“Redefining Richmond With the James River”

A few months ago, Champe Burnley received a phone call from a friend’s son. “He was

looking for a place to crash,” said Burnley. The kid was on his way to Asheville, NC to look for

a job. When Burnley asked him why he wouldn’t look for a job in Richmond, he replied “I’m not

looking to work in Richmond, I’m looking to work somewhere outdoorsy and cool.”

Champe Burnley, Richmond’s Co-Chairman of the Mayor’s Bicycling, Pedestrian and

Trails Commission hopes to see Richmond become one of the nations leading outdoors towns.

Like many Richmond residents currently searching for enhanced outdoor opportunities,

Burnley’s glance lies on the storied waters in the cities’ heart. “If we want to compete with

places like Boulder and Portland we need to tell the James River’s great story and utilize it

better,” he said.

The narrative of the James winds much like the river itself, with ups and downs

historically mixed throughout the rapids. The dips in the story have resulted from humans,

because the James suffered for many years from overuse and exploitation. Yet the highest point

of the James’ story may be unfolding now. A steady conservational effort has revitalized the

river over the past 40 years, and allowed it to recreate a dynamic in Richmond that has long

fallen to the wayside. Richmond is poised to redefine itself as an outdoor adventure town, and

leap over the labels it has received as an urban city. The James River is the focal point of that

redefinition, and has once again become an invaluable resource that the city is eager to dive into.

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The James River winds for 348 miles, forming in the foothills of the Allegheny

Mountains and eventually connecting to the Chesapeake Bay. The river’s geography varies

throughout the state, and Richmond features some of the most scenic and noteworthy stretches. It

grants Richmond several unique qualities, like being the only urban city where you can enjoy

class V rapids on your lunch break. A recent spur in recreational connection to the James has

earned Richmond national attention. Yet the River’s history paints a less picturesque image, and

led to a restoration effort still underway today.

Historically, the James has been utilized at the expense of its health. One Virginia

legislator proclaimed in 1912 that the James was one of “the God-given sewers of the State.” The

river was essentially used as a dumping ground from the time of the Revolutionary War until the

mid 1970’s. Waste from cannon and munitions factories, dynamite manufacturers, chemical

plants, and raw sewage wound up in the James, plaguing the ecosystem and poisoning the water.

Overfishing ravished the fish population, and by the mid 20th century the river had become so

acidic in places that paint would burn off of boats.

The combination of harmful chemicals and raw sewage depleted the rivers health for the

majority of the 20th century. Terry Dolson, an advisor at the University of Richmond, remembers

the dismal state of the river. “It was like a cesspool,” she said.

Improved sewage drains and the Clean Water Act of 1972 began the revitalization of the

James. They were the first steps in nurturing the river back to health, but were undercut by the

discovery of Keypone in 1975. The Allied Chemical Corporation began developing Keypone, a

toxic, nonbiodegradable insecticide, in Hopewell Virginia in 1966. For nine years it was dumped

into the river, and once discovered caused fishing bans that lingered in part until 1988.

Since the keypone discovery, persistence at environmental protection and conservation

has substantially improved the water quality of the river. The James River Association (JRA)

arose during this time of environmental awareness, and has been an invaluable asset towards the

river’s restoration. “We’ve come a long way,” said Jamie Brunkow, JRA’s lower river-keeper.

From the cockpit of his 23-foot Maritime Skiff, Brunkow looked quite frustrated as he

continued to crank the boat’s ignition key. It was a cool day in mid November and the James’

surface vibrated the autumn’s cool, pale-gray sky with its ripples. Brunkow got the boat in the

water astonishingly fast; plunging his trailer into the water as he peered through the back

window of his “Riverkeeper” labeled white pickup. As a river-keeper Brunkow frequently

patrols the James, searching for signs of algal blooms, fish kills, or any other environmental

threat. After 30 minutes of trying to start his 250 horsepower Suzuki engine, Brunkow’s face

relayed the disappointment he felt at having to abort the patrol. But after a few seconds a small

smile underlined his vibrantly blue eyes. “You want to hop into a kayak instead,” he asked.

Adapting to a thwarted patrol embodies what Brunkow feels is the most important aspect

of redirecting Richmond’s focus towards protecting the James. “The first step in protecting the

river is getting people in it,” Brunkow said.

While paddles silently slipped through the water to propel the kayak, large birds

swooping high overhead appeared boldly against the dull autumn sky. The birds were bald

eagles, and their comeback reflects a period of persistent conservational efforts towards the

James. Just over 35 years ago the birds were virtually extinct here, but with more pubic emphasis

on protecting their river ecosystem their numbers have leapt to around 175 pairs in recent years.

