shockoe bottom land use and development strategy ... bottom land use and development strategy...

Shockoe Bottom Land Use and Development StrategyRichmond, Virginia

Adopted by the Richmond City Planning CommissionNovember 15, 1999

Approved by the Richmond City CouncilJanuary 10, 2000

Prepared ByCity of RichmondDepartment of Community DevelopmentComprehensive Planning DivisionAssisted by AS&A and the Project Team

This project was funded in part from a grant from the National Park Service, U.S. Department of the Interior through the VirginiaDepartment of Historic Resources. Regulations of the U.S. Department of the Interior strictly prohibit unlawful discrimination on thebasis of race, color, national origin, age or handicap in its federally assisted programs. Any person who believes he or she has beendiscriminated against in any activity described above should write to: Director, Equal Opportunity Program, U.S. Department of theInterior, National Park Service, P.O. Box 37127, Washington, D.C. 20013. The contents of this report do not necessarily reflect theviews or policies of the Department of the Interior, nor does the mention of any trade names or commercial products constituteendorsement or recommendation by the Department.

Shockoe Bottom Planning Committee

William H. AbeloffTobacco Row/Forest City Representative

Eric AndersonShockoe Bottom Residents Association

Viktoria BadgerPrincipal Transportation Planner, City of Richmond

Kathy Emerson, Executive DirectorFarmers' Market Commission

Bill King/Larry OchsChurch Hill Association

Project TeamPrepared by the City of Richmond Department of Community Development with the assistance of:

Al Siff and Associates McKinney and Company Jon P. Weersing and AssociatesMichael Baker, Jr. Inc. Frazier and Associates

Funded in part by:• A Community Development Block Grant (CDBG) from the U.S. Department of Housing and Urban Development through the City of Richmond.

• A grant from the National Park Service, U.S. Department of the Interior through the Virginia Department of Historic Resources.

• A grant from the Virginia Department of Highways and Transportation through the Metropolitan Planning Organization (MPO).

Lynne Lancaster, Department of Economic Development,City of Richmond

James McCarthy, Executive DirectorRichmond Riverfront Development Corporation

Lucy Meade, Director of Business Development,Richmond Renaissance

Mark R. MerhigeShockoe Bottom Developer

Scott PoatesShockoe Bottom Merchants Association

Christopher P. ScottShockoe Bottom Merchants Association

Larry ShifflettShockoe Bottom Merchants Association

Terry StroudShockoe Bottom Merchants Association

Richard H. StuttsShockoe Slip Merchants Association

David WhiteShockoe Bottom Merchants Association

ACKNOWLEDGMENTS

City Planning CommissionWillard M. Scribner, ChairpersonEllen F. Robertson, Vice ChairpersonRobert E. CometAnn W. CoxJ. Terry CoxStephen V. DonahueDr. Calvin D. JamisonKenneth S. JohnsonW. Randolph Johnson, Jr.

City CouncilTimothy M. Kaine, MayorRudolph C. McCollum, Jr., Vice-MayorJoseph E. BrooksJohn A. ConradSa'ad El-AminRev. Gwen C. HedgepethW. Randolph Johnson, Jr.Delores L. McQuinnReva M. Trammell

City ManagerDr. Calvin D. Jamison

Department of Community DevelopmentS. Mark Strickler, Acting DirectorDavid M. Sacks, Principal PlannerHeywood Harrison, Senior PlannerPeggy A. Shifflett, Senior Graphics Designer

Shockoe BottomLand Use and Development Strategy

TABLE OF CONTENTS

Chapter IBackground ................................................................................. I-1

What is Shockoe Bottom ............................................................................. I-1Purpose of a Land Use and Development Strategy ..................................... I-3The Planning Process .................................................................................. I-4

Chapter IIProfile of Shockoe Bottom ........................................................ II-1

Historical Context ...................................................................................... II-1Shockoe Bottom Today ............................................................................. II-3

Transportation ....................................................................................... II-4Pedestrian Circulation ............................................................................ II-5Parking ................................................................................................... II-7Community Facilities .............................................................................. II-9Public Safety ......................................................................................... II-11Architectural Character ......................................................................... II-11Development Activities and Trends ..................................................... II-12Constraining Factors ............................................................................. II-15Existing Land Use ................................................................................. II-17Current Zoning ...................................................................................... II-21

Chapter IIIThe Shockoe Bottom Plan ....................................................... III-1

Goals For Shockoe Bottom ....................................................................... III-1Land Use Plan ........................................................................................... III-3Zoning ...................................................................................................... III-4Area Land Use Policies and Zoning Strategies ........................................ III-5Transportation, Parking, and Pedestrian Circulation .............................. III-23Preservation of Neighborhood Character ............................................... III-28The Preferred Option to Achieve Design Objectives ............................. III-31

Chapter IVPlan Implementation Strategies ............................................... IV-1

Strategies Requiring Immediate Action .................................................... IV-1Strategies to be Implemented in Years 2000 – 2005 ................................... IV-2

APPENDICESConcept of new “Mixed Use – Business” District .................................... A-1Concept of new “Mixed Use – Residential” District ................................. A-2Areas Visions and Suggested Implementation Measures Tables .............. B-1Estimated Costs to Implement Plan Recommendations ............................. C-1

FIGURESExisting Characteristics ....................................................................... I-4, II-18Street Map ................................................................................................. II-4Existing Off Street Parking ......................................................................... II-6Historic Districts Map .............................................................................. II-10Shockoe Creek Flood Plain Map ............................................................... II-14Existing Land Use Map ............................................................................. II-16Current Zoning ......................................................................................... II-20Land Use Plan ........................................................................................... III-2Area Map A .............................................................................................. III-6Area Map B ............................................................................................ III-10Area Map C and A/C .............................................................................. III-14Area Map D ............................................................................................ III-18Area Map E ............................................................................................. III-20Vehicular Circulation Map ...................................................................... III-22Illustrative Plan ....................................................................................... III-24Generalized Representation of Proposed Zoning Strategy ........................ A-5


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Chapter II Profile of Shockoe Bottom

Shockoe Bottom is a distinct urban area. The earliest roots of the City of Richmond can be traced to Shockoe Bottom. It was between current 18th and 25th Streetsthat William Byrd first laid out the town in 1737. Entering the river west of 17th Street, Shockoe Creek served as a formidable barrier to western expansion. Thetown was incorporated by act of the General Assembly in 1742, with the creek forming the westernmost boundary and encompassed one-fifth of a square mile and 250inhabitants. This character has been the driving force behind the growth and investment experienced in Shockoe Bottom in recent years. In order to fully appreciatethe uniqueness of Shockoe Bottom, this chapter includes an examination of the role the area has played in the overall development of the City. This chapter describesthe history of Shockoe Bottom, the land uses and existing infrastructure and development activity and trends. Some of the issues and challenges affecting the futureplanning of Shockoe Bottom will also be reviewed.

Historical Context

The Shockoe Bottom area encompasses Richmond’searliest residential, commercial and manufacturingactivities. Much of the area has been rebuilt since its18th century settlement. The name “Shockoe” comesfrom the name of a creek (now covered) which

formed the western boundary of the original settle-ment. Shockoe Bottom has played a significant rolein the history of Richmond.

Founded in 1707 by Colonel William Byrd, andincorporated in 1742, Richmond became a regionalmarketplace in the latter part of the 18th centurywhen it was designated Virginia’s new capital. Thegrowth of the canal and railroad systems in the 19thcentury, helped Richmond become one of the leadingcommercial cities of the South and the nation’s centerfor the processing of tobacco products. During theCivil War, Richmond was the capital of the Confed-eracy, as well as the chief manufacturing center forthe Southern war effort.

The Shockoe Bottom area’s approximately 530buildings are representative of a variety of importanthistoric themes, such as manufacturing, generalbusiness, trade, transportation, government, litera-ture, and architecture. Within its boundaries,Shockoe Bottom presents a microcosm ofRichmond’s evolution from village to metropolis.

The early 1800's ushered in a rebuilding of ShockoeBottom. The frame storefronts that existed alonglower Main Street were gradually replaced by brickbuildings that had living quarters above the stores.The “Union Row” of three stories with attics alongMain Street, west of the Stone House, represented a

classic example of this type of construction. Unfor-tunately, this row was demolished in 1913, butsimilar rows are still visible at 22nd and Main Street.

Factories began to be developed in the early 1800's.The early breweries and soap and candle manufactur-ers paved the way for the construction of fivetobacco factories that were completed in 1853.Several of these original factory buildings, such asthe William H. Grant factory at 1900 East FranklinStreet, are still standing. The increasing industrializa-tion of the area, along with the effects of primitivewaste disposal and polluted air, resulted in thegradual exodus of the residential population east toChurch Hill and to the west.

Factory development culminated at the end of the19th century and the beginning of the 20th centurywith the construction of the line of tobacco factories/warehouses between Main and Cary Streets from19th Street to Pear Street. This area reflectedRichmond’s dominant role in the tobacco industryand is known as “Tobacco Row”.

After the Civil War, the Trigg Shipbuilding Companylocated on Chapel Island in 1898, on the site of anold iron works. Industrial operations on the islandcontinued in a limited way until the city obtainedcontrol of the island in 1955.

Union Row, East Main Street, 1902-12

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Within the past 20 years, Shockoe Bottom hasexperienced a substantial change, which it is cur-rently undergoing. The relocation of tobaccomanufacturing from the area signified the beginningof the transformation of Shockoe Bottom away froma blue collar, manufacturing district to an areabecoming increasingly dominated by small profes-sional offices, restaurants, specialty retail shops andresidences.


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Shockoe Bottom Today

Shockoe Bottom, in combination with Shockoe Slipand Church Hill, represents one of the largest areasreflecting the architectural character of “Old Rich-mond.” This is an important factor in attractingrehabilitation financing and in marketing the reno-vated properties. Shockoe Bottom’s industrialbeginnings remain evident today. Within the District,approximately 95 properties are still committed tomanufacturing or warehouse use. An estimated 26industrial buildings survive from the 19th century.Although a major portion of the existing buildingstock was constructed from the turn of the century to1925, only 20 structures were built in the period

since 1954. Today, active manufacturing operationsin the area include printers, garment/costume makers,set design/construction, a bakery, a major producedistributor, a new sound studio and industrialmachine tool establishments.

Completion of the flood wall along the southern edgeof the District as far east as 21st Street has alreadycontributed to the area’s transformation. Increasedproperty sales, as well as substantial activity relatedto the adaptive reuse of former warehouse andindustrial buildings is evidence of this transforma-tion. From the time the flood wall was announced tothe present, some 37 tax credit projects, with a totalvalue exceeding $30 million have been executed. Inthe past five years, approximately 132 (nearly one-fourth) of all properties in Shockoe Bottom havechanged ownership. Less than 10 percent of theparcels are owned by absentee (out of state) individu-als or corporations, a further indication of the area’sstrength.

Shockoe Bottom is a historic, urban neighborhood,built upon two centuries of public infrastructuresupporting the movement of people and goods. Thearea also provides public places such as parks andcommunity facilities. While land uses, and needs ofmodern society continuously change, frequently thepublic infrastructure does not keep pace. The streetnetwork in particular has potential to both enhanceand detract from a community. Today, in Shockoe

Bottom, the vehicular network, the pedestrianenvironment, and particularly parking have asubstantial impact on how Shockoe Bottom functionsand its marketability as a location for commerce,residents and a visitor destination.

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TransportationStreet Network: The street network in ShockoeBottom is a traditional grid system that can beaccessed from Interstate 95 via exit ramps at 15thand 17th Streets. Additional access points includethe primary east-west vehicular corridors of CaryStreet, Main Street, Dock Street, and Broad Street.The primary north-south vehicular corridor is 21stStreet, the only street within Shockoe Bottom thatprovides two-way access from Marshall Street toDock Street.

Additional north-south vehicular access is providedon 17th and 18th Street, but 18th Street has a sectionof one-way pattern north of Grace Street. Seven-teenth (17th) Street is not a primary vehicularcorridor because of its configuration from MainStreet to Franklin Street and a conflicting one-waypattern at Grace Street. Fourteenth (14th) Street, anorth-south arterial street to the west of ShockoeBottom provides important truck and other vehicularlinkage to the east-west traffic corridors.

The remaining streets are local streets that provideaccess to various forms of development in ShockoeBottom.

General Vehicular Circulation: Despite the ease andthe use of the traditional grid system, ShockoeBottom has a number of inconsistent one-way street

STREET NETWORK


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patterns. The one-way system, while often enhancingtraffic flow, as well as vehicular and pedestriansafety, results in a confusing transportation patternand limited access to many block faces. Specificproblem areas include:

• 17th Street: Traffic is directed into itself atGrace Street. As a result, vehicles are forced toturn at Grace Street. This confusing patternresults in vehicle operators cutting throughparking lots north of the Farmers' Market toachieve their destination.

