⬚ figure

Growth Management and Rural Areas

Introduction

Based on modeling conducted for the City, it is projected that by 2045 the City's population will be about 299,587. The Weldon Cooper Center estimated Chesapeake's population be approximately 253,261 on July 1, 2024. This means the City can expect an increase of about 46,317 residents over the course of 20 years, an approximately 0.73% annual growth rate.

Some of this projected growth is predicated on certain development occurring within the City, such as the redevelopment of Greenbrier Mall, and if those developments don't occur, growth may be lower. According to the Weldon Cooper Center, which provides yearly population estimates,

between July 2023 and July 2024, Chesapeake only grew by 0.31%, or 783 people.

When residents say that Chesapeake is growing too fast, the City's response is nuanced.

First, there are areas of the City that are growing faster than others, so even if the overall growth rate is relatively low, growth pressure may be felt in some places.

Second, there are infrastructure needs that should have been addressed sooner, as there are deficiencies in the infrastructure system and public services as the population has grown. For example, multiple schools are at or over capacity, an issue that many residents associate with recent development. However, in the past seven years enrollment has been nearly stagnant, so issues must stem from past growth (as well as changing state regulations and best practices; learn more here). It is projected that the number of school-aged children will remain relatively stagnant until 2035, when slow growth may begin to occur.

⬚ figure

*this number is estimated based on average household size

Growth Management and Rural Areas

⬚ figure

Third, the City cannot simply stop population growth from occurring. Private property rights dictate that land zoned for residential uses can be developed in such a way. City Council can deny rezoning applications or tighten ordinances that would allow for more housing, but by-right development will continue.

Moreover, there are far-reaching detrimental implications of a negative growth rate in

Growth will occur; the question is: where and how?

⬚ figure

relation to economic prosperity and quality of life, as well as potential tax implications. An annual rate of 0.73% is a manageable growth rate for the City, particularly when it is paired with sound decision making around infrastructure, density, and patterns of development. The first half of this chapter will speak to policies that guide this decision-making process.

The second half of this chapter will address the special and specific needs of the rural part of the City, which is directly intertwined with growth and growth management. Without proper policies and guidelines, development will naturally sprawl towards undeveloped areas, which in this case is the rural part of the City. Rural areas in Chesapeake are important to the City's overall character and identity. Protecting the rural land is important, and so is specifically protecting the characteristics that make it a special part of the City. If the City

loses what is special about rural Chesapeake, it loses that piece of the City’s identity.

GMRA 1: Prioritize the protection of agricultural and environmentally sensitive land by limiting development in those areas, and also encouraging development in more suitable areas to minimize suburban sprawl.

Density

During the comprehensive plan engagement process, a survey posed the question “Which statement best represents your opinion on increased housing density in the City of Chesapeake?” Response options were:

1. Increasing density anywhere in the City is a bad idea.
2. Increasing density in strategic areas of the City is okay, but it’s not okay in rural areas or single-family neighborhoods.
3. I have no problem with increased density in Chesapeake.

60.5% of respondents said that increasing density anywhere is a bad idea. Open-ended comments made it clear that in the eyes of residents, if density is increased, the same amount of land will be developed, there will simply be more people on that land.

This plan interprets the question differently:

Assuming that a certain number of new residents are expected in the next 20 years, how should they be dispersed across the City?

In large-lot single-family homes, which take up significantly more land but provide more individual private space? Or in denser, multi-family developments that take up less land but may create pain points for traffic and infrastructure, if not well managed? The answer from Chesapeake 2045 is: both.

There is a paradox for some residents where they desire large-lot residences with generous separation from their neighbors but decry the loss of natural and open spaces across the

⬚ figure

A multi-family building in Greenbrier.

City for residential development. Residents must understand that land is finite: we cannot both build large lot single-family homes and protect all land from development. While some may answer that we simply should not build any more housing, Chesapeake 2045 takes it as a given that growth will occur, as discussed in the introduction of this chapter. Thus, to protect the special, open spaces in Chesapeake, density must be integrated into the City.

Density is a strategic tool, allowing Chesapeake to take advantage of existing and future planned infrastructure to create the types of walkable, low-maintenance, active communities many residents seek. Density can be created through compact development, structured parking, and other features. The City must also support alternative transportation (see more on that topic here) as a key factor in the success of density.