Their resurgence is owed to a support system for the James that has gained attention over the

past few decades, and the JRA has contributed unconditionally to that restoration. “We’re about

halfway towards where we want with the health of the river,” Brunkow added.

The river’s former dire condition has caused people like Brunkow to look at that current

halfway point with optimism. It reflects the city’s success at restoring the water quality of the

James, and indicates substantial room for improvement.

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Over the past 40 years Virginia’s capital has cast a view of concern over the James. It’s

allowed the river to once again become a valuable resource for Richmond. But now, the James is

poised to become the focal point of a city trying to redefine itself as an outdoor-adventure town.

Despite national praise, city officials and citizens alike feel that Richmond is underutilized from

an outdoorsman perspective. By land and water, the city seeks to revitalize itself with outdoor

projects. Improved hiking and cycling opportunities are on the city’s radar, but the continued

development of the James River remains the paramount goal.

In that spirit of development, the Richmond city council passed the Richmond Riverfront

plan on November 26th. Above all else the plan “redefines the city-river relationship,

dramatically expanding both visual and direct physical access to the James River” according to

the document. Throughout its history, the James River has been an invaluable resource to the

people who live near it, but to the detriment of the river itself. Restoration efforts have

revitalized the river so it can be used again, and the city of Richmond is in the process of

rediscovering a lost and forgotten gem. Opening up access to this stretch of river will attract

investment private and public, commercial and industrial. Who gets their hands on the gem first

remains to be seen. Regardless, the Riverfront plan provides the heartbeat for a city body poised

to redefine itself, providing a sweeping effort to redirect the focus of Richmond back to the

James River.

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Richmond citizens looking at the city’s progression as an adventure town more generally

share Brunkow’s “glass half full” view. Enhancing the river experience is a priority for people

who feel Richmond can utilize its outdoor resources more actively. Burnley has applied the same

mentality to the cycling scene in Richmond. Currently, the city is in the process of contributing

to the Virginia Capital trail, a path that will take bikers over 50 scenic miles from Richmond to

Williamsburg. The Richmond portion of the trail will run parallel to the James riverfront

downtown.

Richmond’s cycling potential has earned it the privilege of hosting the 2015 World

Cycling Championships. Florence and Lisbon are among other cities that have hosted the sports

main event previously. The race is comparable to the Tour de France in the cycling world, and

will attract nearly 500,000 onsite spectators according to an economic impact study. The same

study estimates that the Championships will generate over $135 million for the Commonwealth

of Virginia. This honor demonstrates Richmond’s success at developing its cycling

opportunities, but people like Burnley see more room for improvement.

Richmond’s outdoor opportunities earned the city the award from “Outside” magazine

for the best “progressive, adventurous, and livable river towns” in September. Though this praise

and the privilege of hosting the Cycling Championships indicate Richmond’s outdoor appeal, it’s

what could be done better that has Burnley churning.

In May 2009 the Virginia Department of Transportation announced the completion of

the I-295 flyover construction project. The project cost $67 million and aimed to decrease

congestion at the I-64 Interchange. Burnley noted that for around the same price Portland,

Oregon built over 300 miles of biking trails. “What has that project actually accomplished,”

Burnley asked of the highway construction. “Could you imagine the economic and tourist

stimulation that 300 miles of trails would have,” he added.

Burnley sees decisions like this one as a part of a larger ineptitude for organizations in

Richmond to market themselves properly. On a more refined level, Burnley wonders why

institutions like the University of Richmond don’t market themselves to an outdoor audience. He

sees schools like Appalachian State as model Universities that package their outdoor

opportunities for admittance attraction.

The University of Richmond has tried to develop its outdoor attractions, specifically by

connecting the school to the James River. University officials are struggling with a plan that will

lead students from campus along Little Westham Creek to the James. The path would bring

students to the Huguenot Bridge, where after crossing they’d be beside the river. However, a

dangerous intersection before the bridge has brought the plan to a standstill.

In July a woman biking home from work was struck and killed in that intersection.

Between River Road and the Huguenot Bridge, the intersection offers little room for bikers or

potential crossing students. Currently, the University of Richmond is working with city and state

officials to have the intersection improved.

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The University’s desire to improve access to the James underlines the broader

development project of the Richmond Riverfront plan, which passed unanimously on November

26th. The excitement inside of Richmond’s City Council Chambers the night the plan passed was

almost palpable. Boy-scouts and residents dressed in green and blue packed into the chambers,

anxiously awaiting the vote. They sat beneath an oval shaped emblem on the back wall that

features a wave and bridge design in gold. Several citizens spoke in front of the council before

the vote, one of which was Scenic Virginia’s executive director, Leighton Powell. Scenic

Virginia is a non-profit organization dedicated to preserving and enhancing the scenic beauty of

the Commonwealth. After urging the council members to pass the plan Mrs. Powell asked the

members of the audience who came to advocate for the Riverfront Plan to stand up. When half of

the audience rose from their chairs she offered the council members a closing remark: “If you

need to hear from all of us you can,” she said.