• 18th Street: A short section of 18th Street fromGrace to Broad Street is one-way north andworks in conjunction with the one-way south on17th Street. This street is capable of carryingadditional two-way traffic.

• 19th Street: From Grace Street to Main Street,19th Street is one-way south. There is nocorresponding one-way northbound street. Thisstreet is capable of carrying two-way traffic.

• Franklin Street: From 17th Street to 20th Street,Franklin Street is one-way west. There is nocorresponding one-way street east. This streetis capable of carrying two-way traffic.

• Grace Street, Ambler Street, and FranklinStreet: These present a series of one-way streetsthat provide access to parking and buildings

adjacent to Main Street Station. These areprimarily low-volume streets and could beconverted to two-way to serve a civic “festival”space parking or other space developed in thislocation.

The other one-way streets in Shockoe Bottomoperate more effectively. 17th Street between MainStreet and Franklin Street was evaluated for itsability to accommodate two-way traffic. It currentlyoperates in an effective one-way couplet with thewestern half of 17th Street that is located between theFarmers' Market and several restaurants. Thesouthbound portion of 17th Street has the potentialfor operating as a multi-function space, supportingfestivals and events associated with the Farmers'Market, while providing a needed vehicular link atother times.

The transportation strategy in Chapter IV describessuggested modifications to the street network,including streets recommended for two-way move-ment.

Truck Routing: Trucks use US routes. Existing truckroutes in Shockoe Bottom use two US Routes; USRoute 60 and US Route 360. US 60 truck traffic isrouted through Shockoe Bottom along Main Streetfrom the west. US 60 trucks travel along Main Street

to 21st Street where they travel north to MarshallStreet. Trucks then travel east to 23rd Street and turnSouth to Broad Street. US 60 then travels to the eastthrough Church Hill.

US 360 truck traffic enters Shockoe Bottom from thesouth via the 14th Street Bridge. It is routed to thewest on Main Street, turns north on 18th Street, andcontinues on 18th Street through the district. Thesouthbound movement of US 360 is routed on 17thStreet to Grace Street to 18th Street using a sectionof the one-way couplet.

Trucks generally use many of the roads in ShockoeBottom. The available data on truck routes andlevels of usage in the Bottom pertains to usage of18th Street. These data indicate that about 10percent of the total traffic along this corridor is trucktraffic. Truck restrictions in Shockoe Bottom aredifficult to enforce since many trucks are localdelivery trucks destined to facilities located in AreaA and Area A/C. The recommended routing oftrucks is described in Chapter III.

Pedestrian CirculationShockoe Bottom generates a significant amount ofpedestrian traffic. Downtown office workers walk torestaurants, visitors walk from parking lots to variousbusinesses and visitor attractions, and

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OFF STREET PARKING MAP

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FIGURE 2


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residents walk to both employment opportunities andlocal businesses. Although almost all of ShockoeBottom is served by public sidewalks, there are anumber of areas and conditions which discouragepedestrian circulation. While substantial investmenthas occurred in recent years, some critical pedestrianlinks remain inadequate. Both sidewalk quality,lighting and other street amenities, complementary ofthe quality of the environment, often do not exist.There is not a consistent type and level of lightingand sidewalk paving throughout Shockoe Bottom.This is particularly important to Tobacco Rowresidents who must use Main and Cary Streets, themost important pedestrian link between the Farmers'Market Area, which contains the entertainment/restaurant activities, and the Residential Area.

Currently there are no good pedestrian connectionsfrom Tobacco Row to the Farmers' Market Area,from Shockoe Bottom to Shockoe Slip or fromShockoe Bottom to the Canal Walk. These short-comings should be the highest priority for remedy inthe near future in anticipation of the increasedpedestrian traffic resulting from the Multi-modalTransportation Center at Main Street Station and theCanal Walk.

At the present time, the largest concentration ofpedestrian traffic is in the Farmers' Market Area.Restaurants and other entertainment uses located inthe area generate most of the pedestrian traffic. This

foot traffic is expected to increase with the revitaliza-tion and increased activities of the Farmers' Marketand additional rehabilitation of buildings in the area.New lighting, reconstruction and upgrading ofsidewalks, and streetscape improvements will beneeded throughout the Farmers' Market Area toaccommodate the anticipated rise in pedestriantraffic.

Sidewalk encroachment for outdoor service by somerestaurant establishments has restricted pedestrianmovement on the existing sidewalk in the 1700 blockof Main Street with apparently little or no designconsideration given to the impact on pedestriancirculation. Careful evaluation of the existingsidewalk widths and other streetscape amenitiesshould be taken into consideration during theencroachment approval process to ensure thatoutdoor dining spaces do not become impediments topedestrian movement.

Streetscape improvements already in place along18th Street between Main Street and Grace Street areintended to accommodate the existing heavy pedes-trian traffic that occurs within that part of the district,especially on weekends. However, access to the corearea of Shockoe Bottom is usually gained by parkingat locations removed from the core and walking to it.These pedestrian routes also need to be improved ifthe area is to retain its development momentum.Specific recommended sidewalk and lighting

improvements are described in Chapter IV.

ParkingThe Off-Street Parking map, Figure 3, depicts thelocation and type of current off-street parking, andthe location and restrictions associated with on-streetparking spaces.

A total of 6,820 parking spaces are located inShockoe Bottom. Of these spaces, 5,626 (82% oftotal) are off-street spaces and 1,194 (18% of total)are on-street spaces. The on-street spaces arerestricted in many locations. Some spaces are notavailable during the morning or late afternoon peakperiods and many other spaces are limited to one ortwo hours.

Surface parking lots that are available to residents,employees and visitors are widely scattered through-out the area, but they are inconvenient to use, andpoorly lighted.

The table on page II-8 shows the supply and demandequations for the Areas that have been delineated forShockoe Bottom. The demand figures provided arebased on the assumption that the buildings were fullyoccupied. Currently, not all buildings are fullyoccupied, yet there is a perception of a parkingshortage in the core areas of Shockoe Bottom. As

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buildings are rehabilitated and redeveloped, theperception of a lack of parking supply will intensify.

Parking Supply and Demand in the Shockoe BottomAreaThe total parking space demand generated by landuses within Shockoe Bottom is 7,684 spaces. Thedemand exceeds the existing supply by 864 spaces.The greatest need for additional parking occursadjacent to the state office buildings on the westernedge of the study area, and in the heart of theFarmers' Market area. Parking deficits also exist inthe blocks that are located along the edge of theTransition Area (A/C), and in the Residential AreaC).

The notion of excess parking supply, however, issomewhat deceiving. Excess parking exists becauseof large surface parking lots in the Broad StreetCorridor (Area B) and the parking deck located on14th and Cary Streets in the Shockoe Slip (Area E).These parking areas serve primarily as parkingsupply for the State office complex and MCVfacilities to the west on Broad Street and for ShockoeSlip. The excess capacity that does exist in theseAreas is used to meet parking demand not generatedwithin Shockoe Bottom.

The preliminary data indicate that there is a lack of

parking within the Farmer’s Market Area, whichcontains many of the restaurant, retail, and entertain-ment establishments that draw people to ShockoeBottom. The lack of parking in the Farmer’s MarketArea means that people have to park in other areasthat are remote to their destination.

Where there is excess parking space, the quality ofparking is often substandard. In the evening, there isexcess parking in the Broad Street Corridor andShockoe Slip but the substandardon-site conditions and the substan-dard conditions of the surroundingstreetscape limits widespread use.These are certainly factors thatmost people consider when lookingto park and gain access to theFarmer’s Market Area, an areaalready generating more parkingdemand than it can handle. Thus,the primary need in ShockoeBottom is to provide:

• Additional, adequately lit,and well designed parkingareas at the western andnorthern edges of Area A,and accessible (within 400to 500 feet) to the core

P a rk in g D e m a n d a n d S u p p ly in th e S h o c k o e B o tto m A re a

A re a S u p p ly D e m a n dS u rp lu s/

D e fic i tA 2 ,062 2 ,975 -913

A /C 400 773 -373A & B 236 78 158

B 1 ,115 462 653B & A /C 52 44 8

C 1 ,086 1 ,481 -395D - - -E 1 ,571 345 1 ,226

S ta te 298 1 ,526 -1 ,228T O T A L 6 ,8 2 0 7 ,6 8 4 -8 6 4

uses.• Improved lighting, on-going maintenance

and safety features for parking locations inother areas.

The Canal Walk along Dock Street and the Multi-modal Transportation Center are two immediateprojects that will have an effect on the transportationsystem in Shockoe Bottom with respect to parkingand related pedestrian movement.


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The primary impact of the Canal Walk will be toincrease the demand for parking and a relatedincrease in pedestrian activity in Shockoe Bottom.Parking decks and pedestrian improvements toimprove access to the Canal Walk are included in theplan to address the impacts of the Canal Walk.

Activation of Main Street Station re-introducesextensive rail passenger service to downtownRichmond. Amtrak train service is planned to beginin 2001 with four to six trains daily to Washington,DC and Newport News, Virginia, and will serve anestimated 68,400 passengers in the first year ofoperation. Amtrak service is projected to increase to16 to 17 trains per day by the Year 2005 and serve anestimated 232,900 passengers. The demand for longterm parking to serve these passengers will be met bya new parking deck west of Main Street Station at thecurrent site of the state Consolidated Laboratoriesand by a surface parking facility under Interstate 95.Short-term parking demand for cars is to be providedby the surface lot east of Main Street Station.

Greyhound bus service, as part of the Multi-modalTransportation Center, is also scheduled to belocated at Main Street Station in year 2005. Long andshort-term parking generated by Greyhound busservice will be minimal and will share the parkingareas provided as part of the re-activation of MainStreet Station.

Bus usage at the facilty will be as significant as thecurrent station on the Boulevard, which serves over800,000 riders annually, half of which transfer toother buses in Richmond. Up to 65 buses serve theBoulevard station daily.

No bus maintenance facilities are proposed to berelocated to the Multi-modal Transportation Center.All Greyhound bus movements will be concentratedwest of Main Street Station. The incorporation ofGreyhound bus service in the Multi-modal Transpor-tation Center should not generate any adverse effectson the Shockoe Bottom transportation network.However, the Multi-modal Transportation Centershould be monitored to ensure that there are nonegative spillover effects such as Amtrak parking onlocal streets, or heavy Greyhound bus traffic withinthe pedestrian areas.

Community FacilitiesCurrently community facilities serving, or availableto, Shockoe Bottom property owners, residents andvisitors are limited to the following Recreation andParks Facilities:

• Canal Walk: A key element of the Canalrestoration provides for pedestrian circula-tion from the Tredegar Iron Works/NationalPark Service Visitor Center at the west endof the canal to Great Ship Lock Park at theeast end of the canal, the entire length of the

restoration effort.

• Great Ship Lock Park: A small passive parkat the eastern end of the canal corridor at thebeginning of the City Dock section of theJames River and Kanawha Canal

• Taylor’s Hill Park: An area of open space atthe northeast corner of Franklin and 20thStreets adjacent to the Transition Area at thenortheast corner of Franklin and 21stStreets. The severe topography of the siteprecludes development of the park.

• Farmers' Market: An open air public,providing an outlet for fresh farm products,produce, specialty foods, arts and crafts, aswell as antiques and collectables. TheFarme''s Market also includes a variety offamily events throughout the year.

• Jefferson Park: A passive park at thenortheast edge of the Broad Street Corridorarea. The park lies in the Church Hillneighborhood and provides open space andplay area.

• Main Street Station: In the planning stagesfor development as a multi-modal transpor-tation center.

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HISTORIC DISTRICTS MAP

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FIGURE 3


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Public SafetyWhile not noted as a “high crime” area, ShockoeBottom has benefited from police efforts to controlincreased vehicular cruising and heavy crowds onweekends and during some festival activities in theFarmers' Market Area. The potential for crime andaccidents is increased by poor lighting, confusingcirculation patterns, poor sight lines at many intersec-tions and a lack of safe off-street parking in the area.

Architectural CharacterThe desire to preserve Shockoe Bottom’s richarchitectural history has resulted in the designation ofthe Shockoe Valley and Tobacco Row NationalRegister District, the Shockoe Valley City Old andHistoric District, and St. John’s National RegisterDistrict and City Old and Historic District . ShockoeBottom is almost entirely covered by these districts.

One focus of this plan is to identify one or moremethods to preserve the wealth of architecture inShockoe Bottom as revitalization occurs. Thehistory of urban development is replete with thesacrifice of architectural character, or the sacrifice ofthe building elements that provide that character.More often than not this sacrifice is condoned in theexuberance and enthusiasm for “new” development.The buildings that generate this character are avaluable resource and care must be exercised topreserve them.