For density to be a successful part of Chesapeake’s landscape, it is critical that policies related to development patterns are followed. The character districts promote minor increased density across much of the urban and suburban parts of the City, primarily through supporting missing middle housing (see more in the Housing chapter) and the inclusion of more

⬚ figure

A multi-family building in Greenbrier.

Photo Credit: Chesapeake Economic Development

duplexes, triplexes, and the like. However, this comprehensive plan reduces the overall land acreage recommended for very dense development. But, where dense development is recommended, that must be what is approved by the City. This means multi-family housing that goes beyond three-story garden-style apartments. By going denser in these target areas, it creates the market for shared amenities, public transportation, and mixed-use that is desired and necessary for this lifestyle.

To make density more effective in desired parts of the City, it must become easier to successfully create denser developments.

A particular note of difficulty is the requirements of the planned unit development (PUD), specifically the Urban PUD, which is allowed in the Urban Overlay District. In order to see more dynamic, unique, successful Urban PUD applications, changes to the administration of the PUD are necessary.

For example, zoning criteria currently requires a minimum of 15 acres of land, a difficult amount of land to bring under common development in the denser, more built-out parts of the City. Successful mixed-use developments can occur on much less. As the PUD is the primary tool for this type of development, it is important that it serves its purpose in bringing the type of dense development that will be effective.

— WHAT IS A PUD? —

A PUD, or Planned Unit Development, is a form of development characterized by unified site design, often including a variety of housing types and densities, clustering of buildings, common open space, and a mix of building types and land uses.

An effective tool against suburban sprawl that specifically supports rural landowners are Transfer of Development Rights (TDR) programs. The rights of property owners to sell their land for development, particularly in rural Chesapeake, are often indirectly challenged by the desire of residents across Chesapeake to protect the rural character and heritage of the City. One resident in Western Branch commented,

“Increasing population density where it is already dense but leaving the rural areas rural would be ideal.”

A survey respondent in South Norfolk said,

“Nobody wants Southern Chesapeake or Great Bridge to be developed more than they are now.”

This is a particularly meaningful issue as more farmers reach retirement age and do not have children who are interested in taking over their business. It is the individual property owner’s right to do with their land as they choose, even

Growth Management and Rural Areas

⬚ figure

TDR programs move development from here... to here.

Photo Credit: Chesapeake Economic Development

if other residents may prefer that owners leave the land rural or agricultural.

TDR programs allow landowners in certain areas (here, rural Chesapeake) to sell their development rights (the right to build on the land) to developers who can then take those rights to areas of the City designated for more density (such as Greenbrier). This allows rural property owners to make money from their land while keeping it free from development, and allows developers to add density to a project, increasing their return on investment. Given the City’s desire to increase density in key areas and prevent it in others, this tool is an excellent fit for Chesapeake. While it functions a bit like the Open Space and Agriculture Preservation program (OSAP), described in the “Rural Areas” section, it has the added benefit of not requiring City funding to be successful.

GMRA 2: Support and focus density in a few strategic areas of the City as indicated in Character Districts and Overlay Districts and prioritize infrastructure improvements needed to support that density.

GMRA 3: Ensure development follows the pattern established by the Overlay Districts and as recommended by the Character Districts, including allowable densities, community design, and mobility options to create distinct lifestyle opportunities in complete communities.

GMRA 4: Evaluate the existing requirements for a Planned Unit Development in the Urban Overlay District to make creating such developments more feasible.

GMRA 5: Develop a Transfer of Development Rights program to ensure density occurs in the parts of the City where it is most appropriate, and rural landowners are compensated for preventing development of their land.

Growth Management and Rural Areas

Logical Development

Typically, efficient growth follows a pattern of expansion from existing development. In Chesapeake, that pattern starts as denser and more urban in the north, becomes less dense and more suburban in the center, and rural and very low-density in the south.

Maintaining this pattern requires infill and redevelopment of the urban and suburban areas, and protection of the rural areas.

This allows for an efficient use of infrastructure, where property taxes can cover the cost the infrastructure provided to them.

For example, a new residential subdivision adjacent to an existing one can connect directly into the water and sewer infrastructure that is right next to them. The total length of new pipe to be added and maintained will simply be that which stretches across to the new housing. Property taxes from the new housing can likely cover this stretch.

