEntIal x-ray neighborhoods surround the shopping corridor within the Hilltop SGA. Some neighborhoods were added to the SGA to recognize the need to integrate them into the thinking.

land uSE dIStrIButIon EmPloymEnt x-ray A diverse mix of retail options is available along Laskin Road, but some of the uses are under-utilized and past their design life.

ParkIng x-ray Virginia Beach was built to accommodate the automobile and all its trappings. Parking lots consume an enormous amount of what could otherwise be productive land while diminishing the health and vitality of the environment and watershed.

X-Ray Exhibits

Understanding the fabric of the site is a key part of the design pro-cess. This is accomplished through a series of diagrams calledUDA X-Rays® which pull apart information so that the site can be more clearly understood. Each x-ray describes not only a physical element of the area, but also potential issues to be resolved.

Streets19.7%

Parking47.0%

buildings13.5%

open Space11.5%

other8.3%

analysis

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aIcuz analySIS x-ray the Hilltop SGA has a very unique dynamic regarding land use. Redevelopment areas are layered with various land use restrictions imposed by AICuZ. the adopted APZ-1 /CZ Master Plan identifies permitted uses in the most restricted areas and will be carried forth in this planning process.

AICUZ and APZ /CZ RestrictionsDevelopment in the Hilltop SGA is limited, because the area is located within the zones designated as greater than 75 db by the Air Installation Incompatibility Use Zones (AICUZ) as well as the Clear Zone (CZ) and Accident Potential Zones 1 and 2 (APZ-1 and APZ-2) in certain portions. Each designation has specific land use restrictions, with Clear Zones being the most limited and the APZ-1 zone following in limitations. AICUZ zones are organized by noise contours, with increasing restrictions in higher noise con-tours. These overlays dramatically impact in the Hilltop SGA. For the most part, new residential redevelopment is prohibited beyond what exists today, therefore precluding a true mixing of uses or other development typologies that rely on significant residential uses. Tables describing all compatible land uses in AICUZ can be found in Article 18 of the Virginia Beach Zoning Ordinance (Appendix A of the City Code). Limited permitted residential growth restricts the mix of uses that can locate in Hilltop. The fewer the number of uses, in particular residential, the greater the burden on the transportation network. Mixing of uses should be maximized to the greatest extent to minimize local trips.

70 -75 DB nOISe ZOne

> 75 DB nOISe ZOne

A PZ-2 ZOne

A PZ-1 ZOne

CLe A R ZOne

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Public Outreach

The first step in the Hilltop SGA Master Plan design process con-sisted of detailed analysis of existing conditions, collection of statis-tical data, mapping, development of analytical x-ray diagrams, site documentation, and site and precedent photography. In addition to this ‘hard’ analysis, the ‘soft’ analysis presented a picture of the per-ceptions and aspirations of the community and the stakeholders. This part of the process included meetings with the client group, Steering Committee, focus groups, high school students, interviews, and a public meeting. At each of these meetings, participants were asked the same three questions:

What are the Strengths of the Hilltop SGA?1

What are the Weaknesses of the Hilltop SGA?2

What are the Visions and Opportunities for the Hilltop SGA in 3 the future?

Study area WeakneSSeS

traffic volumes, intersections, and feeder roads for non-regulars;

no pedestrian and bicycle accommodation;

navy jet noise and AICuZ restrictions on real estate development;

unremarkable physical environment (“placeless”);

“Four Islands” of strip retail development divided by high-way barriers;

number, frequency, and response time of emergency vehicles headed to hospital;

Flooding from insufficient stormwater and drainage facilities;

Access to transit, including the proposed location of LRt station;

Lack of usable public open space; and

“Back of house” uses along Virginia Beach Boulevard and south of Interstate 264.

Study area oPPortunit ieS

An authentic pedestrian-first, “park once” environment;

Development of a truly connected street network that takes pressure off arterials and breaks down divide between the four corners;

Provide for parks, open space, and stormwater facilities;

Plan for future potential light rail;

Make transit centrally accessible;

Introduce a tree canopy program to mitigate stormwater and reduce parking lot impacts;

Improve efficiency and quality of land use with more com-pact development and less prominent parking facilities;

Diversify the Hilltop experience (“plenty of places to spend money, need a reason to spend time”);

Move “back of house” uses to APZs; and

Capture more tourism spending.

Red dots signifying what the residents and stakeholders indicated as the weaknesses in the Hilltop SGA centered around transportation, the inefficient network of streets, and lower-end or vacant properties.

Blue dots representing the priorities and visions of stakeholders appeared throughout the Hilltop SGA study boundary, but focused on key redevelopment sites.

Green dots, representing the strengths of the Hilltop SGA, focused around open space and several of the shopping center areas.

Study area StrengthS

Proximity to amenities such as the hospital, beach, retail, schools, and churches;

Diverse mix of retail and nearby housing that is attainable for a diverse demographic, including military families, empty nesters, and young families;

Presence of food with Stoney’s Produce, six grocers, and many local restaurants;

Predominance of locally-owned small businesses and retailers;

High-end retail destination within city;

Access from Virginia Beach Boulevard and Interstate 264;

Current transit service features two bus lines;

Feeder roads for bicyclists and local traffic; and

Ability to attract spending from Oceanfront tourism.

analysis

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Market Analysis

currEnt markEt drIvErS

The Hilltop SGA represents a unique opportunity to enhance an established market area with a distinct identity within the City of Virginia Beach. However, Hilltop’s current success is its greatest challenge to future redevelopment. Today, Hilltop can be understood as a diverse commercial district anchored by a strong collection and variety of retail developments, with ancillary office and industrial /flex users. Key factors that have contributed to Hilltop’s current success include:

Location at a key crossroads of three major East-West connectors »(I-264, Virginia Beach Blvd, and Laskin Road) and one of the few North-South connectors (First Colonial Road) within the city. These key thoroughfares provide access to the region’s major economic drivers, including:

Sentara Virginia Beach General Hospital ›Naval Air Station Oceana ›Resort area and tourist destinations ›

Proximity to a high concentration of affluent households in the City. »

ExIStIng markEt condItIonS

Hilltop’s retail properties have consistently outperformed the overall Virginia Beach market. Though additional competitive market areas (such as Town Center) now offer newer environs at a similar cost to tenants, this has had little effect on Hilltop’s performance and its per-ception as a premier retail and medical office location within Virginia Beach. Hilltop commands a household audience and provides retail options across all expenditure categories; Town Center retail primar-ily offers restaurant and dining options for adjacent office employees and a nightlife crowd. New soft goods retailers looking to expand

into the Hampton Roads market typically cite Hilltop as their top choice for a first retail location. The reasons for as such are as follows:

Established shopping destination with diverse retail base that 1 enhances total sales potential rather than competing for a share of limited spending

Proximity to Oceanfront Resort and major tourist destinations2

Ideal location at the intersection of major transportation routes3

Hilltop’s top retail properties achieve rents of $25–30/SF, con-4 sistent with the citywide top of market. These properties, located at the intersection of First Colonial Road and Laskin Road, have a collective vacancy rate at or below 5% for over 1 million SF of retail. Their enduring success can be attributed not only to its base location and demographic factors, but also to the unique and diverse tenant base that chooses to locate in Hilltop, despite its dated building stock and configuration, rather than any particular quality of the retail centers themselves.

Other users, especially medical office, have clustered in and nearby the Hilltop SGA because of its proximity to Sentara Virginia Beach General Hospital, which has historically been the primary hospital serving City residents and is currently the City’s only top-rated trauma center. While the recent opening of Sentara Princess Anne Health Campus to serve the southern half of the city — where most new household growth has located — may increase competition for ancillary medical users and may prompt a re-shuffling of health services providers within the City, it does not pose a true threat to the expansion of a health cluster in the Hilltop SGA. In fact, it may promote the expansion of total medical and health services employ-ment within the City. City-wide, especially in the Hilltop SGA, many medical office users have chosen to locate in building stock not constructed explic-itly for medical use. This indicates a market opening for true medical office space designed specifically for health care users rather than

adapted to their unique needs. Available office space within the SGA marketing specifically to medical users (though it is unclear if origi-nally intended as such) has asking rents of $20–$24/SF full service. This is a premium of 20–25% over asking rents at other comparable office environments nearby. While the provision of new, medical-spe-cific office space therefore presents a near-term opportunity, realiza-tion of the total potential medical office demand through 2030 would likely require redevelopment of under-utilized sites for higher and better use. Finally, examination of property performance vis-à-vis physi-cal and location assets suggests that Hilltop’s successes have come despite increasing transportation, access and planning constraints. It in fact is likely under-performing relative to its true potential, as an example of a place that can achieve the next level of performance with thoughtful placemaking and physical planning improvements. Hence the recommendations below are founded on the following concept: rather than an entire reinvention, the SGA process should allow the area to become a “better version of itself ” that addresses the constraints that currently may prevent the area from function-ing at its maximum efficiency. Based on market trajectories visible

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Capture of Medical Office Demand by SGACity of Virginia Beach2011-2030

Hilltop SGA Newtown SGA Pembroke SGA

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to date — specifically the strong performance of the assets but lim-ited room for upside potential that will drive private redevelopment absent physical improvements — failing to reinvest will likely mean that Hilltop will likely endure in its current form — as a collection of auto-oriented strip retail centers with other commercial uses dis-persed throughout.

HIlltoP Sga PoSIt IonIng

The area within the SGA boundaries should be considered as having two primary market positions, each of which is mutually-reinforcing:

Premier retail destination

Top regional retail destination serving local and regional house- »holds and attracting visitors from the Oceanfront.

Establish Hilltop as one of the luxury retail locations serving ›the entire Hampton Roads marketCreate a pedestrian-friendly streetscape that provides an unpar- ›alleled shopping and dining experience

Located north of I-264 and centered on the First Colonial and »Laskin Road intersection, and extending along the Laskin Road corridor, that encompasses the primary commercial developments for which the Hilltop area is known

This area has distinct market opportunities and will experience ›the majority of development forecasted within this SGA.

Production, distribution and repair district

Branded service district that enhances the market dynamics of »existing businesses and lower intensity land uses

Faces similar conditions to analogous districts within the previ- »ously studied Lynnhaven SGA

Located south of I-264 primarily along Virginia Beach Blvd, part »of a continuous belt of light industrial that stretches through mul-tiple SGAs

The planning goal for Hilltop SGA should be to resolve physical

issues that have hampered the evolution of the area and that allow it to reach its full market potential. Despite its positioning at the top of the market, the area is conceivably under-performing relative to the potential of its market drivers. These underlying strengths should:

Enhance the SGAs attractiveness to an even broader array of »regionally-attractive and destination retailers.

Attract a range of commercial developers who may be capable of »executing land aggregation and complicated development deals as well as assume control or assist with the repositioning of exist-ing assets in order to introduce higher quality that can increase Hilltop’s draw from city /region-wide to supra-regional.