Types and Boundaries of Current HistoricDesignationsThere are currently two general types of historic

designations within the Shockoe Bottom study area.In parts of the area, these designations overlap oneanother but do not have the same borders. These twodesignations are known as the National RegisterDistrict, and City Old & Historic District and areshown the Historic Districts map, Figure 4. A moredetailed description of the implication of these twotypes of designations is included in the Appendix.

The Shockoe Valley & Tobacco Row NationalRegister District: This designation covers most ofwhat commonly is known as Shockoe Bottom. It is astate and federal designation and includes approxi-mately 400 buildings in this district. It does notrequire any design review process unless the propertyowner decides to take advantage of state and federaltax credits that are available under this designation orotherwise use federal funds (i.e. Community Devel-opment Block Grant) for rehabilitation.

Shockoe Valley Old & Historic District: Only a smallsection of the National Register District (18th to 21stStreets and Franklin to Marshall Streets) is includedin this City of Richmond designated district. Anyexterior change to the property of property ownerswithin this district is subject to review by the City ofRichmond Commission of Architectural Review.

Saint John's Church National Register and Old andHistoric District: This historic district is immediatelyadjacent to Shockoe Bottom. The oldest historicdistrict in the City, its boundaries begin at 21st Streetand at the alley north of Main Street and continuesnorth to include Broad Street. The City designated

Old and Historic District and the Federally and Statedesignated National Register District maintainessentially the same boundaries.

Individual Landmarks and other structures: Thereare also several properties within the NationalRegister District that also are individually listed onthe National Register. They are:

• Old Stone House (Edgar Allen Poe Mu-seum), built prior to 1740 at 1916 East MainStreet is the oldest structure in the City ofRichmond.

• Adam Craig House built in c.1787, on thenorthwest corner of Grace and 19th Streets.

• Mason’s Hall built in 1787, at 1807 EastFranklin Street is the oldest Mason Hall incontinuous use in the Unites States.

• 17th Street Market established in 1780 is theoldest continuous farmer's market in the

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Development Activities and TrendsOver the past decade with the anticipated completionof the James River Floodwall and a growing interestin Shockoe Bottom, the area experienced a signifi-cant amount of private investment and developmentactivity. Much of this was facilitated by historicpreservation tax credits, the City's real estate taxabatement program and by a general awareness ofopportunity and commerce of Shockoe Bottom in ahistoric and desirable environment. There has alsobeen an abundance of older, mostly manufacturingbuildings of appropriate quality and style to providerehabilitation and business location opportunities.This trend is expected to continue as industrial usesrelocate, continuing to add opportunities, and asinvestment tax credits and the local tax abatementprograms remain.

There are several significant projects in the planningor development stages which are expected to have asignificant presence and influence in ShockoeBottom.

The Multi-Modal Transportation Center at MainStreet Station: Main Street Station is expected tobecome a regional transportation hub by 2005. Withpassenger rail service and eventually intercity busservice and high speed rail to the Northeast corridor,the activities associated with the station can poten-tially generate both positive and negative impacts forShockoe Bottom. The development plans for MainStreet Station provide for most of the primary

country.• Pace-King house built in 1860 at 205• North 19th Street.• Main Street Station built in 1900 at 1520

East Main Street.• Seaboard Bldg built in 1909 at 1500 East• Franklin Street


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vehicular access and parking, interstate bus service,and the main pedestrian entrance to occur on the westside of the Station. Although the station will bringhundreds of thousands of patrons through ShockoeBottom, the vast majority will be simply passingthrough or making transfers to other bus routes. Theimpact of the bus patron market on the existingShockoe Bottom businesses will likely be reflectiveof a small minority of total ridership using thestation. The Main Street Station will add to thedemand for parking in Shockoe Bottom. Thisdemand will come from both employees and patronsrequiring both long and short-term parking. Theopportunity to address short-term parking allows forproviding short-term visitor parking for ShockoeBottom, as well.

In order to maximize the potential of the station, it isimportant to create certain pedestrian amenities, suchas drop off areas, plazas and enhanced sidewalkconnections. A drop off area and a surface parkingarea are currently recommended under elevatedInterstate 95 and the railroad trestles across from thestation front. Grading of the area to accommodatethe surface parking will be needed to allow walkwaysto provide pedestrian access to the station andpedestrian linkages to the Shockoe Slip area by wayof Cary Street.

Canal Walk: The Canal Walk Project includes 17thStreet as a major pedestrian link to the Canal.Increased pedestrian traffic in the area is anticipatedas visitation to the Canal increases with developmentand activity along the Canal. Parking demand will

also likely increase, and additional parking willultimately need to be provided to support furtherCanal Walk development.

Eventually, the canal walk will extend east to GreatShip Lock Park and along the edge of the JamesRiver to the City limits. The theme and program-ming along this stretch of the canal will be slightlydifferent as there will not be the adjacent develop-ment of the magnitude expected along the sectionwest of 17th Street. There are, however, opportuni-ties to link the canal walk and canal boat operationswith the Tobacco Row development and enhance-ments to Chapel Island.

Tobacco Row: An adaptive reuse project in this areais using historic tax credits to convert the abandonedtobacco factories and warehouses into a mixedresidential commercial area. Tobacco Row may bethe most powerful single influence on development inthe Shockoe Bottom District. Since 1988, the projecthas added more than 600 housing units to the area.

Tobacco Row properties will continue to be con-verted from factory/warehouse buildings to buildingsthat are predominantly residential use. The TobaccoRow housing units are anticipated to number morethan 1,000 in the next five to six years. It is alsoanticipated that some existing floor space will bedeveloped for office and commercial uses. Theability of the owners to meet the requirements forparking on their current properties (some withinexisting buildings) will aid in the effort to maintainthe architectural character of Tobacco Row and the

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SHOCKOE CREEK FLOOD PLAN MAP

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FIGURE 4


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surrounding area.

It is likely that the Tobacco Row development willalso include a substantial retail component on thenorth side of Main Street to serve the growingresidential markets of Shockoe Bottom and ChurchHill.

Population growth, anticipated to continue as a resultof adaptive reuse and in-fill construction over thenext ten to twenty years, will exert a substantialimpact on development in Shockoe Bottom. Thispopulation growth is expected to generate a marketfor more commercial and service uses, along withother amenities, such as active recreation areas, tomeet the daily needs of a residential population.Population growth is expected to make the area moreappealing for office use and provide market supportfor the revitalization of the Farmers' Market as itseeks to re-establish itself as more than a producemarket outlet. A mature population may also deterthe growth of drinking establishments with verylimited menus that cater to a younger population. Theconsequences of an abundance of these establish-ments have recently begun to exert a negative imagewithin the pedestrian oriented part of the district.

Constraining FactorsDespite the positive directions and optimism seen inShockoe Bottom, there are a number of factors whichconstrain some of the positive opportunities expectedin the Bottom.

The Shockoe Creek Flood Plain: Although sub-

stantially diminshed with the construction of theflood plain, it was not entirely eliminated, as shownon Figure 4. Within the floodplain, residentialdevelopment is not permitted unless some provisionfor access during times of flooding can be provided.

Loving’s Produce: Loving’s Produce is a majordistributor of produce to restaurants and institutionsin the Richmond region and operates about 30 trucksto sustain the business. This distribution business sitsbeside the Old Main Street Station property and wasonce served by a rail siding that crossed Broad Streetand paralleled Crane Street. Rail service has beendiscontinued and tractor-trailer trucks now supplyinventory for the business. The company also ownsseveral other parcels in the immediate vicinity (atotal of approximately 4.6 acres) and parks its fleet ofsome 30 trucks used to supply its regional customers,on one of the parcels at 17th and Grace Streets.

Continuous long-term use of this wholesale operationwill deter revitalization of the area. The acquisitionand relocation of Loving’s Produce to anotherlocation in the City of Richmond that is suitable for aproduce distribution business needs to be part of thestrategy for redevelopment in Shockoe Bottom.

Commonwealth of Virginia: Both a powerfulneighbor and a property owner in the western part ofShockoe Bottom, the Commonwealth of Virginia is amajor factor in the strategy to achieve successfuldevelopment of the Multi-Modal TransportationCenter and Shockoe Bottom. The Commonwealth

controls the Main Street Station site proposed to bedeveloped by the City of Richmond as a multi-modaltransportation center.

No less important, is the impact of state employeeson the available parking spaces in the western part ofthe Shockoe Bottom District. These employees parktheir vehicles in the area from 15th to 18th Streetsbetween Main and Broad Streets and preempt thedaytime parking spaces that would normally beavailable to visitors to commercial establishments inthe Shockoe Bottom District. These employees parktheir vehicles in the area from 15th to 18th Streetsbetween Main and Broad Streets and preempt thedaytime parking spaces that would normally beavailable to visitors to commercial establishmentsinShockoe Bottom. Therefore, a developmentstrategy must be developed to include the Common-wealth regarding joint use of their existing parkingfacilities and the development of a parking structureor parking structures to serve the immediate daytimeneeds of the Commonwealth. This strategy willrequire persistent, on-going effort to convince theState to undertake the development required toeliminate the State employee impact on parking inthe district.

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EXISTING LAND USE MAP

FIGURE 5

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Existing Land UseShockoe Bottom is comprised of a mixture of landuses, with general concentrations of types within fiveclosely defined areas. The extent of these uses isshown on the Existing Land Use Map, Figure 5. Inthe westernmost portion, particularly within a threeblock radius of the Farmers' Market, there is a mix ofretail/commercial, residential, office and public uses.Industrial and warehousing uses dominate the areaaround 21st Street, generally in the center ofShockoe Bottom, while the eastern portion isdominated by the former Tobacco Row warehousesand factories, most of which have recently been, orare in the process of being converted to residentialuse.

The existing land use pattern and recent trends inland uses can best be described within the followingdefined areas of the District: (see PredominantExisting Characteristics Map, page II-16).

because they are vacant and in poor condition.

Area B - Broad Street Corridor:This area, north of Broad Street, along 17th and 18thStreets is made up of substantial buildings designedfor industrial/commercial uses which are not alloccupied. A few commercial and office uses frontthe Broad Street corridor from the west projectboundary to 18th Street and beyond. Broad Streetfrom 18th Street eastward serves as an edge to thedistrict. The buildings tend to be larger; however,almost one-half are single story buildings. Much ofthe land area is not developed, is used for surfaceparking, and gives the Broad Street corridor an open,unplanned character. Nearly half of all the buildingsin Area B are vacant.

Area C - Residential Area:East of 19th Street, the buildings on the south side ofMain Street start to lose their individual storefrontcharacter, steadily progressing to the larger tobaccowarehouse/factory buildings constructed in the late19th and early 20th centuries. Only one newstructure has been constructed since 1927, a newapartment building built in 1997, on the southwestcorner of Main and Pear Streets. Most of thestructures in this area, south of Main Street, are two-and three-stories in height; only two structures aresingle-story. Building use is varied: nine buildingsare still used for manufacturing or warehousing, threebuildings are used for offices, eight buildings areprimarily in retail and restaurant use, and four formerfactory/warehouse buildings have been converted tomulti-family residential. Earlier demolitions have

Area A - Farmers' Market Area:This area is characterized by small buildings (gener-ally not more than three stories in height) that aredefined by individual storefronts. General commer-cial uses predominate, including a proliferation oflocal restaurants, bars and places that provide livemusic. These establishments are concentratedaround 17th Street, 18th Street, and the 1700 blocksof Main and Franklin Streets. The predominance ofthese uses has resulted in the public identifying thisarea as an entertainment district. A majority of thebuildings are at least two stories in height; some threestories. In some cases, upper floors are devoted torestaurant uses, particularly in the core of the district.The largest operational commercial uses in ShockoeBottom are concentrated in Area A.

Retail uses are scattered throughout the Areaparticularly along 17th and 18th Streets and, inalmost all cases, occupy their building’s ground floor.Some auto service uses are located along 18th Street.Adaptive reuse of buildings for residential units hasoccurred primarily on upper floors of buildings alongthe southern edge of the area. Major public usesinclude the Main Street Railroad Station (currentlyoccupied by State offices), the Farmers' Market, andthe Farmers' Market surface parking area. Surfaceparking lots are also located on the fringe of the area,mostly to the west, with the State parking lotssurrounding the Main Street Station property.

Many uses in the area are housed in buildings thatwere constructed prior to 1900. At least three ofthese older buildings are considered threatenedFarmers' Market

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PREDOMINANT CHARACTERISTICS MAP

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FIGURE 1

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http://www.richmondgov.com/forms/docs/online/shockoebottom/predom.pdf


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resulted in gaps in the urban block face and, in someinstances, left no block face at all. Surface parkingareas exist, primarily to serve the multi-family units.

Area A/C - Transition Area:This overlaps the Farmers' Market and the Residen-tial Area and reflects its nature as a transition areabetween the smaller commercial buildings and mixeduses in Area A and the larger tobacco warehouses/factory buildings in Area C, the easternmost portionof the study area.