However, if a residential subdivision is placed a mile away from an existing subdivision, not only does the project require pipe that is the length of the new residences, it also requires an extra mile of piping to simply reach the development in the first place, which is a large additional cost that the new residences likely do not cover in taxes alone. Further, true infrastructure costs include not just installation, but also maintenance and monitoring.

Growth naturally expands outwards.

⬚ figure

Growth Management and Rural Areas

It is important that new development occurs when the market is prepared for it. While land may be designated for certain uses, particularly in the more detailed small area plans, it does not necessarily mean it is automatically an appropriate time to develop those uses. For example, if the City or developers push for commercial development where there has not been adequate housing development, businesses will not be successful, and it may be difficult to fill vacancies.

This does not mean that commercial development should never occur there; rather it means it should occur when it is appropriate. There are many situations throughout the City where preserving prime commercial land may be in the best long-term interest, regardless of market realities today. The opposite is also true; where residential development occurs, retail, services, and amenities must follow.

GMRA 6: Achieve a pattern of compatible land use and growth that is balanced between uses and follows a logical pattern without “leap frogging” to parts of the City unserved by appropriate utilities and infrastructure.

GMRA 7: Ensure development occurs when it is timely, meaning the market demand exists, the development is not speculative, and infrastructure exists or is ready to be built in the area.

Responsible Growth

Chesapeake is projected to add over 46,000 residents in the next 20 years. This is a manageable future but does require the City be thoughtful about where and how it will grow. If allowed to simply sprawl across the City, residential growth will bring some of the things residents fear: a loss of green space, inefficient utilities, and increased traffic. When reviewing City data, the Partners for Economic Solutions provided four possible growth scenarios the City might experience based on two factors: population growth rate and development pattern.

Growth rate is based on factors somewhat outside of the City’s control, such as major shifts in regional military employment, or the successful recruitment of a major employer which could lead to higher-than-normal population growth.

Development patterns are much more within the City’s control. A high growth, sprawling development pattern leads to the most challenging outcome for Chesapeake.

Stable growth with a more compact development pattern, created through changes to the Zoning Ordinance, city policy, and capital investment priorities, leads to a positive outcome for the City. This is called the “Reinvest and Preserve” strategy.

Growth Management and Rural Areas

⬚ figure

There are several things the City can do to make sure our development patterns are supportive of this future growth. First, the City must review its Zoning Ordinance, one of the most impactful city tools for guiding land use, to see where Chesapeake 2045’s policies are constrained by regulation. This may mean increasing flexibility of uses, or allowing taller buildings in key zoning districts, for example.

Additionally, the City needs to better manage its current and future infrastructure and public service needs. Providing growth reports and information periodically to other departments, particularly those not closely tied into the development review process, will allow departments to strategically plan for future facilities, reallocate resources, and understand the needs of residents. For example, the Police Department may plan to realign beats based on anticipated growth.

Such reports should also illuminate where future infrastructure needs are coming. While individual developments may be required to construct some of the new infrastructure required by their projects, the incremental nature of development means that infrastructure can fall behind. For example, if multiple developments each add just a few houses to a street, none of those developments alone may necessitate additional lanes or streetlights, but over time, congestion grows.

While some of these circumstances cannot be predicted, the City can anticipate certain needs based on its policies, such as for dense redevelopment of key Greenbrier and Western Branch sites, and proactively plan or build infrastructure there. This has the dual outcome of making redevelopment of such sites more attractive.

Growth Management and Rural Areas

GMRA 8: Review the Zoning Ordinance and make necessary changes to implement the “Reinvest and Preserve” development strategy in which housing, commercial, and industrial land use densities are slightly increased to preserve open space, create pockets of density, and increase community-desired outcomes such as walkability.

GMRA 9: Periodically provide departments with growth reports that allow departments to plan for additional service needs in order to maintain a high quality of service.

GMRA 10: Proactively plan, fund, and construct necessary infrastructure improvements that will be needed to mitigate impacts from growth before those impacts are felt.

GMRA 11: Direct development and redevelopment to areas with sufficient existing or future planned infrastructure.

GMRA 12: Use the Level of Service analysis to provide information on the potential impacts of proposed developments.

GMRA 13: Periodically review the Level of Service analysis standards for any needed revisions.

Parts of Greenbrier have grown more than other areas in the City.