Allow for the flexibility for medical offices to locate and expand »within the Hilltop SGA.

rEal EStatE StratEgIES

Of all of the SGAs, arguably, Hilltop requires the least direct level of pure real estate intervention or aggressive market enhancement sim-ply because existing market dynamics preclude such strategies; exist-ing properties are already desired locations for retailers and medical office, and the surrounding demographics and economics are superb. Instead, this is an area where thoughtful planning, public realm, investment, and transportation design could very well help the area reach additional velocity, putting the opportunity — and responsibil-ity — squarely on planners and transportation officials to make the right calls regarding public improvements. Effective strategies should focus more on creating a walkable grid of local streets, identifying potential parcel assemblages and market-ing these as prime redevelopment sites, and encouraging the forms and types of development identified as preferable in the SGA plan. These tenets can enhance the interaction between the SGA planning process and real estate market dynamics:

The SGA plan should identify a location in which public invest- »

ment in high quality, pedestrian-friendly streetscape can result in a walkable street grid that may spur the existing market to assem-ble and redevelop the adjacent parcels.

This should occur at under-performing sites within or near the ›retail core surrounding the Laskin Road and First Colonial Road intersection. These areas are appropriate for this intervention because ›under-performing core properties have the strongest upside for enhanced marketability and value creation, and therefore could catalyze additional activity nearby.

Future development in this location should be a minimum of four to »five stories and include vertical parking structures where appropriate.

Structured parking can free up additional developable land ›within the retail core — a location currently development-con-strained by its surface parking. Encourage a “park once” paradigm ›Prime the pump for future mixed-use or at least walkable ›development

In order to jump start retail development, the SGA process must »also address the challenge of creating an internal street network, understanding the existing parcel boundaries and the land uses that are likely to endure in the long-term. This process can also identify potential locations for eventual parking structures to serve commercial development.

Potential future vision — regional high-end shopping. ›Benefit from beach /resort as well as household base ›Perfect complement to regional and supra-regional tourism ›strategyOpportunity for department stores to upgrade overall retail ›While many of these high-performing parcels may currently ›feel little pressure to reconfigure or add density, the SGA plan-ning process should put in place these future access and park-ing plans for when market demands for denser development becomes clear.

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The Design Challenge

From the responses and data gathered in the initial phase of the design process, several themes emerged that informed the design principles. The themes highlight several design challenges:

Break down the ‘silos’ created by Laskin Road and First 1 Colonial RoadCreate usable parks and open space2 Develop easy-to-use transit3 Bring back the tree canopy to deal with heat-island-effect and 4 stormwater issuesDiversify the Hilltop experience to widen market appeal and 5 accessibility

Expand the tourism market capture6 Open space in the Hilltop SGA is limited and some existing open spaces are not functionally usable as either active or passive recreational space. the plan should appropriately determine functional parks and land suitable for development.

Building on existing strengths in the retail market will help to expand the tourism market in Hilltop.

excessive surface parking and current zoning regulations have resulted in single, separate uses. this creates neighborhoods and places that are not interconnected and walkable and lends to the feeling of being in isolated “silos.”

Commercial areas in Hilltop are often lacking the tree canopy found in other parts of the City. Street trees provide for comfort, stormwater management, and reduction of heat impacts of such large paved areas. If street tress along street corridors are not possible, tree planting should be increased on commercial parcels to compensate.

Hilltop currently has an abundance of auto oriented retail. Many of these areas could be transformed to allow for a more diverse, pedestrian scaled experience.

the design of the public realm around stops can give the perception that transit is inaccessible and hard to use.

fr amework pl an and key development sites

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13 Hilltop str ategic grow th area master pl an: v irginia beach, v irginia | may 2012 | urban design associates

Illustrative Master Plan

SInGLe - FA MILy ReSIDen t IA L BuILDInG

MuLt I - FA MILy ReSIDen t IA L BuILDInG

nOn - ReSIDen t IA L MIx eD -uSe BuILDInG InS t It u t IOn A L BuILDInG

OFFICe BuILDInG

FLe x BuILDInG

PuBLIC PA RKS A nD OPen SPACe

PA RK InG G A R AGe

PA RK InG LOt

wAteR S t uDy A Re A

The Hilltop SGA Illustrative Master Plan is based on the design principles identified in the analysis phase of the public planning process. The plan expands the developability of many of the local businesses by transforming land areas devoted to parking and under-utilized commercial property into a mix of retail and office opportu-nities. Targeted public infrastructure improvements and the potential for enhanced transit service will help to evolve the Hilltop SGA as a convenient, regional retail destination that’s within close proximity to the beach.

deSign PrinCiPleS

Build a network of streets to improve traffic flow; »

Provide trails and sidewalks for pedestrians and cyclists; »

Provide a mix of retail, restaurants, and office uses; »

Build on existing health care, food, and adjacent recreational assets; »

Match quality of local businesses with equally memorable built set- »ting;

Improve multi-modal connections from the adjacent neighborhoods; »

Provide additional transit connections to Hilltop; »

Comply with AICuZ land use zoning requirements; »

Reduce land areas devoted to parking and replace with more produc- »tive uses; and

Revisit and update old plans for road and infrastructure improvements. »


Note: Future street alignments will be determined in further studies, and will be based on property availability and feasibility.

i-264

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trader Joe's

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Parish day School


Church

freedom fellowship

Church


laskin road annex

ego drive

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Potters road

School bus

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wolfsnare creek

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P Oten t IA L tR A nSIt L Ine

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Infr astructure Network

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Infrastructure Network

StrEEt nEtwork Plan tranSIt nEtwork Plan

traIl nEtwork Plan

SanItary SEwEr and watEr SuPPly Plan

ParkS and oPEn SPacE nEtwork Plan

StormwatEr managEmEnt Plan

the redevelopment of the Hilltop SGA as a well-connected, transit-oriented commercial center largely depends on the align-ment and station location of the proposed LRT extension. As the last neighborhood stop on the LRT system between Norfolk and the ocean, the Hilltop SGA is uniquely poised to capture the retail and office growth that this system will allow. This infrastructure network plan proposes an updated street network that will better connect residents and guests to local and regional destinations and allow for a choice of travel modes. The street network plan is supplemented by the proposed trail network, which will better connect neighborhoods to each other and residents to the proposed open spaces. At the core of this is an updated stormwater management and water supply plan which supports future growth and development in the Hilltop SGA. Cumulatively, these proposed infrastructure improvements will act to catalyze a better connected, more mixed-use Hilltop that is able to capitalize on its connectivity to the beach and region.


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ProPoSEd StrEEt nEtwork RePuBLIC ROA DDOnn A DRIV e ne VA n ROA DV IRGInIA Be ACH BOuLe VA RDL ASK In ROA DFIRS t COLOnIA L ROA DSIte BOunDA Ry

Street Network Plan

The configuration of streets and arterials in the Hilltop SGA ischallenging for improving public accessibility with a neighborhood-based network of walkable streets. Many surrounding neighborhoods have cul-de-sac based street patterns. Laskin Road, First Colonial Road, Virginia Beach Boulevard, the rail line, and Interstate 264 cre-ate additional barriers between neighborhoods. The Hilltop SGA plan seeks to address the current infrastruc-ture network by defining a clear hierarchy of streets to establish a structure of development blocks and reconnect places. The plan recommends improvements for major streets in the Hilltop SGA that can support urban, walkable environments that are positioned to service growth. Landscaping has a major influence in creating an environment that is safe and conducive to pedestrians and cyclists. It is important to increase tree canopy along every roadway corridor. If this is not achievable, then there should be a need to compensate by increasing the amount of trees within the surrounding commercial areas. Each proposed street section is drawn in detail on the follow-ing pages to show optimum designs for all users.

Note: The Street Network Plan components that are included in this Master Plan are concepts presented within the context of the overall vision that is desired to be achieved for the Hilltop SGA area. However, actual roadway alignments, cross sections (including number of lanes) and other geometric features can only be specifically determined during the design development process with the assistance of professional engineering analysis. These engi-neering analyses are required to evaluate and balance the full range of safety, technical, cost, environmental, and public input factors.

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laurel lane

Southall drive

donna drive

kmart

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trader Joe's

Villa

ge d

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Village drive


Parish day School


Church


freedom fellowship

Church


laskin road annex

ego driveV

ictor r

oa

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mable lane

Wildwood drive


Potters road

School bus

Parking

oceana boulevard


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reynard drive

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LOC A L S tRee tSStrEEt HIErarcHy

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PRIM A Ry SeCOnDA Ry teRt IA Ry


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l aSkIn road: ExIStIng condItIon and

aPProvEd vdot dESIgn

Laskin Road is a major arterial which serves as Hilltop’s main east /west street and as one of four primary entrances to the oceanfront resort area. Currently the roadway consists of a four-lane divided road with adjacent bidirectional service roads which are separated from the main thoroughfare by planted medians. The current con-figuration of Laskin Road impairs the crossing of pedestrians and motorists alike; the only striped pedestrian crosswalk is located at its intersection with First Colonial Road. The approved VDOT design from 2000 removes the frontage roads and maintains the curb cuts, not eliminating or consolidat-ing them in this design. VDOT proposes to consolidate the existing number of travel lanes and to add lanes at intersections for turning movements. VDOT further proposes to add cross walk striping and pedestrian signalization. The existing condition and VDOT approved design for Laskin Road both treat the road primarily as a vehicular throughway and not as a pedestrian and transit-friendly corridor. While the VDOT proposal will add capacity, it will further exacerbate the perception of Laskin Road as a barrier to pedestrian movement. Continuous right turn lanes will provide opportunities for on-road bike lanes and potential future transit. However, the “body language” of the design still privileges the car as the dominant user of the right-of-way. Planned capacity improvements to both First Colonial Road and Indian River Road, particularly at the intersection of these roads, will provide more expedient transit of emergency vehicles to the hospital. Improvements will provided needed capacity at the intersec-tion translating into reduced queues and improved speeds. The City should maintain its emergency vehicle preemption system to provide the quickest response times for emergency responders.

aErIal PErSPEctIvE of ExIStIng laSkIn road (lookIng wESt)

aErIal PErSPEctIvE of aPProvEd vdot dESIgn for laSkIn road

(lookIng wESt)

laSkIn road: aPProvEd vdot dESIgn

160' R.O.W.

laSkIn road: ExIStIng StrEEt SEctIon

160' R.O.W.


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laSkIn road: ExIStIng StrEEt SEctIonHIlltoP Sga ProcESS PrEfErrEd l aSkIn road dESIgn

altErnatIvE wItHout tranSIt

In order meet anticipated future traffic demands in a way that ben-efits all users, Laskin Road will consolidate its service roads to create six total travel lanes. This allows for the creation of a buffer along the road which will accommodate bike lanes, walks, and landscaping. In addition to improvements along the proposed road, promoting safer and more efficient pedestrian access across the arterial will be accom-plished by maintaining the median, placing crosswalks at intersec-tions, and shortening crossing distances.

l aSkin road Without

tr anSit

deSign Criteria

Create a multi-modal arterial »

Consolidate service roads »and narrow travel lanes to create pedestrian accommo-dations on either side

Provide on-street bike lanes »

Provide a landscaped verge »to create a buffer between the roadway and the shared-use path on either side

Maximum of 6 total through »lanes

Limit dedicated right-turn »lanes

undergrounding of utilities »

aErIal PErSPEctIvE of HIlltoP Sga ProcESS PrEfErrEd laSkIn road

wItHout tranSIt (lookIng wESt)

160' R.O.W.

160' R.O.W.