The district’s most historic properties are located inthe transition area. The Pace-King House on l9thstreet is currently used as office space. The StoneHouse, home of the Edgar Allen Poe Museum islocated on East Main Street. The Shockoe BottomArts Center is located in a former factory/warehouseat the southeast corner of Grace and 20th Streets,offering the potential for the creation of a culturalfocus along with the Edgar Allen Poe Museum twoblocks to the south. East of 20th Street the buildingsbecome larger and are more industrial in scale andcharacter. A substantial amount of land within thisarea is undeveloped and affords an opportunity forinfill development. Indicative of the area’s diversityare the warehouses and manufacturing facilities inthis area that appear to have been constructedbetween 1940 and 1954.

Area D - Canal Related Area: This area, whichincludes Chapel Island, forms the southern edge ofShockoe Bottom. The Canal Related Area extendsfrom 14th Street on the west, to just beyond PearStreet on the east, and between the northern right-of-way line of Dock Street and the Floodwall on thenorth to the James River on the south. The canalruns through the entire length of this area. Landuses are industrial and public. Industrial use reflectsthe presence of the Norfolk Southern Railroadthrough Chapel Island and the CSX elevated trackson the trestle that runs parallel to Dock Street as faras Pear Street. At Pear Street, both railroads turnslightly to the north where Norfolk Southern crossesunder Ash Street and CSX crosses over Ash Street.

Chapel Island encompasses four significant publicuses:

• a city park on the eastern third of the island,accessed across the canal lock from GreatShip Lock Park.

• a Norfolk Southern rail line and small railyard on the southern edge of the islandadjacent to the canal.

• a covered storm water retention basin; anessential element of Richmond’s wastewater treatment program.

• a small canal boat marina and maintenancefacility.

Area E - Shockoe Slip Gateway Area:Area E falls mostly outside the study area. It beginsat 12th Street on the west, terminates at the westernedge of Interstate 95 on the east, and lies betweenCanal Street on the south and Main Street on thenorth. This area incorporates most of the revitalizedcommercial and retail properties of Shockoe Sliparea and significant parcels of both vacant land (theresult of private demolition) and surface parking. Alarge privately-owned parking deck is located at thenortheast corner of 14th and Cary Streets. Thedeveloped area between 14th Street, Cary Street,Dock Street, and the elevated tracks to Main StreetStation is in predominately commercial use.

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EXISTING ZONING MAP

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FIGURE 6

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Existing zoning in Shockoe Bottom consists prima-rily of M-1 Light Industrial and B-5 Central BusinessDistricts, with M-2 Heavy Industrial zoning south ofCary Street. The zoning pattern is very irregular, withmany instances of B-5 and M-1 existing on abuttingproperties and directly across streets. Historically,the entire area was zoned Industrial.

The current zoning pattern is a result of numerousindividual sites and small areas having been rezonedfrom M-1 to B-5, in accordance with city policy toaccommodate adaptive reuse projects. Rezonings thathave taken place since 1985 are mostly concentratedin the area west of 21st Street. The rezoning actionswere primarily to enable residential use and eliminateoff-street parking requirements for non-residentialuses. In 1985, the portion of the Tobacco Row areabetween Main and Cary Streets east of 24th Streetwas rezoned to B-5 to accommodate residentialadaptive reuse. B-5 zoning in that portion of ShockoeBottom has since been expanded. Although thearea’s zoning was studied in 1979, there has been nocomprehensive rezoning of the Shockoe Bottom areasince the 1960 City-wide rezoning effort.

M-1 Zoning DistrictM-1 zoning has been recognized for some time asinappropriate for most of the Shockoe Bottom area.It allows a broad range of potentially incompatibleland uses, prohibits residential use of any type, and

includes parking requirements that may be excessivefor much of the area. M-1 zoning contains no designstandards, guidelines or review process, and gener-ally does not reflect what is envisioned as the futureland use and character of the area.

The City’s policy has been to encourage rezoningfrom M-1 to B-5 by considering individual requestsfrom property owners. The piecemeal rezoningapproach has resulted in an irregular overall zoningpattern. However, many property owners havesought to retain M-1 zoning because of its perceivedgreater flexibility and its accommodation of existingindustrial uses.

B-5 Zoning DistrictThe B-5 District was created, and first applied in1976, for purposes of encouraging adaptive reuse inthe Shockoe Slip area and to distinguish the areafrom the central business area. The B-5 District isgenerally considered to have been effective inenabling the successful development of ShockoeSlip. The B-5 zoning permits residential use abovethe ground floor of buildings with no density or floorarea limits, and requires off-street parking only forresidential and hotel uses. Only one parking spaceper four dwelling units is required for residentialuses.

Other notable features of the B-5 District are:• fairly restrictive, pedestrian-scale sign

Current Zoning

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standards, including prohibition of free-standing signs and billboards

• prohibition of most “heavy” business andhighway oriented business uses

• prohibition of “drive-up” facilities, such asATM machines, banks, drug stores and fastfood restaurants

• a broad range of permitted retail, personalservice and office uses.

Another unique feature of the B-5 District is aprovision to accommodate improvement, reconstruc-tion and limited expansion of existing nonconforminglight industrial uses. This provision is intended toease the transition from industrial to other uses inmixed-use areas undergoing change. It enablesexisting industrial and warehouse use of buildings tocontinue without most of the typical nonconforminguse restrictions until such time as adaptive reuse canoccur. This provision may be particularly useful inportions of Shockoe Bottom as a means of easingland use transitions over time.

The B-5 District has been relatively effective inaccommodating the early stages of adaptive reuse inShockoe Bottom. However, with the creation of amore definitive long range plan and developmentstrategy for the area, substantive modifications in tocurrent zoning provisions will be needed for thelonger term development of the area. Particularshortcomings of the B-5 District for application in

most portions of Shockoe Bottom are:• no design guidelines or review process

exists to aid in preserving the area’scharacter

• the current 60-foot height limit that is notconsistent with the predominant character ofbuildings in much of Shockoe Bottom

• no parking requirements for most uses, buta parking requirement for residential usethat may be lower than what is normallyneeded for large-scale and infill residentialprojects

• prohibition of ground floor residential use• no density or bulk regulations for new infill

residential development• lack of provisions to promote a pedestrian

orientation.


III-1

Chapter III The Shockoe Bottom Plan

The Land Use and Development Strategy for Shockoe Bottom is intended to describe a future, desired condition, as well as provide guidance for achieving this vision.This objective has been expressed in the Vision for Shockoe Bottom contained in the 1997 Downtown Plan. This plan for Shockoe Bottom, appropriately, providesland use and development guidance with far more specificity than any City-wide or Downtown-wide plan. This chapter of the plan addresses land use, transportation,architectural character, parking, urban design, and zoning and provides specific policy guidance and development strategies for each. As described in the previouschapter, the land use pattern in Shockoe Bottom varies greatly depending on the particular area. Similarly, the community desires and visions for these areas and thedevelopment and regulatory strategies must reflect these differences. The land use element of this Plan, therefore, is presented for six areas, since distinct strategieshave been developed and tailored to each. Along with the land use recommendations, each area has a specific corresponding zoning strategy.

Goals For Shockoe Bottom

Three major goals for Shockoe Bottom have beenestablished, which reflect the vision of the DowntownPlan and the community's desires for this area. Allof the policies and strategies in this Plan have theirfoundation in one or more of these goals.

Land UseRetain Shockoe Bottom as a mixed use area withspecific emphases and limitations tailored to specificareas of Shockoe Bottom.

Architectural and Community CharacterMaintain elements of the historic character whichdefine Shockoe Bottom for both private developmentand public spaces.

TransportationEnhance the opportunity and environment of streetlevel pedestrian activity; facilitate the efficientmovement of vehicles; and provide parking opportu-nities.

The Shockoe Bottom District willplay several important roles in thefuture of Downtown. It will becomean even more diverse and distinctlymixed use neighborhood, as well asthe center of Richmond’s transitsystem. The district will continue tosupport a lively arts and entertain-ment community, and will be hometo a substantially greater number ofresidents. The Shockoe BottomDistrict will continue to evolve in amanner that respects its architec-tural character and protects thehistoric context of the area andsurrounding neighborhoods...

City of Richmond Downtown PlanOctober, 1997

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LAND USE PLAN GOES HERE

FIGURE 7

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From its historic roots to the present-day, Shockoe Bottom has always been an area of mixed uses. In the lastten years since the beginning of floodwall construction, a trend has emerged that indicates a shift from anindustrial and commercial emphasis to one of retail, commercial and residential uses. A strong public usepresence has also been developing as a result of State and City activity. The State is seeking office space andemployee parking, while the City is interested in reestablishing passenger train service at the Main StreetStation, continuing efforts to link and restore segments of the James River and Kanawha Canal, and revitaliz-ing and expanding the Farmers' Market. All of this public activity is focused at the western and southernedges of Shockoe Bottom and the retention and limited expansion of the public land use is warranted toachieve the district goals.

Land Use Plan

The Land Use Plan for Shockoe Bottom retains theconcept of "mixed use” that evolved with its initialdevelopment just east of Shockoe Creek in 1707. Amix of residential, commercial, and industrialbuildings has remained a part of Shockoe Bottom’sland use pattern to this day. However, the land useplan recognizes, and builds upon, the gradual shifttowards a commercial and residential emphasis to acontinuation of the gradual phase out of manufactur-ing, distribution and warehousing uses.

Land Use Plan MapThe Land Use Plan Map, on the facing page,provides a depiction of the predominant land usesenvisioned for Shockoe Bottom and a graphicpresentation of the policies, development guidelinesand strategies contained throughout the Plan. It alsoconsolidates the land use recommendations providedfor each of the Areas within Shockoe Bottom.

More specific land use policies, and the strategies onwhich they are based, is provided in later pages in thedescription for each of the areas.

III-4


Adoption of appropriate zoning implementationmeasures is needed to achieve the land use goals andto implement the Land Use Plan for ShockoeBottom. Zoning objectives and strategies, includingcreation of two new zoning district classifications,are described in concept form in the followingsection for each of the Areas in Shockoe Bottom.They are derived from the “Areas Visions andRecommended Implementation Measures” tablesincluded in the Appendix.

The measures shown on the tables, and repeated indiscussions for each Area, represent a consensusreached through discussion of issues at numerouscommunity meetings over a one-year period. Theyhave been refined and modified, as needed, to reflectaccepted zoning practices and the context of the Cityof Richmond’s Zoning Ordinance. These measureshave been developed into specific zoning conceptrecommendations.

The suggested zoning concepts are intended to retaina “mixed use” character for each area and helpachieve Area “visions.” The concepts reflect thedifferences in land use and development characterenvisioned among the various Areas. The final stepsin implementing the zoning strategies are for the Cityto:

1. Use the concepts as a guide to developspecific amendments to the zoning ordi-nance (Chapter 32 of the City Code)

Zoning 2. Revise the Official Zoning Map to apply theproposed zoning measures to the appropri-ate areas within Shockoe Bottom.

Keys to implementation of the Area visions are: (1)ensuring that the scale and character of infill devel-opment are appropriate to each area, and (2) preserv-ing the character of the area - especially its historicproperties. Achieving these objectives will dependlargely on application of design guidelines and adesign review process.

It is critical that the zoning measures describedhere be developed and applied in concert withdesign and preservation measures, if the overallimplementation strategies are to be effective andapplied in an efficient manner.


III-5

Area Land Use Policies andZoning Strategies

The following pages outline land use policies andzoning strategies recommended to achieve the visiondescribed for each Area.

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AREA A MAP

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FIGURE 8


III-7

parking areas should be located in centers ofblocks, accessed from alleys whereverpossible.

• Adequate space to support the increasedrole of festivals and events in attractingvisitors and promoting a positive imageshould be made available. The mostappropriate location for multi-functionspace is the Farmers' Market parking lot,which should be programmed for events, asneeded, and used for short- term parking atall other times.

• Mixed uses within the commercial core ofthis area, with first floor retail, personalservice or restaurant uses should be encour-aged. Ground floor residential uses shouldbe discouraged. New commercial develop-ment should be of a scale compatible forthis area.

• Encourage the incorporation of retailactivity oriented to travelers at the multi-modal transportation center at Main StreetStation. Parking structures associated withMain Street Station should be developedwith the opportunity for first floor retail useswhere they abut or face other retail uses.

• Infill development in this Area for smallscale retail, office or service uses, or anycombination of those uses.

Area A –Farmer’s Market AreaThe Farmers' Market Area is quite different from therest of Shockoe Bottom, as it appears to have beenthe most predominantly mixed use area in ShockoeBottom. The Farmers' Market Area contains amajority of the two and three story buildings origi-nally designed for first floor commercial use withresidences above the first floor. These are generallyfound along Main, 17th, Franklin and 18th Streetsand are ringed by larger buildings designed formanufacturing and other nonresidential uses. Thishas been, and will continue to be, the area thatgenerates the most pedestrian traffic in ShockoeBottom. It is intended that the proposed land usesfor this Area support, sustain and encourage continu-ity of this mix of uses.