⬚ figure

Growth Management and Rural Areas

Rural Areas

The rural parts of Chesapeake are some of the most treasured, and they are valued by many residents, whether they live in them or not, for the heritage and sense of identity they bring to the City. It is deeply important to a lot of residents that this land is protected.

The City’s first step in preserving this land is understanding what is happening to it.

Rather than waiting until a concern arises to evaluate land transition and development trends, Council would benefit from regular updates regarding agriculture land: whether it is in use, for sale, converted, etc., and where development “hot spots” are occurring so that preservation strategies can be updated as needed. Some localities maintain a clearinghouse of this information as a resource for potential farmers as well.

— SUPPORT FOR RURAL CHESAPEAKE —

Throughout community engagement for Chesapeake 2045, residents voiced their support for rural Chesapeake.

“Rural areas should be protected and maintained.”

“PRIORITY - build ‘up’ so we can protect rural areas so we can still have horses, animals, farms, co-op growers”

“Please protect our farms and rural areas in general.”

“Protect the rural areas”

“Outdoor spaces, rural lands, farming communities and land, equestrian trails, hiking walking trails, countryside drives, wooded areas, protected watersheds”

“The rural / country / nature aspect is the reason we moved out here. It is beautiful”

“The natural rural aspect of Chesapeake needs to be protected. We have farmland that is beautiful...”

⬚ figure

Growth Management and Rural Areas

Rural Roads

Besides the importance of agriculture, rural areas simply operate a bit differently than suburban and urban areas. For example, roads historically developed in rural areas are often built without curb and gutter and are typically narrower without significant shoulder width. This means special consideration needs to be given to the use of roads for truck traffic, and the safety of farming equipment that travels on the roads between properties. These roads may need additional maintenance to mitigate the wear and tear they receive.

Rural Recreation

Another way in which the rural areas differ is in terms of recreational needs and desires. Most of rural Chesapeake will never be highly walkable or bikeable in the sense of getting to a destination from one's house. However,

⬚ figure

particularly along the attractive landscape of rural viewsheds, leisure walking and biking, without a clear destination, is an attractive activity for residents. Making safe connections is important for these uses.

Even more important to some residents is the equestrian community and the way of life, recreational or not, that comes with it. Equestrians seek trails and places they can take their horses, preferably without competing recreational users, where there is ample space for parking trailers and equipment. When planning recreational amenities, the City should keep these special interests in mind.

Zoning

The Zoning Ordinance is the primary tool dictating development in rural areas, and aside from housing development concerns (discussed more below), commercial activities are different here as well. Some farms operate activities like pick-your-own fruit and flowers, or provide rental space for weddings and other events. Some commercial activities have historically been unpermitted in the rural area, despite many properties having sufficient land, buffer, and/or parking for such uses. This is because the Zoning Ordinance has traditionally narrowly defined uses that are agriculture or agriculture-

Growth Management and Rural Areas

adjacent and does not typically apply different criteria for uses between overlay districts (although it does distinguish between permitted and unpermitted uses between overlay districts). Proactively reviewing the Zoning Ordinance to allow more flexibility of uses is another way the City can support those living on rural land. The City has already made some changes to facilitate agritourism in particular, and intends to continue reviewing the Zoning Ordinance for other opportunities that help increase agritourism.

Development Protection

Agriculture and commercial uses aside, rural Chesapeake is a desirable place to live, as evidenced by recent by-right housing development and very low vacancy rates. In 2021, Southern Chesapeake had both the highest homeownership rate (86.6%) in the City, and the lowest vacancy rate; there were only 35 vacant units available at the time of the 2021 reporting. Developers can make a compelling case to rural property owners to sell their land for residential development. While the City supports property owners’ rights to their land, there are strategies the City can implement to help reduce development that may be undesirable. Transfer of development rights (TDR) programs, discussed earlier

⬚ figure

in this chapter, are one example. The City also currently funds an Open Space and Agriculture Preservation program (OSAP), which is a purchase of development rights (PDR) program. In this, the City evaluates the development potential of applicant properties and pays the property owner the value of those development rights in exchange for placing an easement over the property preventing residential and other types of development. The property owner continues to own and live on the property and can continue to farm it or use it productively in other ways. This is a highly-supported program that must continue. Yet another way the City supports protecting rural properties is through partnerships with

Growth Management and Rural Areas

the U.S. Department of Defense. Through these programs, including the Fentress Encroachment Protection Acquisition Program (FEPAP) and MYA (Multi-Year Agreement), the City and U.S. Navy share costs to purchase and put easements on properties that may be vulnerable to development, particularly land that would cause adverse impacts for military operations if developed (see more about military partners here). The City should remain open to tools, like the TDR program, that can support landowners in protecting agriculture and rural landscapes.