PrEfErrEd altErnatIvE for laSkIn road wItHout tranSIt: PotEntIal SEctIon (PEndIng furtHEr Study)


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laSkIn road: ExIStIng StrEEt SEctIon

PrEfErrEd altErnatIvE for laSkIn road wItH tranSIt: PotEntIal SEctIon (PEndIng furtHEr Study)

HIlltoP Sga ProcESS PrEfErrEd l aSkIn road dESIgn

altErnatIvE wItH tranSIt

The illustrated Laskin Road with transit option is the preferred design alternative resulting from the Hilltop SGA process. This design differs from the previous in that it utilizes a portion of the proposed buffer for the proposed LRT system. This option maintains the benefits of simplified lane configurations and increased pedestri-an and cyclist safety while bringing a significant new transit connec-tion to the area. This further increases accessibility and modal choice along the road. Access to businesses on the south side of Laskin Road will be improved by the enhanced network of secondary streets. North-south cross streets would intersect Laskin Road at regular intervals, allow-ing access points for entry into the blocks south of Laskin Road and supporting the City’s access management plans. The LRT would bring additional shoppers, patrons, and visitors to the Hilltop area adding vitality and viability to the existing businesses.

l aSkin road With tr anSit

deSign Criteria

Create a multi-modal arterial »

Consolidate service roads »and narrow travel lanes to create pedestrian and transit accommodations


Planting strips, sidewalks, »and crosswalks for a safe, urban transit-oriented district


Limit dedicated right-turn »lanes

Consider reducing speed »limit to max 35 mph

Allow for full intersections »every 500 feet and limited intersections every 300 feet, including double left turn at First Colonial Road

undergrounding of utilities »

aErIal PErSPEctIvE of HIlltoP Sga ProcESS PrEfErrEd laSkIn road

wItH tranSIt (lookIng wESt)

160' R.O.W.

160' R.O.W.


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fIrSt colonIal road: ExIStIng StrEEt SEctIon

fIrSt colonIal road: PotEntIal SEctIon (PEndIng furtHEr Study)

fIrSt colonIal road

First Colonial Road is a primary north /south arterial consisting of variable conditions with four-lanes and a median or six lanes, depending on the location. Improvements should be made to eventu-ally provide increased pedestrian and bicycle accommodation. As a potential location for the future transit station, First Colonial Road will require landscaping, sidewalks and bike lanes to provide safe, multi-modal access to the station platforms.

firSt Colonial road

deSign Criteria

Consolidate turn lane and »median


Planting strips, sidewalks, »and crosswalks for safe and efficient access to the station platforms

Plan for potential transit »alignment


no dedicated right-turn »lanes

158' R.O.W.

100' R.O.W.


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vIrgInIa BEacH BoulEvard: ExIStIng StrEEt SEctIon

vIrgInIa BEacH BoulEvard: PotEntIal SEctIon (PEndIng furtHEr Study)

vIrgInIa BEacH BoulEvard

Virginia Beach Boulevard is a primary east /west road consisting of four-lanes in the Hilltop SGA. Unlike the Rosemont and Lynnhaven SGAs, Virginia Beach Boulevard in this area is scaled to be more pedestrian-friendly at its current size. However, planting strips, side-walks, and on-street bicycle accommodations are suggested to make the road a more suitable safe and walkable environment.

Virginia beaCh bouleVard

deSign Criteria

Significant increase accom- »modations for pedestrians and cyclists.

Planting strips and landscap- »ing for safe, urban pedestri-an-friendly environment

Max of 4 total through lanes »

no dedicated right-turn »lanes

85' R.O.W.

66’ - 85' R.O.W. (Varies)

Note: Street designs are conceptual. Where possible, utilities should be under-grounded to provide room for pedestrian and cyclist accommodations.

Note: Street trees should be included in designs wherever possible. If conditions pro-hibit, tree cover should be compensated for on private development parcels.


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rEPuBlIc road: ExIStIng StrEEt SEctIon

rEPuBlIc road: PotEntIal SEctIon- conStraInEd (PEndIng furtHEr Study)

rEPuBlIc road

Republic Road, in addition to Donna Drive, is the only portion of the Hilltop loop road system that was installed to alleviate conges-tion at First Colonial and Laskin Roads. It is a two-lane, secondary street with an alternating left-turn lane. This street should be con-solidated to include two-lanes of traffic with parallel parking on the retail side (south). By narrowing the lanes, more useful space is pro-vided for bike lanes, walks, and landscaping. In some locations, it may be possible to include a planted median in a wider section. rePubliC road

deSign Criteria

Improve the accommoda- »tions of pedestrians and cyclists

On-street parking for retail »uses

60' R.O.W.

60' R.O.W.

rEPuBlIc road: PotEntIal SEctIon- unconStraInEd

80' R.O.W.




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donna drIvE: ExIStIng StrEEt SEctIon

donna drIvE: PotEntIal SEctIon (PEndIng furtHEr Study)

donna drIvE

Donna Drive is a secondary street that runs parallel to Laskin Road, providing an alternate east/west route internal to the SGA. It is cur-rently situated on the back side of many Hilltop SGA uses. When transit arrives and new development occurs, Donna Drive will become an active street with new buildings fronting onto it. As an active, urban, pedestrian-friendly street, Donna Drive may benefit from on-street bike lanes, wider sidewalks, and additional landscap-ing. Providing on-street parking, where permitted, is also recommended.

donna driVe

deSign Criteria


Planting strips and landscap- »ing between roadway and sidewalks for safety and improved appearance

66' R.O.W.

66' R.O.W.




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nEvan road: ExIStIng StrEEt SEctIon

nEvan road: PotEntIal SEctIon (PEndIng furtHEr Study)

nEvan road

Nevan Road will provide an important north/south connection through the heart of the Hilltop SGA. A narrow median will provide safe access for pedestrians walking from various retail amenities on either side. As new buildings are built facing Nevan Road, the street will become an active public space, connecting local amenities with larger retailers moving to the Hilltop SGA. If a transit station is located on Laskin Road, Nevan Road may also serve as an important access to that station. neVan road

deSign Criteria

Create median »


Planting strips, sidewalks, »and crosswalks for safe and efficient access to retail amenities

Off-peak on-street parking »spaces

90' R.O.W.

90' R.O.W.




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ProPoSEd local StrEEtS

The consultant team, along with the Public Works Department,designed a set of local, non-arterial street standards that are permit-ted within Hilltop and all Virginia Beach SGAs. These streetsections should be considered for new streets designated in theHilltop SGA plan.

ProPoSEd local StrEEt B — 50' row (conStraInEd)

ProPoSEd local StrEEt a — 60' row (IdEal)

loCal Street

deSign Criteria

2 lanes »

On-street parking in ideal »conditions

Planting strips, sidewalks, »and crosswalks for safe and 25 MPH design speeds

Note: Where streets ROWs are on private property, improvements are to be made at the discretion of the property holder and should be performed in conjunction with redevelopment.


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In coordination with Hampton Roads Transit, the City of Virginia Beach is considering options for extension of transit service from the terminus of the Norfolk LRT to the Oceanfront. The study, part of the development of an Environmental Impact Statement, is consider-ing four alternatives — light rail, bus rapid transit, enhanced bus ser-vice, and a no build alternative. The City of Virginia Beach recently purchased the former Norfolk Southern right-of-way, which extends from Newtown Road to Birdneck Road on an alignment that is generally parallel to I-264. This study will also consider connections from Birdneck Road to the Oceanfront. Current planning has antici-pated a station in the Hilltop area that would be located off Potters Road roughly centered between London Bridge Road and First Colonial Road. Selection of the proposed location for the station was heavily influenced by Naval Air Station Oceana’s AICUZ restric-tions. The only allowable location along the Norfolk Southern right-of-way was chosen as the Hilltop station location. Unfortunately, much of the Hilltop commercial area is not within walking distance.In addition, the proposed transit location on Potters Road does not add significant accessibility from a driving standpoint for park-and-ride users. These analyses led to the decision to explore alternative station locations which can add better access for all types of riders. The plan recommends studying a station location situated at the core of Hilltop. Much of the Hilltop SGA will be within a reasonable walk of the proposed station making it easily accessible to neighboring amenities. Providing pedestrian links to the proposed station with street and trail improvements is critical to transit-oriented economic develop-ment. The walkability analysis shows the areas that are most likely to change over time with transit improvements. The proposed location has the potential to serve as a catalyst for growth in the retail market, which will further build the character and quality of place over time.

Transit

currEntly PlannEd lrt StatIon - PottErS road

locatIonExIStIng BuS routES and walkaBIlIty the area is currently relatively well-served by HRt bus service yet the ability to access the service is hampered through an impoverished pedestrian experience. A change in street network and character will benefit access to bus routes and shuttles, encouraging stronger connectivity to nearby residential areas, retail amenities, and the proposed station. Riders should be accommodated wherever feasible with bus shelters along the various bus routes.

5 - MInu te wA LK FROM R A IL10 - MInu te wA LK FROM R A IL

P Oten t IA L L IGH t R A IL A L IGnMen tP Oten t IA L L IGH t R A IL S tAt IOn5 - MInu te wA LK FROM BuS

5 - MInu te wA LK FROM R A IL10 - MInu te wA LK FROM R A IL

P Oten t IA L L IGH t R A IL A L IGnMen tP Oten t IA L L IGH t R A IL S tAt IOn5 - MInu te wA LK FROM BuS

BuS ROu te 20

BuS ROu te 32

BuS ROu te 29

S t uDy A Re A

BuS S tOP S

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ProPoSEd lrt StatIon locatIon - laSkIn and fIrSt

colonIal road

The relocation of the station can be reinforced by coordination with major destinations and employers. A shuttle would be run between NAS Oceana and the LRT station would provide daily access to the naval base for military personnel and would bring a larger popula-tion through the core of Hilltop to support the businesses and retail. Coordinated efforts between major employers such as the Navy or Sentara Hospital and HRT are a crucial component to successfully building the light rail ridership.


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currEnt tranSIt alIgnmEnt undEr Study By Hrt for vIrgInIa BEacH

tranSIt ExtEnSIon Study

tranSIt altErnatIvES

With little benefit coming from the currently planned station site, the Master Plan explores four possible realignments to be studied in further detail in HRT’s analysis. For the purposes of this planning exercise, only alignments within or near Hilltop were considered, although other conceivable terminal alignments are plausible east of the study area. Alternative alignments may also exist to the west, providing opportunities to serve additional development and exist-ing neighborhoods and businesses. The following alternatives explore alignments within the Hilltop SGA. In the following alternatives, where the transit route is proposed outside of the existing rail line right-of-way, there are opportunities for providing linear parks within this space. Such a linear park may also link to various neighboring properties where the City has begun to purchase land as part of the AICUZ program. Open space oppor-tunities like these can provide important neighborhood connections and trail linkages throughout the Strategic Growth Area and its sur-rounding communities.

tranSIt altErnatIvE 1

Routing back to rail corridor. Alternative 1 begins rerouting the transit line (to the east) from the Norfolk Southern right-of-way onto Lynnhaven Parkway or London Bridge Road traveling to Virginia Beach Boulevard. From Virginia Beach Boulevard, the route would transition to Laskin Road and extend to First Colonial Road. From Laskin Road the route would move south on First Colonial Road to Oceana Boulevard until it reaches the Norfolk Southern right-of-way where it would continue toward Birdneck Road. The route would then extend along Birdneck Road to a planned station at 17th Street. It then continues to a station at the Convention Center on 19th Street. From the Convention Center this alternative route continues east along 19th Street to Arctic Avenue, its terminal station. This alternative may be able to make use of existing roads and bridges to reduce the cost of bringing the alignment to the core of the commercial area in Hilltop. However, the added delay of introducing transit to these corridors may bring forward the need for exclusive lanes for the transit vehicles.