Commercial, residential and public uses are predomi-nant in this area. The planned Multi-modal Trans-portation Center (with Main Street Station as itsbase), the Commonwealth of Virginia, and theFarmers Market are the three dominant public uses inthe area.

Land Use Policies

• Vehicle oriented uses and features such asdrive-in or drive-through facilities and autoservice uses are not appropriate, and shouldbe discouraged. Curb cuts from the streetshould be discouraged, with the exceptionof access to large parking facilities. Small

The VisionThe Farmers' Market district will continue tobe an area of high pedestrian activity, withamenities necessary to support this level ofactivity. Special events and festivals willovertake vehicular space, when needed, tosupport these activities. Entertainment useswill play a major role, including nighttimeactivity. Visitation to Shockoe Bottom playsa major role with multiple tourist destina-tions in the district. The urban fabric of thisarea will expand to encompass adjoiningvacant land.

The historic character of buildings willremain, with complementary new construc-tion. The emphasis will remain on mixedland uses with first floors of buildingsdevoted to restaurants, offices, retail andpersonal services. The scale of uses, particu-larly new development, will complement thescale of existing storefronts.

Additional public parking will be availablefor visitors and patrons of the new MainStreet Station.

The Farmers' Market will continue to be theprimary focus for events and public activity.

Main Street Station will be an active trans-portation hub with minimal traffic impact onShockoe Bottom.

III-8


• Residential development should continuethrough adaptive reuse of the large ware-houses that remain in the area.

• Entertainment uses designed to attract largecrowds should not be permitted to expandeastward beyond the 18th Street frontage.

• Infill development should be required to begenerally compatible with surroundingdevelopment in design, massing, setbacks,scale and materials.

• Design review beyond the existing Old andHistoric District to include the remainder ofthe Farmers' Market Area should berequired

Zoning ObjectivesIn order to achieve the vision and to promoteimplementation of the land use policies for theFarmers' Market Area (Area A), zoning measuresbased on the following objectives should be applied.

• Encourage mixed uses (per “vision”), anddiscourage ground floor residential

• Limit the scale of individual commercialuses, but enable sufficient flexibility

• Require landscaping and other improve-ments for surface parking areas and imple-ment through a design review process

• Apply building height limit consistent withpredominant existing heights

• Discourage vehicle-oriented land uses andsite features

• Limit driveways and curb cuts• Prohibit off-street parking between build-

ings and streets• Prohibit building setbacks from street,

unless consistent with adjacent sites.• Address character of any setback area via

design review process• Do not apply off-street parking requirements

for most uses• If parking is required for any use, apply

dimension, access and location standards forefficient use of surface and in-buildingparking

• Provide public visitor parking (by City orothers)

• Apply pedestrian-scale business signstandards; prohibit off-premise signs andbillboards.


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Zoning StrategyThe suggested zoning strategy for the Farmers'Market Area is application of a modified version ofthe current Urban Business District (UB) containedin the City’s zoning ordinance. The intent of the UBDistrict is to accommodate an intense pedestrian-oriented urban commercial area that is compatiblewith nearby residential neighborhoods, and whichpromotes retention of the scale and character of thearea. The intent is similar to the vision for this Area.

Modifications should be made to the UB District toaccommodate Area A to include the deletion of off-street parking requirements for most uses, allowchanges to permitted uses and site developmentstandards. These modifications would not beappropriate in areas of the City already zoned UB.Due to a few key differences between the current UBDistrict regulations and the land use and zoningobjectives for the Farmers' Market Area, a newdistrict similar to the UB District should be created.Although the new district could be characterized as“mixed use-business”, it might also be titled “UrbanBusiness - 2” to reflect its similarity to the UBDistrict.

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AREA B MAP

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FIGURE 9


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The VisionThe Broad Street Corridor will function asan attractive gateway to, and linkage with,Shockoe Bottom, VCU/MCV Hospitalcomplex, State and City governmentcampuses, and Church Hill neighborhoods.A variety of land uses will continue, withadaptive re-use of industrial buildings northof Broad Street, along 17th and 18th Streets.East of 18th Street will retain a moreresidential emphasis as a gateway intoChurch Hill. Infill development alongBroad street will be of compatible design,with minimal setbacks. Although a majortransportation corridor for accessing thecentral business district and Interstate 95,Broad Street will be free of typical inter-change related development.

Area B - Broad Street CorridorThe Broad Street Corridor, west of 18th Street, iscomprised of land uses that are, or were, industrialand commercial. These uses were supported formany years by the C&O Railroad facilities andservice siding that paralleled 17th Street but nolonger exist. The nonresidential uses were housed insubstantially constructed buildings that appear to becapable of undergoing adaptive reuse for office, retailrelated commercial activity and residential use.

The type and scale of development east of 18th Streetwas residentially oriented and land use proposals forthis segment of Area B reflect a policy to maintainthat residential scale of development through a mixof office and residential use.

Land Use Policies

• Encourage infill development of residentialuses along 19th Street between Broad andMarshall Streets and along Marshall Streetat the base of Jefferson Park.

• Encourage office development as a primaryuse between 17th and 18th Streets withcommercial (limited retail and residentialuse allowed). Existing industrial use isintended to be phased out over a period oftime. This area is currently the southern endof an industrial nonresidential corridor thatextends northward, up the entire length of17th Street.

• The two long, low brick buildings, originallydesigned and used for rail freight service,along 17th Street, offer historically signifi-cant buildings appropriate for retail, office orpersonal service type uses.

• The Broad Street corridor frontage fromInterstate 95 to midway between 18th and19th Streets (the east line of McDonald’srestaurant and the renovated Bathhouseoffices) is appropriate for commercial use.

• Residential land use is proposed alongBroad Street in keeping with the characterof Broad Street development east of 19thStreet.

• Commercial uses such as transient housing(including motels) and fast food operationsthat cater to interstate traffic should bediscouraged.

• Parking decks and parking lots are appropri-ate.

• All mixed uses consistent with the visionshould be encouraged.

• Residential, office, retail and other commer-cial uses that do not require "drive-through"facilities should be encouraged.

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Zoning ObjectivesSpecific zoning objectives for the Broad StreetCorridor Area are:

• Encourage mixed uses (per “vision”):– permit residential, office, retail,

adaptive reuse and parking decks andlots

– prohibit, or significantly restrict,“drive-through” uses

– allow, but apply clearly definedstandards for, vehicular oriented landuses

• Discourage, or limit, uses that attractInterstate through traffic

• Require landscaping and other improve-ments for surface parking areas and imple-ment through Plan of Development or adesign review process

• Apply sign controls appropriate to intendedland uses but generally less restrictive thanArea A

• Prohibit or substantially limit freestandingsigns

• Apply controls and/or design guidelines to:– provide building setback consistency,

and limit curb-cuts and driveways– require buildings to occupy most of lot

width

– maintain building heights consistentwith predominant existing development

Zoning StrategyThe zoning strategy for the Broad Street Corridor isto amend the Zoning District Map to apply a combi-nation of B-5 Central Business, RO-2 ResidentialOffice and the new “Mixed Use - Residential”District proposed for the Residential Area. No newzoning classifications, or amendments to existingclassifications, are proposed specifically for theBroad Street Corridor Area. The zoning districtsshould be applied in a manner that closely reflectsthe Land Use Plan and vision for the Area.

Re-mapping would generally consist of the following(with adjustments for detailed boundaries as needed):

• Rezoning from M-1, Light Industrial andB-5, Central Business to the new “MixedUse - Residential” District, the area frontingBroad Street east of 19th Street and fronting19th, 20th and 21st Streets south of BroadStreet. The strategy is to promote mixed usewith residential and office emphasis per theLand Use Plan.

• Rezoning of the area north of Broad Streetfrom M-1, Light Industrial to RO-2 Resi-dential Office. This strategy is to promotemixed residential with office use per theLand Use Plan. This represents an extension

• Design review should be provided for theentire Broad Street corridor to retain thevisual character of the corridor and preventinappropriate infill design.

• Limited automobile related uses may beappropriate, however quality design andminimum curb cuts should be applied.

Zoning ObjectivesThe Broad Street Corridor (Area B) is the mostcomplex of the Areas. As the Area vision describes,there is varying emphasis of land use and characteramong three sections of the Area. No one section islarge enough or distinct enough to warrant creation ofa new zoning district classification. More thantypical zoning, the key to implementation of thevision for the Area is proper regulatory control ofscale and character for new infill development andpreservation of historic properties.

Regulatory controls are needed to: (1) address thelarge amount of vacant and underutilized land inportions of the Area; (2) protect the character ofhistoric properties throughout Shockoe Bottom; and(3) stabilize the importance of the Area as a gatewayto Shockoe Bottom, the Downtown Area and ChurchHill. In parts of the Area not already included withinthe City Old and Historic District, this must beaccomplished through application of an appropriatedesign review process which incorporates designguidelines.


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of existing RO-2 zoning east of 21st Street.

• Rezoning from M-1, Light Industrial to B-5Central Business, the portion of the BroadStreet Corridor generally west of 19th Streetand northward to Venable Street. Thestrategy is to promote adaptive reuse ofcommercial and industrial buildings formixed residential, commercial, and officeuse. Existing light industrial and warehouseuses made nonconforming would beafforded flexibility to continue under currentB-5 provisions. To ensure that the vacantparcels of land fronting on Broad Street maybe deemed appropriate for vehicle-orientedland uses serving Shockoe Bottom andChurch Hill, it is recommended that a strictdesign review process via the special usepermit process be implemented rather thanutilizing the general business or industrialzoning process.

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AREA C and A/C MAP

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FIGURE 10


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The VisionThe Tobacco Row/Main Street area willbe a predominantly residential, mixed usedistrict. Main Street will retain itsresidential and commercial character.Specialty retail will develop along CaryStreet within Tobacco Row. The easternportion of this district, beyond Pear Street,will develop as a residential or similaranchor, with a strong focus to the River.Development will preserve open viewsacross Chapel Island.

Parking areas will be integrated into theexisting topography, with surface lotsadequately landscaped to match thepedestrian oriented streetscape.

Much of the existing industrial activitywill transition to other uses and newbuildings will match the predominantscale of their immediate environs.

Area C - Residential AreaThe number and scale of the industrial buildings thathave been abandoned in Area C have provideddevelopers with an opportunity to use zoning and taxcredits available under a National Register District totransform an abandoned manufacturing and commer-cial use area into a predominantly residential area.The land use strategy proposed for Area C is tofurther the continuation of the adaptive reuse processthroughout the area by permitting limited officedevelopment, and supporting commercial activity toserve the growing residential and office population.

Land Use Policies

• Residential use is proposed as the predomi-nant use throughout Area C

• Retail and office use is proposed to supportthe primary residential use and is a second-ary part of this desired mix of uses.

• Limited entertainment use is also permittedin a few select locations.

• A mix of residential, office and entertain-ment activities is proposed for the area eastof 26th Street on the eastern edge of theArea C. This area can adequately accom-modate this use mix.

• Single family residential use is proposed forundeveloped parcels in the area north ofFranklin Street uniting Church Hill and the

Tobacco Row communities.

• Commercial off-street parking use isproposed south of Cary Street with no morethan one or two levels of commercial retail/office space permitted above the parkingfacilities.

• Infill development along Main Street shouldbe of compatible scale and design. Retailuses are appropriate, with the provision ofoff-street parking . Building setbacks fromMain Street should be minimal.

Zoning ObjectivesThe zoning objectives for the Residential Area (AreaC) are:

• Encourage mixed land uses( per “vision”)

− limit intensive entertainment uses; limit,but not prohibit, live entertainment

− encourage residential adaptive reuse,including ground floor

• Limit the scale or square footage of inten-sive commercial uses, especially infill, and,preferably, through a design review process

• Require modest off-street parking for allnew uses

• Require surface treatment and landscapingimprovements for parking areas

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non-residential uses• lack of bulk and density standards for infill

development• no control of intensive, potentially incom-

patible entertainment activities• no limitations on size or scale of intensive

commercial uses.

Therefore, the zoning strategy for Area C is creationof a new “Mixed Use - Residential” District. Thenew district would be similar to B-5, but withdifferences to overcome the B-5 deficiencies andbetter reflect the Area vision and suggested imple-mentation measures.

Rezoning of most of Area C from B-5 and M-1 to thenew “Mixed Use - Residential” District should occuron an Area-wide basis. Relatively large properties,currently devoted to viable light industrial uses,which are expected to continue for some time shouldremain zoned M-1 until their potential for re-use iscloser to realization.

In addition, the new district should include provi-sions similar to B-5 for flexibility for any lightindustrial uses that are rezoned and become noncon-forming. As is the case throughout Shockoe Bottom,zoning districts should be applied in conjunction withappropriate scale and character guidelines imple-mented through a design review process.