Farming Villages

The City should continue to explore the concept of farming villages – housing developments where the density of the developed land is increased (without increasing the density of the parcel overall), but large tracts of open or agriculture land remain intact. Rather than creating large lot residences with multiple acres of lawn that some cannot keep up, that land is dedicated to the large pool of open space for agricultural purposes and homeowners have less land to individually maintain. While many rural residents are capable caretakers and love having many acres, this creates an opportunity for those who want to live in the rural areas to do so while allowing others to be stewards of the land.

GMRA 14: Protect the essential elements of Chesapeake’s rural areas including development pattern, aesthetic, agricultural economy, open space, and recreation activities.

Farming Village Concept Illustration

Land prior to development ⬚ figure

Traditional piano-key development ⬚ figure

Farming village ⬚ figure

Growth Management and Rural Areas

Farm buildings add to the charm of rural Chesapeake.

⬚ figure

GMRA 15: Assess the Zoning Ordinance for any regulations that should be in place to protect agriculture, such as buffers from incompatible uses, as well as opportunities to find flexibility in standards for typical rural- and agriculture-related uses in the Rural Overlay, where conditions may necessitate different requirements.

GMRA 16: When planning for new development or large capital projects, give special consideration to the maintenance needs of rural roads which may not have been built to handle increased levels of traffic and modern vehicle widths and weights.

GMRA 17: Give special consideration to the unique recreation needs of rural residents, and continue to plan for the equine community.

GMRA 18: Support and expand tools such as the Open Space and Agriculture Preservation (OSAP) and the Transfer of Development Rights (TDR) programs to protect agriculture, open spaces, and rural landscapes.

GMRA 19: Develop an ordinance to allow for farming villages, a unique style of development that allow for residences while protecting large tracts of agricultural land.

Comprehensive Plan 2045 | 172

Rural Character

For some, rural character is synonymous with the rural areas. However, in Chesapeake 2045 character is distinguished from the way that rural lands are used, and focuses on how it looks aesthetically – the open views, rural roads, barns, other farm buildings, and country fences. Protecting these characteristics can be just as important as protecting rural uses, and the City should consider these elements during projects and development.

While elements of rural character are easy to identify, the City would benefit from developing specific rural development guidelines, specifically for the Rural Overlay District. There are certain elements that apply across all rural areas, such as limiting “piano key” development, where individual lots directly line the road, reducing open views and access to land behind the piano keys. Design guidelines would help create cohesion on significant elements, though it is important that it also provide flexibility to allow for organic, creative development, and to make sure agricultural uses are not impacted.

This last point is important:

While there may be an idea about what a rural area “should” look like, it must not conflict with actual rural and agricultural operations.

For example, hedgerows are a common country aesthetic; however, they may not fit with a farmer’s crop setup, and farmers should not be required to maintain them simply to fit a certain look.

Conversely, when non-agricultural development does occur, developers should put more focus on preserving and reusing agricultural buildings and rural features so that the development stays in line with the rural character of the surrounding area.

In addition to rural development guidelines, a specific guide for rural roadways should be created. This would create local standards that developers and project managers can rely on when projects are being considered to make sure that the roadways are safely designed for expected trip volumes without inducing unnecessary traffic. As previously described, existing rural roads often function differently from suburban and urban roads; they are narrower, often with ditches, etc. They are also likely to carry farm equipment traffic. The City should increase awareness of these roadway conditions, through signage, public communications, or other means so that residents and visitors are aware of how to safely drive on these roads.

GMRA 20: Preserve essential elements of rural character including distant views of the countryside, topography, natural drainage patterns, country roads, open space including agricultural fields and pastures, fences and hedgerows, barns and other farm buildings.

GMRA 21: Create Rural Development Guidelines to be applied in the City’s Rural Overlay District.