Routing down Virginia Beach Boulevard. Alternative 2 follows the same route as Alternative 1 — Lynnhaven Parkway or London Bridge Road to Virginia Beach Boulevard to Laskin Road to First Colonial Road down to Virginia Beach Boulevard. The route extends eastward along Virginia Beach Boulevard from First Colonial Road to Birdneck Road then jogs north to a station at the Convention Center then it travels along 19th Street to Arctic Avenue, its terminal station. This alternative route may open up an opportunity for another station in the vicinity of the Hilltop SGA in the residen-tial areas provided it is located outside of the AICUZ restrictions. This route may offer slightly faster operation from Hilltop to the Convention Center by traversing a shorter route.

lynnHavEn

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lynnHavEn

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CuRRen t A L IGnMen t A LteRn At IV e A L IGnMen t (LOnDOn BRIDGe ROA D)

A LteRn At IV e A L IGnMen t (Ly nnH AV en PA RK wAy )

S t uDy A Re A CuRRen t A L IGnMen t A LteRn At IV e A L IGnMen t (LOnDOn BRIDGe ROA D)


S t uDy A Re A


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lynnHavEn

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Routing down Birdneck Road. Alternative 4 takes the same route as Alternatives 1, 2, and 3 from Lynnhaven Parkway or London Bridge Road to the core commercial area of Hilltop Road — London Bridge Road to Virginia Beach Boulevard to Laskin Road. From the Laskin Road station Alternative 4 deviates from the other alternatives by traveling down Laskin Road from First Colonial Road to Birdneck Road. Alternative 4 offers a station at Laskin East on Birdneck Road. Alternative 4 travels down Birdneck Road to 17th Street where it has a station then there are stations at the Convention Center and at Arctic Avenue. Alternative 4 takes advantage of a long section of Laskin Road that offers a wide existing right-of-way which may accommodate the transit line without causing severe traffic congestion.


Routing parallel to I-264. Alternative 3 follows the same route from London Bridge Road to the core of the Hilltop SGA — Lynnhaven Parkway or London Bridge Road to Virginia Beach Boulevard to Laskin Road to First Colonial Road. It deviates from Alternatives 1 and 2 by coming off First Colonial Road onto I-264 where it travels down to Birdneck Road. From Birdneck Road the route travels to 17th Street where there are stops just east of Birdneck Road and then one at the Convention Center. Similar to Alternatives 1 and 2 there is a terminal station along 19th Street at Arctic Avenue. Alternative 3 offers the shortest and most likely the most expedient route between the proposed Hilltop station in the commercial area and the proposed station on 17th Street just east of Birdneck Road. Alternative 3 will require some substantial bridging to get from First Colonial Road to I-264 which is elevated over First Colonial Road. The section of I-264 that Alternative 3 traverses is a six-lane facility. There is a possibility that the transit route could use one of the lanes of I-264 without causing substantial delay on I-264. This alternative will minimize the interruptions on the arte-rial street network in comparison to the other alternatives.

walk and tranSIt accESS to ProPoSEd HIlltoP StatIon locatIon

drIvE accESS to ProPoSEd HIlltoP StatIon locatIon

CuRRen t A L IGnMen t A LteRn At IV e A L IGnMen t (LOnDOn BRIDGe ROA D)


S t uDy A Re A CuRRen t A L IGnMen t A LteRn At IV e A L IGnMen t (LOnDOn BRIDGe ROA D)


S t uDy A Re A


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laSkIn road

aErIal PErSPEctIvE of HIlltoP Sga PrEfErrEd laSkIn road altErnatIvE wItH tranSIt (lookIng wESt)


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ProPoSEd ParkS, InStItutIonS and oPEn SPacEExIStIng accESS to oPEn SPacE (10 mInutE walk)

The Open Space Network in the Hilltop SGA seeks to build upon the existing natural resources of Hilltop in order to expand access to public open space through an interconnected system of parks and trails. This will be accomplished through the creation of several new parks as well as the addition of bicycle and pedestrian pathways both along and in addition to the existing street network. New and exist-ing parks could include the following park types:

Victory Garden1

Stormwater Outfall2

Pocket Parks3

Parks and Open Space Networks Plan

PuBLIC PA RKS A nD OPen SPACe De V eLOPMen t BLOCK wAteR S t uDy A Re A

Note: Future road alignments will be determined in further studies, and will be based on property availability and feasibility.

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Park t yPES

As part of the public open space networks plan, several suggested park types have been developed. These types range from passive, such as pocket parks, to productive, such as the student farm and victory garden. In addition to these, the stormwater outfall park will capitalize on existing, under-utilized open space in order to educate the public about and help to preserve the delicate and unique wet-land ecology of the region. All of these types will provide new and enhanced opportunity for residents and visitors to both connect with and more fully utilize the city’s natural ecology.

vIctory gardEn PockEt ParkSStormwatEr Park

Victory gardens were originally created to provide self-sufficiency during war-times and to support the nation’s war efforts. today, vic-tory gardens are associated with urban sustainability and are used to capture the military culture of the past and build upon the success-ful programs of wwI and wwII. People may grow food at home or in shared public spaces in order to provide local food supplies to families and charities. the gardens could be educational opportunities for students, young and old.

Victory gardens may include infor-mational kiosks for the general pub-lic, instructional kiosks for garden-ers, and places to sit and observe activities. they are a good alterna-tive to otherwise development-restrictive parcels or where land is currently unproductive. they could provide a much needed staple for the community and pay tribute to the military legacy of the area.

Pocket parks provide a place for people to sit outdoors and socialize or relax in urbanized areas. they are accessible to the general public and facilitate connections to adja-cent uses. they provide street or block definition and they are often placed around a monument or are in relation to public art. they are typically created on available small parcels or irregular pieces of land. Functions include spaces for relax-ation, meeting friends, taking lunch breaks, reading a book, or play areas for children. they typically provide seating, shade, lighting, planting, focal features, and articu-lated pavement patterns.

these types of parks can occur on either public or private property and could be managed by a variety of organizations, such as public, private, partnership, and even non-profit organizations.

through the coordinated design of a park system and a stormwater management program as green infrastructure, the Hilltop SGA will have to reclaim more of its natu-ral flood control system. Instead of relying solely on the existing network of storm sewers and paved ditches, green infrastructure would supplement this system by providing major outfall areas and stormwater treatment for broad sections of Hilltop’s development. this would minimize the burden on individual sites that are more con-strained.

By making a stormwater park a public amenity, residents and visi-tors could learn about stormwater treatment trains, water quality, pol-lutant removal, and better manage-ment practices. A stormwater park would serve not only as a utilitarian facility, but also as a public open space.

this type of park would serve primarily as a regional stormwater management facility but with an added emphasis on public access and design composition. these types of spaces would need to be championed by private businesses within the local watershed and potentially initiated by public-private ventures.

the Hilltop Victory Garden also has the opportunity to provide for infor-mal recreation off of a regional trail system that runs east-west through the site.

In order to ensure a Victory Garden is successful, strong private-public partnerships should be established with neighboring organizations for implementation and long term maintenance.

Note: The proposed uses are subject to refinement when the planning process for implementation of the plan is put in motion due3 to restrictions associ-ated with their location in the Accident Potential Zone - 1 (APZ-1).


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Parish day School


Church


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Potters road

School bus

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BIkEwayS and traIl nEtwork dIagram

The Conceptual Bikeways and Trail Network Plan advances the adopted Virginia Beach Bikeways and Trails Plan of 2011 by provid-ing a comprehensive trail system which will further increase connec-tivity between neighborhoods and destinations. This will be accom-plished through a combination of on and off-street bicycle facilities. This plan prioritizes bicycle routes of regional importance mentioned in the Virginia Beach Bikeways and Trails Plan with the inclusion of on-road bike lanes along Virginia Beach Boulevard, Laskin Road, and First Colonial Road. This plan also provides significant connec-tions between existing and proposed open and green spaces as well as proposed residential and commercial development.

On - ROA D BIK e L A ne w It H

w IDeneD S IDe wA LKS

SIGneD SH A ReD ROA DwAy

SH A ReD - uSe PAt H

Conceptual Bikeways and Trail Network Plan

S t uDy A Re A

On - ROA D BIK e L A ne w It H

SH A ReD uSe PAt H

On - ROA D BIK e L A ne

bikeWayS and trail Pl an deSignationS

on-Street faCil it ieS *

Shared roadways »

Signed shared roadways »

wide outside lanes »

Paved shoulders »

Striped bike lanes »

off-Street faCil it ieS *

Shared-use paths »

Soft paths (unpaved shared- »use paths)

wide sidewalks »

* For definitions of specific types of facilities, please reference the City of Virginia Beach’s Bikeways and trails Plan, 2011

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BIkEway and traIl t yPES

By ordinance, Virginia Beach allows bicycles on all sidewalks except in Town Center and the Resort Area. In the Hilltop SGA, facilities should be large enough to accommodate both pedestrians and cyclists at the same time. A mix of both on-road and off-road bicycle facilities should be considered throughout the Hilltop SGA. The on-road facili-ties should include signed shared roadways, wide outside lanes, and marked bike lanes. The off-road facilities should include shared-use paths and wide sidewalks. See the City of Virginia Beach’s Bikeways and Trails Plan for detailed descriptions of each.

Signed Shared roadWayS

(Wide outSide l aneS)

Bike route signs or »“Share the Road” signs

Provide continuity /connect to »roadways with designated bike lanes

Bike-safe drainage inlets »

14' min. wide outside travel lanes »

Shared -uSe PathS

Minimal street crossings »

two-way travel for cyclists »and pedestrians

4' min. buffer between street »and path

typically asphalt »

Positive drainage »

8'–10' wide path »

biCyCle l aneS

Striped and signed for exclusive »use by cyclists

One-way »

Segregate motorists from »cyclists

Bike-safe drainage inlets »

Pavement markings (solid »white stripe, arrow, and helmeted cyclist)

4'–5' min. width bike lanes in »addition to 11'–12' min. width motor vehicle travel lanes

Wide SideWalkS

typically concrete, but may »be pavers

For pedestrian use although »bicycles are allowed

Positive drainage »

4' min. buffer between street »and sidewalk recommended

In spatially constrained areas, »sidewalk may abut street

6'–8' min. width »

V eHICuL A R tR AV eL L A ne SH A ReD Ou tSIDe tR AV eL L A ne

11' min 14' min4'-5' min 2' 4' min2'5' 8'-10' min 6'-8' min

BIK e L A ne

CuRB A nD

Gu t teR

CuRB A nD

Gu t teR

BuFFeR ZOne A nD PL A n teD

V eRGe

BuFFeR ZOne A nD PL A n teD

V eRGe

SH A ReD uSe PAt H w IDe S IDe wA LK


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cIt y-wIdE PolIcIES

The major strategy for stormwater management in Virginia Beach has been the use of wet ponds to provide a control on the release of stormwater (quantity control) and to allow for settlement of sediment for water quality control. Approximately 80 percent of the impervi-ous area in the City is currently treated via the use of wet ponds. Stormwater management is particularly challenging in the City due to its location on the coastal plain adjacent to the Chesapeake Bay, the North Landing River, Back Bay systems to the south, and the Atlantic Ocean. This flat terrain creates a reduced hydraulic head, while a high groundwater table increases the migration of pollut-ants. Fortunately in the Hilltop SGA, due the presence of the ‘Pungo Ridge’ geologic formation, groundwater is relatively low and infiltra-tion capacity is generally high. This SGA area lends itself well to more progressive techniques in stormwater management. However, tidal outfalls and storm surge will cause flooding, no matter how well the drainage system is designed. With a full outfall system, additional surface water from rainfall events build up with nowhere to go. Low impact design strategies are being implemented in Virginia Beach to treat the pollution at the source as much as practical. Reduction of impervious surface with localized storage and infiltra-tion are important. A combination of infiltration and wet marsh stormwater facilities will assist with the uptake of pollutants and filtration of sediment in the Hilltop SGA, helping to improve water quality. Use of treatment trains should be implemented as practi-cal. Treatment trains include low impact development techniques upstream at the pollutant source, which are anchored with regional stormwater management facilities downstream. Treatment trains combine multiple stormwater treatment devices in a series to increase pollutant removal. While the treatment train approach is fairly new to stormwater management it has been in place for decades to treat sanitary sewer effluent at treatment plants.