• Encourage, but not require public andprivate amenities for residents

• Apply bulk and density standards thatenable compatible new infill residential andcommercial development

• Provide flexibility for continuation (in theinterim) of existing compatible lightindustrial uses.

Zoning StrategyArea C is envisioned to continue developing as anarea of mixed use with emphasis on residential uses.Primary future land uses are residential adaptivereuse and new residential infill development, butinclude a variety of office and neighborhood spe-cialty and “anchor” commercial uses.

M-1 Light Industrial zoning currently applies tomuch of the area. It is not possible to achieve thevision for Area C under M-1 zoning, especially sinceit prohibits residential uses. B-5 Central Businesszoning currently applies to most portions of the Areawhere adaptive re-use has occurred or is expected inthe near future. Although generally suitable in termsof permitted uses and basic building scale, B-5 is notappropriate for providing many of the recommendedimplementation measures for the Area. Primarydeficiencies include:

• prohibition of ground floor residential use• no off-street parking requirements for most

Area A/C - Transition AreaThis area has been identified as a Transition Area byvirtue of several large industrial buildings that couldbe converted to residential use, mixed with substan-tially smaller buildings that lend themselves toresidential use above the first floor level, andcommercial uses such as limited retail, office, andpersonal service. All of these uses are acceptableexcept for those entertainment uses provided in theFarmers' Market Area.

Land Use Policies

• Land uses proposed for Area A/C should beconsistent to achieve a scale of developmentencouraged in both Area A and Area C toprovide for a reasonable transition of usesfrom one Area to the other.

• Combined land uses derived from Area Aand Area C are proposed at a scale that willunite Areas A and C in a manner consistentwith the existing character of the commu-nity.

• Residential and office uses are appropriateas a part of the mix.

• Limited commercial uses are permittedalong the southern edge of this area wherelarge factory/warehouse structures arelocated.


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Zoning ObjectivesArea A/C is a Transition Area that overlaps Area Cbetween 19th and 21st Streets and overlaps Area Afor one-half block west of 19th Street. Its character isestablished by a mix of the predominant architecturalcharacteristics and land uses of both Areas. There-fore, the zoning objectives in the Transition Area(Area A/C) represent a combination of the objectivesfor both Areas A and C.

Zoning StrategyWithin Area A/C, the zoning boundary between theIntensive Pedestrian and Residential Areas willgenerally follow 19th Street, but will be somewhatirregular, and reflective of particular buildings, usesand character on a site-by-site basis. The zoningboundary between the two Areas should be adjustedover time, as market and physical conditions maydictate.

In drafting the detailed regulations in the new “MixedUse - Business” and “Mixed Use - Residential”Districts, specific transitional provisions should beincluded to implement plan objectives and respectthe need for flexibility in land uses and developmentcharacter near the boundary between the twodistricts. These might include special provisionspertaining to ground floor uses, building height andbulk, and intensity of entertainment uses. An alterna-tive for future consideration as the area develops is aspecial “overlay” district for the Transition Area

incorporating key features of both zoning districts.However, such further complication of zoningprovisions for the Area does not appear necessary ordesirable at this time.

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AREA D MAP

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FIGURE 11

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Area D - Canal Related AreaChapel Island comprises virtually all of the land inthis Area. Land uses on Chapel Island are public andindustrial with public use being the dominant use.Several industrial uses have been located on ChapelIsland over its long history but frequent flooding hasdriven these uses away many years ago. Todayindustrial use is limited to the railroad lines, theright-of-way that traverse the northern portion of theisland, and the utility structures associated with thesewage conveyance system.

The continuation of the Canal Walk, east of the floodwall, should continue along the north edge of thecanal to the Great Ship Lock Park. Beyond the park,the opportunity exists for the walk to continueadjacent to the James River, downstream to the Cityline. A moderate reconfiguration of Great Ship LockPark would be appropriate to facilitate improvedpublic access and use.

Chapel Island Park on the eastern third of the islandprovides the most significant public open space inShockoe Bottom. Improvements to the park, such astrails, historic interpretation, and improved wateraccess, will provide a significant amenity for thegrowing number of Shockoe Bottom residents.Opportunities for recreational use of the concreteretention basin structure on Chapel Island shouldcontinue to be pursued.The adjacent development at Tobacco Row shouldhave a positive impact on the eastern canal. En-

hanced pedestrian connections should be providedalong extensions at the north/south streets perpen-dicular to the canal walk, with opportunities for tourboat and water taxi landings.

A high priority should be given to the improvementsof the locks and the Norfolk Southern drawbridge toallow appropriate boat traffic to enter the canal.Historic tall ships could serve as a visitor attraction.The future use of portions of the City Dock area forshort term private boat docking should be explored.

Further relocations of Dock Street to the southshould be encouraged to facilitate both private andshared parking arrangements associated withTobacco Row.

Due to the proximity of the Chapel Island to ShockoeSlip, the restored Canal, Canal Walk, and ShockoeBottom to other parts of Downtown, Area D wouldseem to make an appropriate location for theMounted Police facilities of the Richmond PoliceDepartment. There appears to be ample unimprovedland area available to accommodate the relocation ofthese facilities and allow outdoor area for the horses.

Land Use Policies

• Land use should be restricted primarily topublic and public related uses.

• A small, triangular shaped site, located east

of 17th Street and south of the canal, isappropriate for development

• Industrial use should be limited to the needsof the two railroads operating through theCanal Related Area, City utilities facilities,and canal boat maintenance.

Zoning ObjectivesArea D is an area of concentrated canal andriverfront development activities. The zoningobjectives for the area are to coordinate with, andreflect, the City’s East Canal and Riverfront Plan.

Zoning StrategyThe creation of a specialized zoning classification forthe Canal Related Area is not necessary, due to theextent of public ownership, the floodplain, and thecontrol afforded by non-zoning means, in addition tothe emphasis on public open space, recreation andtourism uses. The application of the new DowntownCivic and Cultural (DCC) District for Chapel Islanddoes not appear to be warranted since the program-ming of the public spaces is not expected to becomparable to Brown's Island to the west. However,consideration of DCC Zoning for any canal walkextensions should be given.

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AREA E MAP

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FIGURE 12

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The zoning strategy for the Canal Area (Area D) isto:

• Extend the zoning of the adjacent FarmersMarket Area, Residential Area, andShockoe Slip Area throughout Area D.Possibly excluding the City retention basin,which may remain zoned M-2, HeavyIndustrial.

• Accommodate specific uses and develop-ment features as envisioned by the EastCanal and Riverfront Plan in the detailedregulations of the proposed new “MixedUse - Business” and “Mixed Use - Residen-tial” Districts.

• Review the B-5, Central Business Districtregulations to identify any needed amend-ments to the regulations to accommodate theuses and activities intended along the Canalarea east of Interstate 95.

Area E – Shockoe Slip GatewayShockoe Slip Gateway is identified as a separateArea in order to emphasize the important pedestrian,vehicular, visual and functional connections betweenShockoe Slip and Shockoe Bottom. Shockoe Sliphas already transitioned from a mixed manufacturingand commercial use area to a predominantly com-mercial area mixed with above ground floor residen-tial use.

Land Use PoliciesCommercial use is the dominant use for Area E andshould remain the dominant use.

• Commercial use should include off-streetparking, retail, and office use.

• Industrial use should be phased out of thisarea.

• Development of off-street parking and anenhanced pedestrian connection to the MainStreet Station and 17th Street should beincluded in Area A.

Zoning ObjectivesMost of Area A is currently zoned M-1 LightIndustrial and B-5 Central Business, with B-4 CentralBusiness zoning along Main Street. The zoningobjectives for the Shockoe Slip Gateway Area (AreaE) are the continuation of Farmers' Market Areazoning, with an additional accommodation for largerscale buildings.

Zoning Strategy• Rezone the current B-4, Central Business

and M-1, Light Industrial portions of Area Eto new “Mixed Use - Business” District.

• Rezone from M-1, Light Industrial to B-5,Central Business the portions of Area E,south of Cary Street that are characterizedby larger scale buildings to conform to theadjacent Shockoe Slip zoning.

Summary and Overall ZoningStrategyIn summary, the overall zoning strategy forShockoe Bottom consists of four measures:

••••• Creation of a new “mixed use -business” zoning classification,similar in many respects to thecurrent UB Urban Business District,for application to the Farmers'Market (Area A).

••••• Creation of a new “mixed use -residential” zoning classification,similar in many respects to thecurrent B-5 Central Business Dis-trict, for application to the Residen-tial (Area C).

••••• Rezoning the Shockoe Bottom studyarea, on an area-wide basis, generallyas described in this Chapter, and in amanner consistent with the Land UsePlan and the Areas Visions andRecommended ImplementationMeasures.

••••• Creation of design guidelines andapplication of an appropriate designreview process throughout ShockoeBottom. (see recommendation at theend of this Chapter.)

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VEHICULAR CIRCULATION MAP

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FIGURE 13

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Transportation, Parking and PedestrianCirculation

Vehicular Circulation ImprovementsThe following improvements are recommended toimprove vehicular circulation in Shockoe Bottom,eliminate confusion, reduce the potential for acci-dents and pedestrian injury in the area. Theserecommended improvements are shown on theVehicular Circulation map (Figure 13) and are listedbelow:

• Convert 17th Street to two-way traffic fromBroad Street to Franklin Street

• Convert 18th Street to two-way traffic fromGrace Street to Broad Street

• Convert Franklin Street to two-way trafficfrom Ambler Street to 20th Street

• Convert 19th Street to two-way traffic fromGrace Street to Main Street

• Relocate 15th Street between Franklin andMain Streets

These improvements are designed to enhance accessto the Farmers' Market Area and make vehicularcirculation less confusing. Implementation of theseimprovements will increase access to commercialestablishments currently by-passed due to the one-way system. In each case, a field review indicatesthat the streets have enough right-of-way to supporttwo-way traffic, retain on-street parking and haveadequate sight distances at intersections.

The streets surrounding the proposed “multi-

The primary vehicle entrance needs to remain on thewest side of the station providing access fromFranklin Street via I-95 South and the core ofDowntown. In order to keep buses off the streets inShockoe Bottom, the circulation pattern for busesshould bring them from the I-95 North ramp, east onMarshall Street and then underneath Broad Street asshown on the Illustrative Plan. Similar routingshould be used for service vehicles, and employees.Passenger drop-off opportunities are appropriate onthe west side of the station, immediately in front onmain street, and on the east side within the short termparking areas.

Parking ImprovementsSeveral sites have been identified as potentiallocations for expanded public parking - mostimportantly, as locations for decks. These have beenidentified in the Illustrative Plan (Figure 14) facingthis page. As Shockoe Bottom develops, some of thesurface lots could be converted for commercial orresidential development. Centralized parking hasbeen used in other areas of Richmond and hasgenerally enhanced the pedestrian environment.Easily accessible and attractively designed parkingstructures are preferred over vast surface parkinglots. Each potential deck location is discussed below.The primary emphasis is to expand parking at thewestern and northern edges of the Farmers' MarketArea, and in the vicinity of Main Street Station andCanal Walk- the primary generators of the of futureparking demand. As additional residential develop-ment occurs, particularly in the vicinity of Tobacco

function space” should also be converted to two-way traffic in the future to support access to the site.

It is recommended that Shockoe Bottom streets be re-designated in the Bottom to eliminate the routing oftrucks on 18th Street and on Broad Street throughChurch Hill. It is further recommended that allthrough trucks should use Interstate 95 and that trucktraffic on Main Street should be minimized.

The recommended truck routes are shown in Figure13. These recommended truck routes will enhancepedestrian activity and residential development. There-designation of these routes will have to becoordinated and approved by the Virginia Depart-ment of Transportation and the CommonwealthTransportation Board. While re-designation mayresult in the loss of Federal funding for maintenanceand improvements of the currently designated routes,it may be possible to shift this funding to the pro-posed new routes.

Shockoe Bottom is changing from a industrial area toa mix of residential and commercial uses. Therefore,it is further recommended that a more detailed studyof truck routing be done to determine the future truckroutes that would minimize the negative impacts onthe Shockoe Bottom and the Church Hill communi-ties.

The Main Street Station Multi-modal TransportationCenter has the potential to generate a significantamount of vehicular traffic when in full operation.

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Illustrative Plan

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FIGURE 14

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.Row, private parking areas will need to be created.

The preferred alternative for a parking deck is theblock north of Grace Street between 17th Street,Crane Street and Broad Street. This lot, whichcurrently functions as a private surface lot (primarilyfor Loving’s Produce trucks), has two importantcharacteristics - level topography and good vehicularaccess. If supported by demand, a parking deck atthis location would help anchor this section of 17thStreet and provide access to uses in close proximityon 18th and 19th Streets. The use would be publicparking with the potential for shared daytime parkingto serve State and Medical College of Virginiafacilities to the west on Broad Street. Night timedemand would be generated by entertainment andrestaurant uses. Design considerations would includethe need for lighting and security enhancements andopportunities for street level retail.