The Riverfront Plan hopes to reaffirm the James as the focal point of the Richmond area,

primarily through increasing access to it. The plan’s long-term vision sees the Richmond

riverfront as a landscape corridor that seamlessly connects with the James’ upriver and

downriver resources. Though the plan will likely take more than a decade for completion,

passing it has energized much of the Richmond outdoor community.

Jim Hill, the project’s principal planner, anticipated that city council would pass the plan.

Despite his confidence, Mr. Hill was still shocked when the plan actually passed. “It just feels

like this thing has been a long time coming,” he said.

It appears that implementing the goals of the Riverfront Plan will be a long time coming

too. The plan is broken into three phases of priority, each of which will require substantial

funding and manpower. Since the plan passed, the in house city staff team is trying to refine their

focus on the aspects of the project to be tackled first.

The stretch of the James that the Riverfront Plan addresses is between the Lee Bridge

near Belle Isle, and Rocketts Landing in downtown Richmond. By increasing the river’s

accessibility the city hopes to engage more Richmond residents in the watershed. Building

riverside terraces is a plan priority for strengthening the city’s connection to the river.

Developing physical access to the river will feature expanded places for boat launching, and a

new, multi-tenant boathouse built for sculling shells. The plan recognizes unrealized potential for

water recreation downriver, and will provide opportunities near the cycling Virginia Capital

Trail.

From an ecological standpoint the Riverfront plan identifies a number of tactics to

continue the restoration of the James. It will transform locations of soil compacted by industry

with soft soil that can help filter storm water. The plan also notes areas where planting can

stimulate the rejuvenation of several depleted plant species.

Though improving access and continuing with restoration are key points of the Riverfront

Plan, some locals feel the plan could accomplish much more. “I think the plan needs to hit

another aspect of the James,” said Mike Ostrander. Ostrander, a local fishing guide and civil war

tour captain, has seen the various ways people have utilized the James over the years. “It’s going

to create more competition for sure,” Ostrander said. He’s seen the fishing guide numbers in his

stretch of the James jump from around five to over 30 in the past 12 years, and anticipates that

number to continue to rise with the implementation of the Riverfront Plan.

Ostrander sees the Riverfront Plan as a tool that could bridge different aspects of the

Richmond experience. Upon its completion, it will certainly enhance the city’s outdoor

opportunities. Yet it could also connect Richmond’s residents in social and cultural ways. “Think

of the opportunities from a business standpoint,” Ostrander said. “What if people could dock

their boats alongside a restaurant or shopping center downtown,” he added.

Ostrander doesn’t consider himself a businessman, though he’s successfully run his own

outfits for over a decade on the James. Looking towards the completion of the plan, he will rely

on his ability to adapt to keep his business thriving. Yet even after the plan’s passing, Ostrander

remains skeptical of its timetable to get underway. “It reminds me of ODU football,” he said.

“Way back when I was in college all everyone talked about was how ODU football was about to

take it to the next level,” he added. ODU football played its first Division 1 game in 2009.

Regardless of the Riverfront Plan’s timetable, it will undoubtedly instigate development.

But the nature of those developments remains to be seen, and is a cause of concern for people

who already utilize the James as their main resource. Scott Williams, the storyteller on

Ostrander’s civil war tours, recognizes the potential tension between commercial development

and public access. “It’s going to be a tug-of-war,” he said.

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It appears the tug-of-war for developing the riverfront has already begun. Mayo’s Island

is a pivotal piece of land addressed in the Riverfront Plan. The largest and most vehicular

accessible landmass in the plan, Mayo’s Island could be transformed into public open space. The

plan seeks to construct biking and running trails throughout the island, as well as a concession

stand and recreational equipment-renting center. There’s just one problem: the city doesn’t own

the island.

Dr. Fred Shaia is the current majority owner of Mayo’s Island. Though the plan includes

Mayo’s Island as a project, it didn’t forbid development of it under the current industrial zoning

regulations. This means that Shaia still has buy-right privileges for the island. The Shaia family

has expressed interest in developing the island commercially and for public access. “They

believe they have the means to develop the island on their own terms,” said Jim Hill.

While the Shaia family reserves their rights as owners, developing it on their own terms

will not be easy. When a building permit exceeds a certain cost the city council automatically

reviews it. Considering the vision for the Riverfront Plan, it seems unlikely that the city would

allow significant commercial development on the island.