Stormwater Management

The City has identified several areas in which it will be focusing rede-velopment efforts and future urban growth, and has classified these areas as Strategic Growth Areas (SGAs). The patterns of land use envisioned in the SGAs are intended to concentrate development ver-tically more than horizontally, and thereby have the potential to reduce impervious surfaces to promote infiltration and percolation of runoff stormwater. There is a significant potential to reduce impervious sur-face cover during redevelopment. Based on the land use and land cover data for the SGA plans completed and adopted to date, the ability to convert large areas of impervious lands to pervious lands is feasible. This represents a major reduction of the impervious area within the SGAs over the course of TMDL implementation. Stormwater management strategies and policies are evolving in Virginia Beach in accordance with upcoming changes in state and federal water quality requirements. The Hilltop SGA area was devel-oped without the benefit of a stormwater management plan and with a minimum of stormwater management facilities. The addition of facilities for the control of both water quantity and water quality con-sequently offers a challenge and an opportunity. Redevelopment will require an overall district stormwater plan with improvements by both the City and the property owners to mitigate the lack of existing con-trols and prevent additional negative impacts to the receiving waters of the Eastern Branch of the Lynnhaven River and Linkhorn Bay. Redevelopment will also provide the opportunity to serve as a model and a testing ground for the use of a combination of low impact devel-opment strategies along with shared area-wide stormwater manage-ment systems and repair of natural buffers along the open waterways.

oPEn SPacE and draInagE IntEgratIon

StormwatEr trEatmEnt traIn


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rEgIonal and SuB-watErSHEd StratEgIES

A regional approach to stormwater management is beneficial for property owners, stormwater network managers, and the environ-ment. It presents the opportunity to provide facilities in the best locations within the sub-watershed area, reducing the need for each property owner to provide major stormwater storage on each site. It also allows the most appropriate means of addressing water qual-ity treatment on each site; and allows for the increased efficiency of regional storage facilities that, if properly designed, can serve as an overall area amenity. A sub-watershed approach served by a central wet pond was successfully implemented at the Virginia Beach Town Center; however, additional site-specific low impact development strategies were not utilized. City development of regional facilities in each SGA can provide much of the stormwater quantity manage-ment with the redevelopment on individual parcels providing maxi-mum water quality treatment as a part of their site design.

HIlltoP Sga communIt y StormwatEr facIlIt IES

The Hilltop SGA is a highly developed area with large expanses of impervious surface by way of roadways, parking lots, buildings and walkways. There is approximately 80% impervious cover with little stormwater management or water quality controls in the Hilltop SGA. However, the Hilltop SGA is unique in that it generally con-tains subgrade soils with the high infiltration capacity. Subgrade soils consisting of primarily sand provide opportunities for a wealth of infiltration facilities using the earth as filter and reducing runoff at the source. However, an overall strategy for implementation of rede-velopment of the area should include a general strategy of reducing impervious surfaces as well. Stormwater management facilities can serve as organizing com-munity amenities in several ways. They can provide a green space network for shade, visual relief from large expanses of pavement, and even recreational use through adjacent trails and seating areas. They can also be incorporated into hardscapes and public areas, providing variety, interest, and even artistic treatments. They can help reduce pollutant load by limiting the use of high-maintenance turfgrass. A design strategy for both public and private spaces will be impor-tant to creating an interesting environment while comprehensively addressing the challenging State stormwater management criteria.

Storm lInES IncludEd In tHE HIlltoP Sga Fu t uRe S tORM wAteR

Wetlands restoration retention basin enhancement

reduction in impervious area Pervious Pavement in Surface

retention basin enhancement

reduction in impervious area bioretention in landscape areas

floodplain management Stream restoration Stormwater Storage

Stream/Wetlands restoration

Stream/Wetlands restoration

reduction in impervious area bioretention in landscape areas

Parking areas

Pervious Pavement

Pervious Pavement


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trEatmEnt mEtHodS and PErformancE StandardS

for on and off-SItE dEvEloPmEnt

A much wider range of stormwater management strategies will be necessary to meet current and future stormwater treatment require-ments. General guidelines and strategies for addressing these require-ments should be provided as a part of the redevelopment standards, but it is most important to allow flexibility in the design methods used for any particular development. This will encourage creativity and allow the application of methods and devices developed in this emerging field. Allowing landowners to work together jointly to pro-vide regional stormwater management for multiple sites will also be important. The most critical standard is the requirement to incorpo-rate stormwater management strategies and design from the begin-ning, incorporating them in the initial concepts for redevelopment and refining them throughout the design and construction process. This will maximize the use of stormwater management facilities as a public space amenity. Redevelopment strategies that will contribute to good stormwater management include:

Reduced impervious surface through the use of structured parking, »pervious pavement, maximized managed turf area, and green roofs

Rainwater capture and water reclamation techniques, including »the use of above-ground and underground storage, including their potential use for irrigation, and constructed water features. These include such elements as rain barrels and cisterns

Maximum use of bioretention and vegetated surface water collection »

Disconnection of rooftop drainage from below ground piping »systems

GR A De B SOILS

GR A De A SOILS

GR A De C SOILS

Based upon the local conditions, the primary types of non-region-al stormwater facilities in the Hilltop SGA should be rain gardens, shallow bioretention areas, and shallow swales with managed mead-ow plantings, constructed wetlands, restored natural buffers (Riparian Buffers), and stream restoration. Some other types of stormwater facilities that could be of use in the Hilltop SGA area, due to the well draining soils, include the use of sand filters, small-scale infiltration facilities, and amended soils with underdrainage.

SoIl gradES In tHE HIlltoP Sga

Grade A soils are characterized by soils with high infiltration and transmission while Grade B soils are characterized by moderate infiltration and transmission rates. Both Grade A and B soils lend themselves well to infiltration based stormwater management. Grade C and D soils are characterized by lower infiltration rates. Infiltration based stormwater management can still be utilized, but actual infiltration will be much more difficult to achieve.


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There are two issues to be considered when evaluating the existing sanitary sewer system serving the Hilltop SGA relative to improve-ments needed to serve increased development in the area — the con-veyance system and the pump station capacities. Whereas the Hilltop SGA is mostly served by sanitary sewer systems, and the receiving HRSD mains and treatment plant have capacity to accept additional flows, the collection and pumping sys-tems have capacity limitations. Due to the age of the infrastructure, groundwater and rainwater can infiltrate through the piping and into manholes, leading to reduced capacity for conveying sewage. Even though the system functions adequately during dry weather, problems arise during rain storms. Excessive infiltration and inflow (I&I) can cause pump stations throughout the interconnected and pressurized system to exceed capacities and lead to Sanitary Sewer Overflows (SSO). As required by the Special Order by Consent issued by the Virginia Department of Environmental Quality, the Department of Public Utilities will rehabilitate deficient collec-tion systems over the coming years. During the rehabilitation effort, appropriate allowances will be made for future growth projected in this plan.

Eight sanitary sewer pump stations serve the Hilltop SGA, all of which are located directly within the SGA planning area bound-ary. The pump stations were designed and constructed to serve the assigned development based on build out projections at the time without consideration of rezoning or major redevelopment. Most of the stations are scheduled to be replaced by 2040 according to avail-able records. Replacement of existing pump stations may be required where redevelopment results in significant increases in sanitary sewer flows. Following the adoption of the Hilltop SGA Master Plan, the City Department of Public Utilities will update the Sanitary Sewer Master Plan based on the projected future densities. The revised Sanitary Sewer Master Plan will identify the upgrades that are required to adequately serve the redeveloped Hilltop SGA.

Sanitary Sewer Systems

SEwEr lInES IncludEd In tHE HIlltoP Sgae x IS t InG Se w eR

Fu t uRe Se w eR

P S LOC At IOn

P S SeRV ICe A Re A


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Public water service exists throughout most of the Hilltop SGA within existing rights-of-way. Three parallel arterial water mains run along Laskin Road, which, along with a large ground storage tank and pumping station west of the boundary, provide ample capac-ity for increased development in the Hilltop SGA. There are also several large mains within First Colonial Road and Virginia Beach Boulevard. Some realignment of smaller water mains may be required to conform to the future road grid system, which will not only help to meet the demands of the increased domestic and fire suppression needs for the development, but also provide redundancy in the system.

Water Systems

watEr lInES IncludEd In tHE HIlltoP Sga PROP OSeD wAteR M AIne x IS t InG wAteR M AIn

hilltop str ategic grow th area master pl an: v irginia beach, v irginia | MAY 2012 | urban design associates l and use and development case studies

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Land Use and Development Case Studies

the Hilltop sga is widely recognized as the premium shopping destination in Virginia Beach. Customers from affluent neighbor-hoods to the north, the resort district to the east, and the broader city via I-264 and Laskin Road are attracted by Hilltop's unique blend of national brands and locally owned shops and restaurants. Hilltop’s prestige is inconsistent with its environment, a strip center, suburban environment with heavily congested roadways. To reinforce its “top of market” status, Hilltop must address several challenges. These include traffic congestion, an environment hostile to pedestrians and cyclists, a landscape dominated by parking lots, and buildings that have long surpassed their design life. Improvements to Laskin Road and First Colonial Road will introduce new possibilities for incrementally building a network of local streets. These new streets will improve access and visibil-ity to property along Laskin Road and First Colonial Road and greatly relieve congestion by distributing traffic onto the new streets. Coming with the streets will be sidewalks, crosswalks, landscaping and lighting that will transform Hilltop into a walkable district. Over time, existing retail buildings will be replaced with new retail build-ings built facing the new streets. The suburban pattern of highways lined with parking lots and strip centers will gradually give way to a new pedestrian friendly mixed-use district. With the new block structure, developers should introduce plazas and small parks as focal points for shopping and dining. As the market permits, structured parking will free up land currently used for surface parking, allowing increased density and revenue from redevelopment. The potential for locating a transit station in the center of this vibrant district has been illustrated in this study. The introduction of transit could accelerate redevelopment and investment.