The highest priority for a deck to serve the MainStreet Station is on the site currently occupied by theState Consolidated Laboratories. Integration of thissite into the Main Street Station project will allow forstreet realignments, site clearance and the construc-tion of a deck to serve state employees and MainStreet Station patrons.Another potential parking deck site lies adjacent tothe Main Street Station surface lot between theStation and the Havana 59 restaurant. The parking

deck would replace an existing building currentlyowned by Loving’s Produce. This location cansupport a small parking deck and provide access tothe Main Street Station, and the Farmers' MarketArea commercial uses, and between Franklin andGrace Streets. Design considerations would includethe need to provide access from Franklin Street andegress from Walnut Alley. A parking deck in thislocation would also need architectural enhancementsto make it fit into the urban design of Main StreetStation and the proposed public “festival space”.If sub-design accommodations can not be made, or ifconstruction of a deck interferes with passenger dropoff or station access, this concept should be recon-sidered.

The Canal Walk will also generate demand forparking. Two sites have been identified as potentiallocations for parking decks or surface lots:

1) the area under Interstate 95 between MainStreet and Cary Street, and

2) the area under Interstate 95 between Mainand Cary Streets, and

3) on the northwest or northeast corner of 15thand Cary Streets. The construction of aparking deck at the northwest corner of 15thand Cary would replace an existing surfacelot.

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The recommended deck at Cary and 15th Streets isproposed to be public. Other potential sites on theperiphery of the Farmer’s Market Area include:

• the surface lot at the northeast corner ofGrace and 18th Streets,

• the reuse/redevelopment of a warehousestructure in the vicinity of Franklin and 19thStreets,

• a state surface lot just south of Broad Streetin the vicinity of Crane Street.

All of these decks would need to be publicly fi-nanced parking decks with business support providedthrough a special tax district and possibly a merchantticket validation program. The current demand doesnot justify construction of decks in all of theseproposed locations. However, as the market devel-ops in Shockoe Bottom, additional demand will begenerated and the conversion of surface lots to deckparking may become feasible.

The area under the Interstate 95 between Main andCary Streets can provide a significant amount ofparking. By consolidating parcels, grading, surfacingand marking spaces, and providing adequate securitymeasures, this parking area can serve Main StreetStation, Shockoe Bottom and Canal Walk visitors aswell.

Pedestrian Environment and CirculationAs a unique urban area, Shockoe Bottom has the

potential to be an attractive pedestrian orientedenvironment. In some cases, pedestrian enhance-ments, such as brick sidewalks, attractive streetlighting, and crosswalks, will need to be incorporatedinto the design elements of the area. The Canal Walkproject will also add to the pedestrian environment.However, in many parts of Shockoe Bottom, anenvironment conducive to pedestrians and pedestriancirculation does not exist.

Existing and proposed uses for Shockoe Bottomgenerate substantial pedestrian activity. These usesare:

• Entertainment and retail establishments• Canal Walk (at major entrances - 14th Street

at the Turning Basin, 17th Street, and GreatShiplock Park)

• The Main Street Station Multi-modalTransportation Center

• Civic “festival” space proposed to the eastof Main Street Station between FranklinStreet and Grace Street

• Farmers' Market• Shockoe Slip uses• State Office Complex/MCV buildings on

Broad Street• Numerous restaurants and nightclubs,

particularly on weekend evenings.

Within Shockoe Bottom, several linkages representcritical connections. These "primary pedestrian

routes" include the following:• 18th Street• 17th Street• Main Street• Cary Street• Dock Street (in conjunction with the Canal

project)• 25th Street• Franklin Street (as future residential

development occurs)

These streets should be a priority for streetscapeimprovements to enhance the pedestrian environ-ment. These improvements include sidewalkenhancements (such as brick sidewalks), street trees,period street lighting, crosswalks, benches, and trashreceptacles. Adequate light is essential for all of thesidewalks in Shockoe Bottom.

17th Street - 17th Street is the primary pedestrianconnection from Shockoe Bottom at the Farmers'Market to the Canal Walk, with an entrance at DockStreet. This narrow street also provides access to anumber of parking areas for residential structures.Streetscape improvements have been implemented onthe west side of the street, with no correspondingimprovements on the east side. To complement thesidewalk character, it is recommended that this streetsection be paved with brick or granite pavingmaterials. It may also be appropriate for widening ofthe sidewalks in this section at the expense of either a


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vehicle or parking lane.

18th Street - 18th Street serves as a primary pedes-trian connection linking adjacent businesses andrestaurants. Streetscape improvements includingbrick sidewalks, street trees and ornamental lightinghave been implemented along 18th Street from BroadStreet to Cary Street.

Main Street - Along Main Street, between 15th and17th Streets, substantial improvements are recom-mended to the sidewalk area. Much of the suggestedimprovements are triggered by the need to accommo-date pedestrian movements at the Main Street Stationand the Farmers' Market. The existing parking lane(north side) should convert to a pedestrian drop-offand transit stop. By extending the sidewalk into theparking lane at the Farmers' Market, it enhances thatpublic space, and keeps traffic away from the stationdrop-off area. This improvement can also enhancethe pedestrian connection across Main Street to thecanal corridor. The sidewalk in front of the station,combined with the current parking lane can servetaxis, buses, trolleys, and private vehicle pick-up anddrop-off. On the south side of Main Street, a similardrop-off area can be created, integrated with thesurface parking area. An enhanced crosswalk (signalcontrolled), directly in front of the station would alsobe appropriate.

Shockoe Bottom also has some problem areas where

pedestrian movements are discouraged because ofconflict with vehicles. The problem areas include theparking and street sections under Interstate 95 in theFarmers' Market Area and the Canal Area, MainStreet between 17th Street and 18th Street, and 17thStreet from Dock Street to Franklin Street (includingthe Farmers' Market). In these locations, trafficmeasures such as transit lanes, varied surfacetreatment of the roadway and pedestrian crosswalksare recommended to slow traffic and enhance thepedestrian environment. These recommendedimprovements are shown in Figure 14, along with theproposed pedestrian corridors.

The area under Interstate 95, is inaccessible, poorlylighted and maintained, and serves as a barrier topedestrian movements. To eliminate this barrier,grading of the area, construction of a surface parkinglot is recommended to provide additional short termparking for Main Street Station, and construction of apedestrian connection to Shockoe Bottom and MainStreet Station from Shockoe Slip. Extensive land-scaping and pedestrian scale lighting are alsorecommended to compensate for current inadequa-cies (see the Illustrative Plan, Figure 14).

Improvements to sidewalks and streetlights inShockoe Bottom are recommended. Brick sidewalksand attractive streetlights are currently concentratedin the Farmers' Market Area and along Tobacco Rowin the Residential Area. There is a lack of essential

pedestrian facilities needed to link these two Areas,as well as the fringes of Shockoe Bottom. In somecases the lack of sidewalks or streetlights creates“dark blocks” that deter pedestrian movements atnight. Evening use of some parking lots is severelydeterred by the isolated location of these spaces aswell as inadequate sidewalks and street lighting alongthe adjacent streets.

The public sidewalks serve as both corridors to movepedestrians and access for local businesses, inaddition to bring a significant design element inShockoe Bottom. The public sidewalks serve aslinks between parking, retail and entertainmentvenues, also between residential areas, connectingvisitor attractions, and key areas of Downtown.

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completed with a total rehabilitation value in excessof $30 million (approximately $16.9 million byTobacco Row) in the Shockoe Valley and TobaccoRow (Shockoe Bottom) National Register HistoricDistrict. The neighboring Shockoe Slip NationalRegister Historic District has seen nearly $23 millionof rehabilitation projects completed during the sameperiod.

However, while Shockoe Bottom continues toexperience increased economic reinvestment, someproperties are still plagued by lack of maintenance,particularly vacant buildings. Other “preservation”issues can be attributed to the lack of any designreview process in place for smaller projects whoseowners either choose not to apply, or do not qualify,for federal tax incentives. Finally, some problemsrelate to inappropriate changes made to certainstructures many years ago, before there was anawareness of historic preservation in the District.

Some of the building problems noted in ShockoeBottom are missing cornices, bricked in windows,boarded up or heavily altered and filled in store-fronts, unpainted wood, backlit projecting signs,paint and awning maintenance, and some examplesof incompatible designs. Incompatible design issuesinclude placement and materials for recently installedsidewalk cafes and outdoor entertainment areas.

The limited sidewalk depth throughout Shockoe

Preservation of NeighborhoodCharacter

Land Use PoliciesSpecific land use policies related to the preservationof neighborhood character include:

• Maintain the traditional street grid designthroughout Shockoe Bottom.

• Maintain the street "wall" effect of continu-ous rows of buildings at the front of theproperty line.

• Prohibit demolition of historic buildings orbuildings with contributing architecturalcharacter.

• Preserve, through rehabilitation andadaptive reuse, buildings that contribute tothe architectural character of the area.

• Preserve existing streetscape elements anddesign new elements that complement thearchitectural character of the area.

• Insure that any new buildings relate to, andenhance, the existing architectural characterof the area.

• Create attractive gateways at the entrancesto Shockoe Bottom that emphasize thearea's distinctive architectural character.

Rehabilitation/Adaptive Reuse of Buildings IssuesThe current volume of tax credits issued for com-pleted rehabilitation projects evidences a fairly highlevel of careful rehabilitation to preserve the archi-tectural character in Shockoe Bottom. Over the pasttwenty years, approximately 37 projects have been

The VisionThe historic character of buildings willremain throughout the Shockoe Bottomarea, with rehabilitation and adaptive reuseof buildings. New construction will becomplementary to existing buildings.

Pleasant pedestrian environments will becreated through the use of attractivestreetscape elements.

The distinctive character of Shockoe Bottomwill remain by continuing the emphasis onmixed land uses with the first floor ofbuildings devoted to restaurants, offices,retail and personal services. The scale ofuses, particularly new development, willcomplement the scale of existing storefronts.


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Bottom and the lack of design controls governingsidewalk cafes, in particular, raises a policy questionas to whether such use should be allowed to continue,let alone be encouraged.

New ConstructionThere are very few examples of new construction inthe district. Recent examples include:

• A McDonald’s restaurant located on theBroad Street Corridor is designed as a two-story brick structure to blend in with thehistoric character of the area. However, theconfiguration of the drive-through and curbcuts, as well as the site layout, have createdsignificant concern with some neighbors.

• An Exxon service station has been con-structed along the same corridor. While thebuilding and canopy have some “Colonial”architectural detailing, the overall site planand building configuration is one of an auto-oriented use.

• A sound recording studio "In Your Ear," atthe corner of 19th and Broad Streetsretained the facades of four NineteenthCentury row houses.

• An apartment building at 26th and Mainstreets. This is a five-story brick structure

with a form and height similar to oldernearby warehouses although the detailsresult in a more contemporary design.

Future infill opportunities indicate the need for thedesign of new construction to be compatible withhistoric structures and particularly, for storefronts tobe included at street level design.

Non-contributing StructuresThere are very few examples of non-contributingstructures in the study area. Most examples are morerecent warehouse-related block construction or auto-related uses on Broad Street. Due to the limitednumber of non-contributing structures, the study areaas a whole has a very high degree of integrity ofhistoric buildings.

Endangered Contributing StructuresSeveral historic residential structures are in poorcondition, particularly in area of Grace and BroadStreets, around 18th and 19th streets. If they are notstabilized soon, they may be lost to demolition byneglect. Parking needs may continue to createpressure to add new surface lots to the area andpossibly lead to the demolition of existing structuresin the future.

Possible Regulatory Effects of Types ofHistoricDesignationIn the chart entitled “Comparisons of Design Review

Processes” contained in the Appendix C, the twotypes of locally available design review processes arecompared: Old and Historic Districts and DesignOverlay Districts (DOD). The National Register ofHistoric Places District designation only requiresdesign review, if a property owner is applying forstate and federal tax credits. For this reason theNational Register designation is also included in thecomparative chart.

City of Richmond Old and Historic DistrictsThe City’s Old and Historic District design reviewprocess has been in use since 1957. It is based onstate enabling legislation that grants localities thelegal authority to create local historic districts withdesign review. The Richmond Commission ofArchitectural Review (CAR) administers the programwith staff support from the Richmond Department ofCommunity Development. The regulations requirethat an application for a Certificate of Appropriate-ness must be submitted before the applicant’s projectis reviewed at monthly meetings of the CAR.Currently, written design guidelines are beingdeveloped to ensure the CAR is making determina-tions of compliance with the character of the districtas uniformly as possible.

The process is well known, since it has been the typeof design review used for the longest period of time.It is detail and design oriented with very highstandards. Such careful review has been effective in

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producing high quality preservation projects.