Growth Management and Rural Areas

GMRA 22: Encourage developers to construct cluster subdivisions rather than piano key development, taking care to minimize visual impact and preserve natural features.

GMRA 23: When developing rural property for non-agricultural uses, preserve and reuse existing agricultural structures where feasible. New development should be compatible with existing agricultural structures and rural residential character.

GMRA 24: When developing rural property for non-agricultural uses, to the greatest extent possible, preserve fences, hedgerows, tree lines, and natural vegetation to protect these landscape features during construction. Retain treed areas between roads and buildings and protect these areas during construction.

GMRA 25: Develop design guidelines specific to rural roadways.

GMRA 26: Increase awareness of rural roadway conditions, including ditches, narrow shoulders, and presence of farm equipment, and how to drive safely on these roads.

Agricultural Economy

In 2022, there were 180 farms in Chesapeake, covering approximately 37,000 acres of land. The total market value of goods sold from Chesapeake was over $39 million; however, once expenses are accounted for, the net cash farm income was closer to $8.5 million. This is a relatively small impact on the City's overall economy when it is compared to the $14.5 billion in overall gross domestic product (GDP) Chesapeake had in 2023.

This is not to say that agriculture should not be supported in the City. While agriculture may not make up a substantial part of the City's economy, it is culturally important and part of Chesapeake's identity. Further, many factors are influencing the agriculture industry today: climate change, which affects plants' growing season and what farmers can grow; smart technology and automation, which makes certain tasks easier and provides data in real time; and changing economic models that make niche and small-scale farming of high-value crops more economical. Virginia is now home to the world's largest indoor vertical farming campus, an example that also shows there is room for the City's agricultural economic impact to grow. The City should work together with its farms and farmers and help them grow and evolve with the agriculture industry.

This includes creating a structure to allow for various agritourism uses, which are growing across the country, and allowing farmers to diversify their operations and income. The City must spend more time working closely with

Growth Management and Rural Areas

farmers to understand their needs and goals and develop a strategy for supporting this important industry; details on the path forward will come from future work, rather than Chesapeake 2045. The more uses that are allowed with flexibility for things such as parking, hours, and development standards, the more likely it is that neighboring properties will be impacted with noise, traffic, or other issues.

⬚ figure

Ultimately, the City must decide to what extent it will create flexibility in regulation and fund activities to support agriculture and agritourism while also balancing the potential impacts of these uses on rural infrastructure and nearby residences.

⬚ figure

Comprehensive Plan 2045 | 175

Growth Management and Rural Areas

⬚ figure

A 4-H participant brushes a goat.

There are other known steps the City can take to assist the agricultural economy. Farmers have expressed interest in exploring a City program to encourage cost-efficient fertilizers, such as biosolids and recycled waste. If the City is serious about supporting farmers, these actions should be considered for their viability. Another step the City can take is simply to help expose more residents to the industry, including events and practices, and particularly introduce children, who will be the next generation of farmers.

⬚ figure

Agricultural structures and equipment.

Finally, while agriculture is important to the rural character of the City, this should not discount opportunities to bring agriculture to other parts of the City, particularly where land would not have development potential or it can be used as a central community gathering point. Urban agriculture, the practice of growing food in more urban areas, has a place in Chesapeake, both as a way to provide food and a way to provide community, and the City’s Agriculture Department is currently learning about these systems in order to be a resource for those who would like to do it.

Growth Management and Rural Areas

GMRA 27: Work with local farmers to develop a strategy and action plan to support their businesses and potential transition towards new agricultural models including small and niche farming in the future.

GMRA 28: Evaluate the potential for expansion of the rural economy, including market for agritourism, food/beverage production, and other agriculture-related industries.

GMRA 29: Promote sustainable economic development in rural areas by leveraging the existing agricultural landscape for agritourism.

GMRA 30: Provide City Council an annual status of land in agriculture in order to understand development trends and adjust preservation strategies as needed.

GMRA 31: Explore creating a City program to encourage the use of cost-efficient fertilizers such recyclable fertilizer, biosolids, and recycled agricultural waste.

GMRA 32: Promote public education and awareness around agriculture industry, practices, and events, and introduce children to agriculture at a young age.

GMRA 33: Support opportunities for urban agriculture in the Suburban and Urban Overlay Districts, prioritizing land that does not have development potential.