land uSE

caSE StudIES

HEIgHtS


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The Hilltop SGA is home to a wealth of local businesses with a vari-ety of retail, restaurant, office, health, and recreational uses. To build on its role as a unique, regional destination while reinforcing land use compatibility with the AICUZ restrictions, the below land uses are proposed for the Hilltop SGA:

Non-Residential Mixed-use: a mixture of retail, office, and other »non-residential uses.Residential: existing residential areas will remain with limited »redevelopment. AICUZ restrictions restrict expansion or densifi-cation of residential uses beyond what is currently zoned for such. Should the existing residential be redeveloped into new residen-tial, at an equal or lesser density than currently exists, the new residential shall contain housing at different price points, includ-ing affordable housing.Institutional: existing institutions are designated for this land use. »Open Space: new open space opportunities. »Industrial /Flex: Production, distribution, and repair uses. »

Land Use Plan

nOn - ReSIDen t IA L MIx eD - uSe

ReSIDen t IA L

InDuS tRIA LInS t It u t IOn A L

OPen SPACe A nD S tORM wAteR M A n AGeMen t

S t uDy A Re A

land uSE Plan

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donna drive

kmart

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trader Joe's

Villa

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Village drive


Parish day School


Church

freedom fellowship

Church


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ego drive

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Potters road

School bus

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hilltop Sga Permitted land use Plan areas

use (% of total)

area (ac.) Projected far

total buildable Sf

residential units / ac

Mixed-use 36% 265.5 1.5 17,349,259 –

Residential 16% 120.2 – – 10,12 & 18

Institutional 4% 31.7 0.5 1,380,137 –

Industrial 7% 51.2 0.5 668,882 –

Open Space 14% 106.7

Infrastructure 23% 174.1total 100% 749.4 acres – 19,398,278 sf –


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BuIldIng HEIgHtS Plan

Permitted maximum building heights are shown in the following diagram. Most building heights in the SGA area remain unchanged from current zoning at 3 stories. Permitted heights increase along Laskin Road and First Colonial Road, with a maximum of 5 sto-ries. These greater heights correspond to non-residential mixed-use areas that will be within walking distance of the potential transit station. Greater building heights will allow developers to consider mixed-use development that can combine ground floor retail and entertainment uses with upper floor office uses.

Building Heights Plan

3 M A x

5 M A x

S t uDy A Re A

flexib il it y of building

heightS

Some flexibility in building heights should be permit-ted to respond to market demands.

the City may accommodate this flexibility through zon-ing overlays or development incentives.

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trader Joe's

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Parish day School


Church


freedom fellowship

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laskin road annex

ego driveV

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Wildwood drive


Potters road

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cHaractEr arEaS Plan

The planning process, site analysis, and master planning of the Hilltop SGA yielded detailed design concepts that may be used as case studies to show how prototypical sites might redevelop over a number of years. The case studies provide an overview of the quality and character of development that is envisioned in the des-ignated area. In all of the case studies, there is an emphasis on pro-viding small open spaces and landscaping in parking lots and along streets, which can enhance the value of the private development by providing memorable, usable gathering spaces and help contribute to the public realm. The six case studies that are defined within the Hilltop SGA Master Plan are:

Southern Greenway and Innovation Zone »

Regency Hilltop Shopping Center »

Kmart Block »

Hilltop Shopping Center »

Marketplace and Kroger »

Target Block »

Development Case Studies

M A RK e tPL ACe A nD K ROGeR

HILLtOP SHOPPInG Cen teR

" K M A Rt BLOCK "

ReGenCy HILLtOP SHOPPInG Cen teR

SOu t HeRn GReen wAy A nD InnOVAt IOn ZOne

" tA RGe t BLOCK "

S t uDy A Re A

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Southall drive

donna drive

kmart

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trader Joe's

Villa

ge d

rive

Village drive


Parish day School


Church


freedom fellowship

Church


laskin road annex

ego driveV

ictor r

oa

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mable lane

Wildwood drive


School bus

Parking

oceana boulevard

oce

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Southern boulevard

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"kmart Block"

Hilltop Square Shopping Center block includes a Kmart, US Post Office, Cash Converters, Wendy’s, Taco Bell, a car wash, an auto parts retailer and other restaurants and retail establishments. Storefronts are set back around a large surface parking lot, which is typical of suburban, drive-to retail. Only a portion of the parking lot in front of Kmart is used, the rest of this vast land sits empty. Hilltop residents love shopping at Kmart, several residents walk from close by residential neighborhoods. This block has the potential to become a vibrant and walkable shopping center.

PHaSE 1

the vacant parking lot along Donna Drive is reconfigured to accommodate a center green, sidewalks, and a drive with parallel parking around the median. the tree-lined green surrounded by small retail footprints will create a formal entrance to the shopping center. the street trees and proper sidewalks along this new street will create a desirable address for retail and enhance the pedestrian environment.

PHaSE 2

Retail buildings are added around the center green to create a public space. the new shops and restaurants will benefit from the high traffic volume of the remaining anchor. the parking lot is redeveloped with buildings addressing Donna Drive. A parking garage is built to serve the new uses. the garage is located in mid-block, behind retail, screened from public right of way. However, it is visually and physically accessible to Kmart shoppers through an access drive.

PHaSE 3

A new street connecting the First Colonial Road to Jack Rabbit Road is introduced. this new connection will improve the circulation in the shopping center. new retail buildings addressing the streets are added with parking located within the new blocks. Hilltop Square Shopping Center is fully transformed into a vibrant shopping center and incorporated to the rest of Hilltop shopping district as infill redevelopment continues on incremental parcels on the north Donna Drive. the site is developed with new retail buildings fronting Donna Drive and Laskin Road and parking is accommodated on-street and in mid-block.

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e x IS t InG De V eLOPMen t: 410 ,0 0 0 SFDe V eLOPMen t AS SHOw n: 1,4 8 0 ,0 0 0 SF

enable the buildings to »come to the street

Incorporate parking into »on-street spaces, surfaces lots and decks, both hidden away from the street

Provide safe access from »both sidewalk and parking areas.

Set up potential LRt station »location


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kmart Block

aErIal PErSPEctIvE lookIng SoutH ovEr PotEntIal kmart rEdEvEloPmEnt caSE Study arEa wItH comPlEtEd rEdEvEloPmEnt

aErIal SHowIng ExIStIng condItIonS of kmart SItE

aErIal SHowIng PHaSE 2 of kmart rEdEvEloPmEnt


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HIlltoP SHoPPIng cEntEr

The Hilltop Shopping Center is best positioned for redevelopment as there is a current demand for its existing retail and it is within close proximity to surrounding neighborhoods. The plan calls for incremental changes to produce an interconnected street network. These streets will define a clear block system for a mix of uses. The focal point of the redevelopment will be a sequence of unique and accessible spaces that are surrounded by a variety of shop fronts. These special places will create a vibrant environment that entices local residents and visitors to come together as one community.

PHaSE 2

the larger retail blocks are transitioned to a more urban block types through the placement of local roads to better accommodate access to retail amenities. this newly defined framework encourages a more walkable environment for pedestrians, encouraging shoppers to park-once and not "depend on the car as a shopping cart." to lessen the impact of the redevelopment, a landscaped median is added to Laurel Lane to create a buffer between the front yards of the adjacent residential and the parking lot side of the retail properties.

PHaSE 3

the final build-out of the Hilltop Shopping Center is a redevelopment that is legible and accessible. Public spaces interrupt the blocks to create special nodes throughout the plan that are anchored by the existing yMCA, new big box retail, and smaller, local businesses. to accommodate the new development, the plan proposed three parking garages to serve the new district in addition to street parking. with an improved street network and buildings that front on all sides of the block, the Hilltop Shopping Center has transitioned itself from surface parking lots and big box retail uses to a more urban retail district at the center of the Hilltop SGA. Laurel Lane should be reconfigured to separate neighborhood traffic from commercial traffic. However, pedestrian connections and sidewalks should align with blocks to provide access to the new retail amenities for residents.

PHaSE 1

the large block of parking with retail buildings interspersed is divided to create a better network of secondary streets. the focal point of the first phase of redevelopment is the linear green that creates an entrance into the new development.

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e x IS t InG De V eLOPMen t: 470 ,0 0 0 SFDe V eLOPMen t AS SHOw n: 510 ,0 0 0 SF

Interconnect street grid »

Create a formal entrance »

Provide a variety of public »spaces

Orient= buildings to the »street

Replace surface parking »with parking garages

Place surface parking mid- »block behind buildings

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HIlltoP SHoPPIng cEntEr

PErSPEctIvE of tHE rEdEvEloPmEnt of tHE HIlltoP SHoPPIng cEntEr PHoto SHowIng ExIStIng condItIonS


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markEtPl acE and krogEr

Located at the corner of Laskin and First Colonial Roads and within close proximity to a proposed transit line, this area is a prime loca-tion for a range of non-residential uses. This design can be phased over time to be better organized and support a more urban character that is walkable and accessible for all users. With a mix of office, res-taurants, local retail shops, and major anchors such as Whole Foods Market, Michaels, and Total Wine, this area is an emerging employ-ment center and transit-ready development.

PHaSE 1

to provide a better network of streets and alternative routes for local traffic, a road is designed to run north, connecting Laskin Road to Republic Road. the existing stormwater pond is formalized to capitalize on the opportunity of a new pedestrian thru-way and development frontage. A new street also is built to connect to the neighborhood to the north to the assisted living center and Republic Road.

PHaSE 2

new retail is built along the formalized water feature and the edge of the blocks to create a more urban streetscape and begin to conceal surface parking. A parking garage is placed next to the Kroger and within close proximity to whole Food's to allow development of excess surface parking.

PHaSE 3

A mid-block promenade between Laskin Road and Republic Road is designed to create a distinct retail address that is ideal for outdoor seating and visitors to congregate. A redesigned water feature and passive greens add to the uniqueness of this space, connecting the shopping district to a new office development north of Republic Road. An added parking garage will free up space for additional retail development and will increase the density and utilization of this property.

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key PrinCiPleS

e x IS t InG De V eLOPMen t: 3 02 ,0 0 0 SFDe V eLOPMen t AS SHOw n: 4 6 2,0 0 0 SF


Situate buildings close to »the street

Link office and retail uses »

Create a mid-block pedes- »trian connection

Replace surface parking »with parking garages over time


Connect to surrounding »uses

Create central open space »and dining terrace


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“targEt® Block”

Located across from one of the proposed LRT stations, this address is a prominent corner within the Hilltop SGA. The proposed rede-velopment orients buildings to face along First Colonial Road and Donna Drive to better provide a safe and accessible retail address for an increase in vehicular and pedestrian traffic that will come as a result of the potential transit station.

PHaSE 1

A new street is introduced to better connect the street grid, distribute traffic, and minimize the volume on surrounding local roads. the new street terminates at the front entrance of the target and is anchored with new retail buildings at either end. the new retail buildings minimize the view of surface parking and conceal a new parking garage that will serve target shoppers.

PHaSE 2

the final build-out of the target Block includes new retail buildings along the edges of First Colonial Road and Donna Drive. to provide greater visibility for target and the new retail uses, a road is extended through the northern block of the site to Laskin Road. Parking is located mid-block and hidden behind the buildings. trees and landscaped areas soften the redevelopment and help to reduce surface runoff around the paved lots.