Clearly, the Mayo’s island situation is sticky. The city cannot implement their plans for

it, and Shaia will face obstacles in developing it. Negotiating with private owners like Shaia is a

priority for city officials like Mr. Hill, who are in the process of planning funding for the project.

Gathering funds will be a challenge as well. Fulton Gas Works is a 20-acre structure that

the plan seeks to renovate. Yet the property is contaminated from decades of 19th century

industrial use as a gas works. Since the city of Richmond contaminated the site it is not eligible

to receive federal funding for its redevelopment.

HR&A, a real estate, economic development, and energy efficiency consulting firm, has

mapped out a way for the Fulton site to receive federal funding. Another entity would need to

take on responsibility for the remediation of the property. If ownership shifted, this external

entity would be allowed to receive federal funds to develop the island.

Complications like Mayo’s Island and Fulton Gas Works are part of a funding process

that is developing since the plan passed. The plan will require local, federal, foundational, and

philanthropic funding to get underway. “One way funds could be gathered is by recognizing an

area that will benefit from public investment,” said Mr. Hill. This would spawn private

investment, and create opportunities to generate revenue for ongoing operation and maintenance

of the plan. Collecting sales tax on retail and property tax in these areas would be designated in

the city’s budget towards the Riverfront Plan.

Mr. Hill indicates that the city hopes to have planning for funding finished by the end of

this year. This will allow for the funds to be gathered and the procurement process for

construction to begin. Construction for the plan will be divided between the specific projects it

targets. The city will extend a bid that could become individual or group projects based on

funding. “We hope to have something significant done in the next three years,” said Mr. Hill.

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The past few months have featured many developments to attract people like the son of

Burnley’s friend. The riverfront is certainly the feature development, and its timing raises

questions about the true implications of the plan. Individuals like Ostrander have relied on the

river for years to provide their livelihood, but the Riverfront Plan is the city’s project. Going

forward, Ostrander will be forced to develop as the plan does. “The Riverfront Plan is definitely

going to change things. I don’t know how yet, but my success will depend on my ability to adapt

to those changes,” he said.

The JRA has practiced a “let it be wild” mentality for the past 35 years. They’re

enthusiastic about the projects in the Riverfront Plan, they just want to see them done with a

conservational attentiveness. “The key to preserving the river is not stopping development, but

being smart about how it’s developed,” said Brunkow.

At the city council meeting that passed the plan councilman E Martin Jewell

acknowledged that balance as well. The Riverfront Plan’s vision is vast, and encompasses

aspects of improving outdoor opportunities as well as economic growth. Improving access to the

riverfront is a huge part of the plan, but it “cannot be done without commercial development as

well,” said Mr. Jewell. “This plan accomplishes both,” he added.

Like the source of comeback for the bald eagle, the Riverfront plan hopes to make the

James an integral source of livelihood for Richmond. It is a piece of a large shift to redefine

Richmond, labeling it as more than an urban city for those who don’t live there. The specific

name on that label remains to be written, but local outdoor enthusiasts hope to see these

developments create more places like Pony Pasture.

Pony Pasture is a beautiful stretch of the Richmond falls, and perhaps the most beloved

place for Richmond residents who seek the James as their refuge. On a warm Sunday you’ll see

swimmers of all ages climbing out of the water to warm their backs on the smooth granite

boulders that create the rapids. Between the boulders white water churns, and creates slippery

water slides that swimmers launch themselves into to float downriver. Great blue herons prowl

the shallows where the younger children splash about, searching for catfish and smallmouth bass

that dart in and out of caves beneath the rocks. Fishermen shoot flies into the deeper pools,

hoping one of the larger smallmouths will be tricked into biting their hooks.

It is a beautiful place that escaped a proposed Richmond Metropolitan Authority

expressway that would have been built on the most scenic portion of Riverside Drive––the road

that runs parallel with Pony Pasture. In the early 1970’s Louise Lude Burke led efforts to stop the

proposed expressway, which protected the area from becoming a major transit route.

Now, Pony Pasture embodies the type of development Richmond outdoorsmen hope to

see from the Riverfront Plan. It could turn a large stretch of the James into a space like Pony

Pasture, where citizens flock to on the weekends to enjoy the James’ natural beauty and outdoor

activities. On the other hand, it could turn into a major resource for economic industry. Perhaps

the Riverfront Plan will accomplish both, and transform this stretch of the James into a space that

outdoorsmen and businessmen can utilize equally.

The story of Richmond’s portion of the James River is being rewritten, and will certainly

place the River at the center of a city trying to redefine itself. How Richmond writes that

definition remains to be seen.

We’ll have to wait and see which way the river bends next.