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e x IS t InG De V eLOPMen t: 15 0 ,0 0 0 SFDe V eLOPMen t AS SHOw n: 3 3 0 ,0 0 0 SF


Line buildings along major »roads

Replace surface parking »with parking garage


Provide landscaped areas »for water runoff

Connect to Laskin Road »


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rEgEncy HIlltoP SHoPPIng cEntEr

Located north of Laskin Road at the western edge of the SGA, The Regency Hilltop Shopping Center provides a key opportunity both for the creation of a neighborhood and regional destination for retail shopping, high-quality office space, and beautiful passive park space. The redevelopment of this shopping center can occur in stages, allowing viable businesses to remain while a public realm is created around them. The Recency Hilltop redevelopment represents one of the high potential areas for mixed-use and walkable redevelopment.

PHaSE 1

the first phase of development creates of a new street grid and a central space from the existing layout of parking drives and lots. Once this new framework is in place, the northern and southern strip buildings can be redeveloped into a new anchor, flanking retail buildings, and a structured parking deck. this would allow all of the out parcels and the anchor at the west of the property to remain. the small park space creates a gathering area for outdoor seating and other types of activities. In this first phase, the large green area at the rear of the property can be used for stormwater collection for the development with minimal upgrades.

PHaSE 2

the second phase of development creates a complete retail environment and a new publicly accessible open space amenity. Once the core of the site has been established as a viable retail site, the out parcels can be redeveloped with street-facing perimeter blocks. this will reinforce the street grid and creates a true destination for neighborhood and destination shopping. Finally, the existing anchor can be redeveloped into an ideal corporate office site with an attached structured parking deck. the large green area in the rear of the site can be developed into an open space that functions both as a publicly accessible park and a functional sustainable stormwater treatment and management facility. this could be achieved through public and private cooperation and would take full advantage of the opportunities of the site.

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e x IS t InG De V eLOPMen t: 26 8 ,10 0 SFDe V eLOPMen t AS SHOw n: 415 ,76 0 SF

use layout of existing »parking drives and lots to transform into a network of streets and a central green space for gathering

Replace some surface park- »ing with decks that service retail and office uses

Phase development to allow »for viable redevelopment over time

Create a publicly accessible »storm water park at the rear of the site, overlooked by a highly desirable office site


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SoutHErn grEEnway and InnovatIon zonE

Potential realignment of the light rail alignment north into the Hilltop SGA would create opportunities for reclamation of City-owned former rail right-of-way for a strong east-west greenway. To strengthen this greenway, the existing ball fields west of First Colonial Road may be moved to a new park south of the greenway, which could also incorporate victory gardens and other types of passive recreation. The land currently occupied by the ball fields can be made available for development with uses complementary to NAS Oceana.

PHaSIng

the phasing of the greenway and development opportunities in this case study would be dependent on studies. Public initiatives to relocate the ball fields and create this large park connected to a critical greenway would then catalyze private development in the blocks north of the former rail right-of-way. this development may create an innovation zone where offices or businesses needing flex or light industrial space can locate with easy access, proximity to retail uses, and linkages to a greenway system.

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e x IS t InG De V eLOPMen t: 191,9 5 0 SFDe V eLOPMen t AS SHOw n: 5 41,15 0 SF

Create greenway along the »City-owned right-of-way with multi-use paths.

Create a large park that »connects to the greenway with relocated ball fields, a victory garden, and passive recreation uses.

Capture valuable land west »of First Colonial Road for office or flex development

Locate uses that are com- »patible with the APZ-1 and CZ Master Plan and AICuZ

first Colonial road

Southern boulevard


oceana boulevard


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Development Standards

frontagE l andScaPE

Defining standards for treating frontage landscape for a mix of uses can provide a clear public and private delineation, maximizing of a building’s exposure to the street, and articulation on how one is to enter and use a building. The physical elements of a streetscape (pav-ing, trees, street furniture, lighting, and signs) along with the comfort and convenience of people have a major importance in the design of the frontage landscape and creating a quality environment. Retail addresses within the Hilltop SGA should be lined with shopfronts, outdoor cafe seating, and other commercial uses. These addresses typically carry a higher volume of traffic so it is encouraged that wide sidewalks are placed to accommodate this variety of activ-ity. Wider sidewalks also allow for shopfront building elements such as commercial awnings and signage to reinforce retail and entertain-ment nodes and interest pedestrians along the street. These addresses have minimal setbacks so that the buildings’ doors are placed up-front and directly next to pedestrian activity.

StandardSPrioritize the street experience1

Provide shaded circulation2

Provide small setbacks3

Create large sidewalks for pedes-4 trian walkability, outdoor seating, and landscaping.

Provide lighting, signage, and 5 landscaping that is reflective of the addresses.

commErcIal


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StrEEt furnISHIngS

Street furnishings are an essential component of the Hilltop SGA. Items such as benches, bike racks, trash receptacles, pet waste sta-tions, and bollards will establish the human scale within the larger setting. Combined with site lighting, planting, and signage, these components help to define the nature and character of the pedestrian experience while providing convenience, safety and comfort. These are the details that will help create a sense of place and to establish the Hilltop aesthetic for Virginia Beach.

Street lighting, benches, trash receptacles, and bike rack ameni-1 ties should be coordinated for coherent character. Sub-areas, such as business and residential neighborhoods, may have differing themes, but these themes should strongly reflect each other in their materials, colors, and forms throughout.

Benches, trash receptacles, and bike racks should be located regu-2 larly, be sturdy designs intended for heavy use and be affixed to the ground surface.

Iron or concrete bollards should be used to protect and define 3 important pedestrian-oriented areas.

Trash receptacles should reside in an area convenient for trash 4 pick up and be discrete as viewed from vehicular and pedestrian traffic. They should be located at street intersections, near retail storefronts, and in community and neighborhood parks. The receptacles should also be coordinated with plant material and strategically positioned behind walks or near entrance planting.

Benches should be located in pairs and should be positioned for 5 conversation and good views. When curb side, benches should face the storefronts and away from the streets in urban environ-ments. They should be located to not impede pedestrian flow and be coordinated with shade when exposed to a southern aspect. Benches should be located on level concrete pads for stable seat-ing and ease of maintenance beneath. All transit stops should include at least one bench in addition to trash receptacles.

Bike racks should be located at every park and commercial area. 6 They should be carefully situated near the street but behind the entrance planting and walkways. Clusters of “Inverted U” racks or the equivalent should be used.

Transit shelters are street furnishings that should be designed to 7 infuse public art into the streetscape.

Public art should be incorporated in pedestrian and bicycle ame-8 nities as elements that can create a comfortable, safe and attractive public realm.

general CriteriaLocated appropriately within the 1 public realm of streets

Proper frequency and affixed to 2 the ground

Help to define the pedestrian 3 realm and provide amenity for alternative forms of transportation

StrEEt furnIturE


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Ex tErIor SIgnagE

Signage for the Hilltop SGA is critical for establishing a themed identity to the entire community or to sub-communities of the over-all SGA. They are also necessary for completing the extension of the buildings to the street. It may be difficult for a pedestrian to see the name of a store if the building sign is the only means of identifica-tion and the entrance to that store is too high above the pedestrian areas. Pulling additional identification signs out and toward the pedestrian areas is an essential ingredient to creating a sense of place. Additionally, signs that repeat font types and styles for a particular business help to orientate the pedestrian by defining one business space from another. While building signage deals primarily with identification, other sign systems in the SGA will play a critical role in defining the environment and creating legibility and identity in the planned com-munity. Directional and way-finding signs for themed developments provide support for a community’s daily activities as well as special events, and operational or regulatory signs provide important param-eters for conducting these activities.

Site signs should be incorporated with the planting, paving, and 1 lighting designs as much as practical, except for incidental signs such as temporary advertisements or sandwich board signs.

Light poles and building columns may be used for mounting 2 Way-finding and Regulatory signs as appropriate.

Materials such as select grade painted wood or sheet aluminum 3 are encouraged for site sign faces as well as graffiti and tamper-resistant materials. Other highly durable sign materials such as ceramics, aluminum, steel, acrylic, or fiberglass should also be considered for use.

SIgnagE

general CriteriaAppropriately located to be read-1 able and accessible to pedestrians

well designed and graphically 2 clean

May be mounted on light poles 3 and suspended from buildings

encouraged materials include 4 painted wood and sheet aluminum

To encourage ease of usage, natural areas should have well defined 4 sign posts for trail lengths, destinations, and place names as rel-evant.

Educational sign markers are critical to identifying and interpret-5 ing history and natural systems for trails and open space. These should be strategically sited as trail systems are developed.

Interpretive signs along pedestrian linkages should be used to 6 point toward and announce culturally significant sites, such as the Upper Wolfsnare Plantation, well before a pedestrian arrives at these destinations.

Map-type graphics panels are critical to point out destinations 7 and nodes along trail systems so that pedestrians and casual bicyclists can make important decisions before venturing on new paths.

Sign graphics should be capable of rendering high-resolution full 8 color images, photographs, colorful diagrams, and bold text in all weather conditions. They should have UV coatings that are long lasting and resistant to graffiti, fingerprints, dirt, oil, and other substances, and they should be strong and durable if not virtually unbreakable. They should comprise one solid continuous piece or several interlocking tiled pieces for larger signs.

Sign frames and bases should not be prone to peel, fade, crack, or 9 rust.


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lIgHtIng

Lighting in the Hilltop SGA is variable. Most street lights are high pressure sodium lamps in cobrahead fixtures, while private business lighting is a mixture of metal halide, mercury vapor, and high pres-sure sodium on a variety of fixture styles and pole heights, building-mounted lighting notwithstanding. Light fixtures otherwise provide for the safety and accessibility of outdoor spaces at night. Fixtures should be selected for lighting capacity as well as for architectural quality that will lend a sense of place and articulation to the SGA. To the maximum extent possible, light fixtures should be selected for consistency throughout Hilltop. They should be designed as cutoff fixtures to minimize light pollu-tion and glare. They should also offer a true color rendition in lieu of yellow (high pressure sodium) street lights. If desirable, some lights may be timer controlled to discourage late night access to parks and trail systems as well as to conserve energy. LED lighting is recommended for this SGA. These types of street lights should have the following specifications:

4100 Kelvin (color), 80 to 100 CRI »

Bulb Life: 100,000 to 150,000 hours »

Wattage: 80 to 100 (max) »

Lumens: 6800 to 8500 (determines brightness) »

Max Min: 10 FC or less (less equals more uniform lighting) »

lIgHtIng

general CriteriaArchitectural design which adds 1 to character and sense of place

LeD, dark-sky lighting2

tool-less entry fixtures for easy 3 maintenance

Tool-less entry fixtures are recommended for ease of mainte-nance. The City has used the Cooper-type fixture for their lighting style on various developments. This is one of the more modern lights offered by Dominion Virginia Power (DVP). This fixture would lend itself well to the Hilltop area. Any similar light fixture recommended would be well suited to reflect this style; however, selections are often limited to DVP standards. Any special lighting fixture in a public right-of-way that deviates from their inventory will require a special lighting agreement with DVP if they are to maintain these lights.


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ParkIng lot and StrEEt trEE canoPIES

In an urban environment, soils under paved areas are highly compact-ed. This limits the amount of water, oxygen, and nutrients available to plant material including trees. This also limits tree root growth caus-ing trees to be stunted or to die prematurely. There are some options that are available for use in areas with highly compacted soils that will allow adequate moisture, oxygen, and nutrients to reach the root zone of trees. One option is the use of structural soils. Structural soils under pavement support the pavement load, but also provide an ideal soil environment for tree root establishment. The additional root space encourages deep root growth away from the pavement surface, elimi-nating problems associated with pavement displacement. Existing parking lots could be retrofitted by using a combination of structural soils and permeable pavement without displacing any parking spaces. Small, diamond-shaped tree pits could be installed in the upper corners of parking spaces allowing only a small diago-nal portion of the parking space to be removed. Placing structural soil and permeable pavement within the parking spaces directly surrounding the trees will allow tree roots to grow as required for healthy trees. This will help support an urban tree canopy, especially in Hilltop which has a high percentage of paved area.


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ParkIng StandardS

Primary addresses throughout the Hilltop SGA are environmentally impacted and aesthetically limited by the presence of many large parking lots. Redevelopment of these parking lots with the use of standards will ensure a better potential for future development and create an environment that is not a hindrance to pedestrians or the high quality character of the Hilltop community.

Stand alone gar age StandardS

Free-standing »

Architectural treatment of garage's facade should be »screened from public right-of-way

Pedestrian entry articulated in the facade's composition »

naturally ventilated »

Wr aPPed gar age StandardS

Located generally in the middle of the block »

Liner buildings provide screening along public right-of-way »

Minimal visibility should occur along primary streets. »

Pedestrian entry articulated in the facade’s composition »

naturally ventilated »

SurfaCe lot StandardS

Generally located at the rear or to the side of buildings »

Buildings provide screening along primary streets; shade »trees, landscaping, and low walls provide screening along secondary and tertiary streets.

Minimal visibility should occur along primary streets. »

wayfinding methods should be clear for access of pedestri- »ans and vehicles.

A RCHIteC t uR A LLy tRe AteD FAC A De

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SeCOnDARy StReet

SeCOnDARy StReet

Large parking lots can be divided into future development blocks to permit maximum flexibility for denser development to take place. Parking should be designed to correspond with service requirements of the block, leaving land for building pads that can be accommodated incrementally over time. As development occurs, tree-lined streets and buffered landscape edges will create a protected environment for pedestrians. Parking lots and garages should be placed out of public view but still easy to access.

Fu t uRe De V eLOPMen t S Ite





ORIGIn A L BuILDInG

(1)

(2) (3)

hilltop str ategic grow th area master pl an: v irginia beach, v irginia | may 2012 | urban design associates

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56 implementation str ategies

Implementation Strategies the Hilltop SGA Plan includes a series of implementation concepts that will involve both the city and private property owners. Improvements will evolve over several years and occur incrementally. The following strategies will assist the community in a coordinated approach to redevelopment:

Update zoning regulations based on the SGA plan »recommendations

Consider tools for redevelopment including Special Assessment »Districts, Special Service Districts, Tax Increment Financing, Business Improvement District, and Parking Management

Create a BID or similar organization to allow property owners »and tenants to work together to manage community events, main-tain the district, and plan for the future.

Revisit design assumptions for scheduled improvements to major »arteries including Virginia Beach Boulevard, First Colonial, and Laskin Road.

The VDOT design for Laskin Road is old and outdated and »should be redesigned with consideration to the recommendations in this study.

Continue to explore alternative transit alignments to better serve »Hilltop’s prime commercial area.

As improvements to Laskin Road are implemented and redevel- »opment of commercial property evolves, build a new secondary and tertiary street network to improve mobility and access in Hilltop.

Implement the city wide trail system as roads and streets are »rebuilt to new standards.

PuBlIc and PrIvatE InItIatIvES

the Hilltop SGA will require a coordinated effort of public and private investment to achieve full potential. the public investment in open space and transportation infrastructure not only create an improved public realm but will allow for full return on the accompanying private investment.

imPlementation StrategieS

Zoning

Consider: District-level flexible zoning tied to SGA programs; overlay »zones, including transit-ready, transit-oriented development; retrofitting some SGAs with new zoning, tying list of permitted /prohibited uses to physical forms.

SPeCial aSSeSSment diStriCtS (Sad)/

SPeCial SerViCe diStriCtS (SSd)

Outline costs of necessary physical improvements by phase, and »model SSD contributions against improvement costs.

explore legality of Floor Area Ratio (FAR)-based SAD. »

Run financial modeling of SSD by each SGA. »

ta x- inCrement f inanCing (t if)

Analyze fiscal impact of proposed development at the SGA level. »

Model the contributions of a tIF, with contingency, in conjunction with »SSD for multiple phases of infrastructure investment.

Shape infrastructure investment to lessen percentage of public contri- »bution over time while increasing percentage of private contribution.

buSineSS imProVement diStriCt (b id)

embrace BIDs as a way to advance the goals of the SGA effort. »

Cultivate leadership in the Hilltop SGA to become a BID, preferably in »conjunction with plan adoption.

Parking management

Model funding of parking via stacks of tIF, SSD, fees and compare »results of fiscal impact study against cost of parking delivery and potential sources of revenue.

tiered inCentiVe Progr am

explore proper incentive structure as well as terms for compliance par- »ticipation; test market program with developers and property owners.

Incorporate incentive program into SGA implementation /roll-out. »

Reconcile any tax-driven incentives with tIF and SSD. »

PuBLIC In It IAt I V e

PRI VAt e S tRee t In It IAt I V e

PRI VAt e De V eLOPMen t In It IAt I V e

Note: Where shown initiatives are on private property, improvements are to be made at the discretion of the property holder and should be performed in conjunction with redevelopment.


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Public Investments

PuBlIc InvEStmEntS dIagram

The city will be responsible for key infrastructure improvements including transportation management and street design, improve-ments to pedestrian and bicycle infrastructure, utilities, and transit initiatives:

Laskin Road Redesign and Implementation to eliminate frontage 1 roads and improve traffic flow and safety. Improvements to First Colonial Road at the intersection of Laskin Road are included in this project to help improve flow.

Streetscaping improvements to include landscaping, trees, light-2 ing, trails, sidewalks, crosswalks, and wayfinding signage

Introduce a transit station and transit park in Hilltop as part of a 3 new city wide transit system and open space network

Develop a parking strategy for Hilltop and introduce structured 4 parking in public /private ventures in order to increase open space and tree canopy throughout the SGA

PuBLIC ROA D In It IAt IV e

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Private Redevelopment

PRIVATE REDEVELOPMENT DIAGRAM

PRI VATE ROA D IN IT IAT I V E

PRIVATE DE V ELOPMEN T IN IT IAT IV E

implementation str ategies

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Laurel Lane

Southall Drive

Southall Drive

Donna Drive

Donna Drive

KmartKmart

TargetTarget

MarketplaceMarketplaceat Hilltopat Hilltop

Hilltop Shopping Hilltop Shopping CenterCenter

Regency HilltopRegency HilltopShopping CenterShopping Center

Charles BarkerCharles BarkerToyotaToyota

Trader Joe'sTrader Joe's

Villa

ge

Driv

e

Villa

ge

Driv

e

Village Drive

Village Drive

Upper WolfsnareUpper WolfsnarePlantationPlantation

Parish DayParish DaySchoolSchool

St. NicholasSt. NicholasGreek Orth.Greek Orth.

ChurchChurch

Linkhorn ParkLinkhorn ParkElem. SchoolElem. School

FreedomFreedomFellowshipFellowship

ChurchChurch

Good ShepherdGood ShepherdLutheran ChurchLutheran Church

Laskin RoadLaskin RoadAnnexAnnex

Ego DriveEgo DriveV

icto

r Ro

ad

Vic

tor R

oa

d

Mable Lane

Mable Lane

Wildwood Drive

Wildwood Drive

Virginia Beach Boulevard

Virginia Beach Boulevard

Potters Road

Potters Road

School School Bus Bus

ParkingParking

Oceana B

oulevard

Oceana B

oulevard

Oc

ea

na

Bo

ule

va

rd

Oc

ea

na

Bo

ule

va

rd

Virginia Beach BoulevardVirginia Beach Boulevard

No

rth

Oc

ea

na

Bo

ule

va

rd

No

rth

Oc

ea

na

Bo

ule

va

rd

Old Virginia Beach Road

Old Virginia Beach Road

We

st L

an

eW

es

t La

ne

Laskin Road

Laskin Road

Win

wo

od

Driv

e

Win

wo

od

Driv

e

Fre

ma

c D

rive

Fre

ma

c D

rive

Linkhorn BayLinkhorn Bay

Wolfsnare Creek

Wolfsnare Creek

Reynard Drive

Reynard Drive

Wis

co

ns

in A

ven

ue

Wis

co

ns

in A

ven

ue

Gre

at N

eck

Cre

ek

Gre

at N

eck

Cre

ek

Ne

va

n R

oa

d

Ne

va

n R

oa

d

Whole Whole FoodsFoods

Friend’s Friend’s SchoolSchool

Private property owners will participate in the redevelopment and

improvements to Hilltop by creating a new street framework to

improve mobility and accessibility. With this improved access, land

owners will have the ability to redevelop their properties to create a

more pedestrian friendly centers at higher densities.

Work with the City to plan and build new streets to create a sec-1

ondary and tertiary street network. Tertiary streets that are shown

in this plan, which require the relocation of structures or parking

capacity, will be planned and built at the discretion of the prop-

erty owner.

Build complete public or private streets with accommodations for 2

vehicles, pedestrians, bicycles, furnishings and landscaping.

Redevelopment of commercial property: replacement of obsolete 3

commercial structures with new buildings placed according to

new planning standards for the district.

Provide publicly accessible open spaces and landscaping within 4

redevelopment projects that enhance value of retail and mixed-use

developments and enhance the open space network of the SGA.

Work with the city to develop a district parking strategy5


© 2

012

ur

ba

n d

esi

gn

ass

oc

iat

es

59 next steps

Next Steps

Summary of nex t StePS

Adopt the Hilltop SGA plan »

Revisit zoning regulations to permit redevelopment of property in the »Hilltop SGA

Develop a comprehensive stormwater management strategy for the »Hilltop SGA

establish implementation and positioning strategy for all SGAs and »develop segmentation approach for each

Create necessary development mechanisms to encourage public and »private investment

establish strategies for reconnecting street network throughout entire »SGA

Conclude analysis of transit stop location and rail alignment alternatives »

Conclude the analysis of Laskin Road alternatives »

Develop a parking management strategy for Hilltop »

Develop corridor master plan that coordinates, sequences, and priori- »tizes public investments between newtown and the resort area


the redevelopment of the Hilltop SGA will consist of sev-eral key moves which will allow for the gradual redevelopment of individual blocks and neighborhoods. Chief among these are the reconfiguration of Laskin Road, the potential transit station loca-tion, and the alignment of the LRT. Each of these will shape the type of private development possible and ultimately the character of the Hilltop SGA. The recommendations for the street network will fur-ther allow for increased connectivity throughout the site. Concurrent to the adoption process, the City should be actively pursing a strate-gic growth strategy that positions the Hilltop SGA to target growth appropriately, relative to the other SGAs.

Documents

hilltop strategic growth area master plan · 15 march 2012 Public presentation of design alternatives 21–22 may 2012 Phase 3 – Final Public Presentation of Master Plan Recommendations