Because an applicant has to apply before beingplaced on a monthly agenda, time and project delaymay be a factor. However, applicants generallyconsult with CAR staff prior to submitting theirapplication to for design review. These applicantsseldom experience unnecessary delays to theirproject, if approved. The current guidelines, now inuse by the Commission, should effectively addressprevious citizen concerns that the CAR appearedarbitrary in some of their review decisions.

City of Richmond Design Overlay DistrictThis type of design review is relatively new toRichmond, although the City has had the power tocreate such districts since 1987. The concept behindDesign Overlay Districts (DOD) is to have a flexibletool to preserve neighborhood character, and themethods used to create such a district are differentfrom the traditional historic district. First, propertyowners in the district request designation. Second,the extent of design review and guidelines thatsupport this process are created largely by propertyowners with staff assistance. The staff then reviewsprojects at any time using the guidelines as a basisfor decisions. The DOD designation has only beenused in Richmond’s “West of the Boulevard” area. Inthis instance, new construction is the only category ofbuilding activity which is reviewed under thisdesignation.

Factors in favor of a design overlay district are:• A more flexible approach to permit the

extent of design review to be decided uponby property owners.

• Less stringent preservation standards thanthose required by the Secretary of theInterior’s Standards for Rehabilitation.(Which is the basis for the design reviewprocess used by the CAR.)

• Quicker approval times are possible withonly staff and not a commission completingthe design review process.

Design Overlay Districts give concern to somepreservation adherents because such districts focusonly on the street facades of new residential con-struction and do not extend review to rehabilitationprojects and building demolition. Concern alsoexists among some preservation adherents that lessstringent preservation standards may be developed inan effort to encourage rehabilitation that does notconsider the preservation of a building’s architecturalcharacter, thereby lowering the quality of rehabilita-tion and preservation projects.

National Register of Historic Places HistoricDistrictThis designation is applicable in most of the studyarea. The Historic District was created by theVirginia Department of Historic Resources and theCity of Richmond in 1981. While this designation

uses a federal form, the state will usually designatethe district as a state historic district at the same timethey recommend it for the federal listing. Propertieslisted on the National Register are not subject todesign review controls. A private property ownermay make any changes (if no application is made fortax credits) and even demolish a building (pendingissuance of a Demolition Permit from Richmond’sCommissioner of Buildings) on the National Registerwithout state or federal review. Designation doesprovide for tax incentives to preserve contributing(historic) buildings within a National Registerdistrict. Contributing buildings may qualify for 20%federal and 25% state tax credits for substantialrehabilitation but the owners do not have the optionto take 10% non-historic credit. If an application ismade for the tax credits, the entire project (exteriorand interior changes and any or additions) must bereviewed by state and federal officials using theSecretary of the Interior’s Standards for Rehabilita-tion as a guide. This designation also provides forthe impact of any federally funded or licensedactivity to be assessed and reduced to a minimum ina National Register district.


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The Design Overlay District is the preferred optionto achieve design objectives in Shockoe Bottom.The boundaries of any Design Overlay Districtshould include all of Shockoe Bottom. The DesignOverlay District should include the design review ofall new construction and rehabilitation of existingbuildings. The design guidelines created under sucha designation should provide some degree offlexibility in certain items such as sign design,awnings, and paint colors, but should still be basedon the Secretary of the Interior’s Standards forRehabilitation since the area is already NationalHistoric District for the most part. By basing thelocal guidelines on these federal standards, therewould be similar criteria for local design review andfor state and federal tax credits as well.

The Preferred Option to Achieve DesignObjectives

NOTE: A more complete discussion of these issuesis contained in the Shockoe Bottom Land Use AndDevelopment Strategy Historic Preservation Reportby Frazier Associates prepared as a part of thisplanning process.


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Chapter IV Plan Implementation Strategies

A district as large, diverse and complex as Shockoe Bottom will require several strategies or actions to achieve the goals of the Shockoe Bottom Plan. Revisions tothe City’s Zoning Ordinance and Zoning Map, application of a Design Overlay District, and creation of a Special Tax District and programming funding for publicimprovements are important actions that should be implemented immediately.

Other strategies that should be implemented over a five-year period beginning in the year 2000 include:• implement streetscape and other right-of-way improvement• modify the one way traffic circulation pattern• prepare a truck routing study and designate new truck routes• implement traffic calming measures• acquire sites for provision of parking facilities• expand the Farmers' Market• development of Main Street Station

The above strategies, listed in their order of priority, are needed to achieve Shockoe Bottom Plan goals in a timely manner.

The Shockoe Bottom Planning CommitteeThe Shockoe Bottom Planning Committee was assembled to guide the development of this plan and represents a coalition of organizations and stakeholders inShockoe Bottom. Following the adoption of this Plan by City Council, the Shockoe Bottom Planning Committee should remain intact and active to serve as a mecha-nism for keeping together the multiple organizations with strong interests and commitment to Shockoe Bottom. It will also allow the opportunity for sharing ofinformation among the various participants; all of whom maintain the common interest of achieving their shared vision for Shockoe Bottom and the implementation ofthe Shockoe Bottom Plan.

Membership on the Shockoe Bottom Planning Committee should remain open to represent merchants, residents, and property owner associations, both within andimmediately adjacent to Shockoe Bottom. These include the Church Hill Association, Shockoe Bottom Residents Association, Shockoe Bottom Merchants Associa-tion, Farmers' Market Commission, Richmond Riverfront Development Corporation and Richmond Renaissance. In addition to organizational representatives, thePlanning Committee should also continue to solicit the input of individual Shockoe Bottom business owners, property owners and residents.

The future role of the Planning Committee should be to oversee the implementation of this Plan, and maintain and advocacy role on the behalf of the Shockoe BottomCommunity to insure that the recommendations of this Plan are implemented. In addition, this committee should review and comment on the continuing progress of theMain Street Station development, future planning for the East Canal Walk, the recommended truck routing study as well as other development issues and proposalsimpacting Shockoe Bottom. The Committee should be expanded, if necessary, to insure representation from all organizations in the area.

The Planning Committee should also be positioned to recommend amendments to this strategy as may be needed in the future.

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2. Design Overlay DistrictThe creation of a design overlay district withappropriate design guidelines should beprepared at the same time as the aforemen-tioned new zoning classifications. The ShockoeBottom Design Overlay District should providefor design review of all new construction andthe rehabilitation of existing buildings if thecharacter of Shockoe Bottom is to be preserved.

3. Special Tax DistrictThe Shockoe Bottom Business Association, theShockoe Bottom Residents Association, and theForest City Residential Corporation and othersignificant developers should form an allianceand support the development of a special taxdistrict to assist the city in funding neededpublic improvements in Shockoe Bottom. Aspecial tax district will assure continuity forfunding of public improvements to improve thepedestrian environment and to assist the city inthe financing of parking facilities at criticallocations throughout Shockoe Bottom.

Strategies Requiring Immediate Action Several strategies for implementing the goals andpolicies of the Shockoe Bottom Plan requireimmediate action. These are:

1. ZoningAmend the Richmond Zoning Ordinance andthe Official Zoning Map in order to achieve theland use policies and zoning objectives of theShockoe Bottom Plan and to adequately guidefuture development and revitalization inShockoe Bottom.

Strengthening zoning in the area by creatingtwo new zoning district classifications andapplying the new districts together with otherzoning map changes should be accomplished assoon as possible. The components of thisstrategy are:

a. Creation of a new “mixed use- business”zoning classification consistent with theconcept described in Appendix “A”.

b. Creation of a new “mixed use- residential”zoning classification consistent with theconcept described in Appendix “A”.

c. Rezone Shockoe Bottom and apply the newzoning classifications. Implement otherZoning Map changes as described inChapter III, for each of the six Areas inShockoe Bottom.


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Strategies to be Implemented In Year 2001– 2006

The following strategies are recommended forimplementation over a five year capital budget period.

Establish a Priority for Public Improvement of thePedestrian EnvironmentThere is no recognized hierarchy of pedestriancorridors. A hierarchy should be establish to ensurethat the increasing pedestrian traffic can circulatefreely and safely between destination points. Theinitial hierarchy should include, at a minimum, thefollowing corridors:

• A pedestrian corridor from Cary Street toMain Street Station to unite Shockoe Slipwith Shockoe Bottom,

• A pedestrian corridor uniting Area A withthe Canal Walk by way of 17th Street fromMain Street to Dock Street,

• The Farmers' Market Area from MainStreet to Broad Street and from 17th Streetto Ambler Street, and

• Main Street from Main Street Station toPear Street, which provides access to all ofTobacco Row.

Modify the One-Way Traffic Circulation PatternChange the traffic circulation pattern from a one waymovement to two-way movement on:

• Westbound US Route 360 trucks would bedirected to use 17th Street to Broad Street,left to 14th Street where they would turn leftto cross the James River.

• Eastbound US Route 360 trucks would bedirected to use 14th Street to Broad Street,to I-95 or to 18th Street.

During the near term, trucks would be encouraged tominimize travel on Main and Broad Streets and to useInterstate 95 when possible. Given the impact oftrucks on the residential areas of Shockoe Bottomand Church Hill, a detailed truck routing studyshould be prepared to determine the best alternativesfor future truck travel.

Traffic ControlsTo reduce the speed of Main Street traffic andaccommodate the “kiss and go” traffic at MainStreet Station, special pavement material within theMain Street right-of-way is warranted. This treatmentwill produce a traffic calming effect between 18thStreet and 15th Street in Area A, "Intensive Pedes-trian Area."

The suggested treatment includes:• Installation of transit lanes on each side of

Main Street between 15th Street and 18thStreet for the exclusive use of buses andtaxis. These transit lanes would be identified

• Ambler Street• 17th Street (from Broad Street to Franklin

Street)• 18th Street (from Broad Street to Grace

Street)• 19th Street (from Grace to Main Street)• Grace Street (from Ambler Street to 17th

Street)• Franklin Street (from Ambler Street to 25th

Street).

Support will be needed from the Shockoe BottomBusiness Association, the Shockoe Bottom Resi-dents Association, and the Farmers' Market Commis-sion for this change if it is to be accomplished.

Designate New Truck RoutesThe existing truck routes that run through ShockoeBottom are disruptive to the Church Hill and ShockoeBottom residential communities of which the recentgrowth has occurred primarily through adaptivereuse of obsolete industrial and commercial build-ings. This pattern of adaptive reuse will furtherreduce the industrial/commercial activity that hasdominated the area and result in a pattern of residen-tial, commercial and office use as the dominate landuse activity. Therefore, a new designation of truckroutes is proposed as follows:

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Walk which recently opened east to 17th Street, andthe Main Street Station’s reopening will soonfollow. A revitalization of the Farmers' Marketprogram to increase pedestrian activity is underwayand Forest City is moving ahead with the adaptivereuse of the old Tobacco factories for multi-familyresidential use. Surely, some capital budget fundingis warranted to ensure that adequate pedestriancorridors are improved to encourage pedestriancirculation and that parking spaces are available toaccommodate the tourist and other visitors toShockoe Bottom and the Canal Walk.

A projected budget for implementation of thesestrategies is included as Appendix B.

by the use of a textured paving materialsuch as concrete paving brick or othersuitable paving blocks.

• A slight raising of the intersection elevationat 15th and Main Streets, both segments of17th and Main Streets, and 18th and MainStreets, and the paving of these intersec-tions with granite paving blocks willdifferentiate the intersection treatment fromthe transit lanes.

• Prohibiting left turn movements on 17thStreet from Main Street will encourage theuse of 18th Street to access Farmers'Market parking, since 18th Street has awider right of way and is more conduciveto accommodating vehicular traffic.

Site Acquisition for Parking FacilitiesThe City of Richmond should include the acquisi-tion of the Loving Produce property (on the southside of Franklin Street and adjacent to the MainStreet Station surface parking lot) in the Main StreetStation’s Development Plan for redevelopment as atwo level parking facility. This facility should beshared on a contract arrangement with adjacent 17thStreet development currently lacking customerparking. Early commitment to this concept shouldenhance the adaptive reuse of the old Railroad,YMCA, and the vacant property at the corner ofFranklin and 17th Streets, both are significantbuildings that should be retained. Acquisition of this

site should be based upon the approval of a specialtax district unless other financing for this facilitycan be found.

The acquisition of other parking sites should followthe creation of the special tax district.

Expansion of the Farmers' MarketThe existing site and other constraints on theFarmers' Market severely limit the ability of theMarket to implement new innovative marketingprograms. The present facility was designed toaccommodate vendors of farm products, primarilyvegetables.

To succeed as a public market, new approaches arebeing pursued by the Farmers' Market Commissionto attract consumers to the area on a year-roundbasis. The most logical and appropriate expansion ofthe Market is to the north between 17th and AmblerStreets, including what is now the market parkingarea and /or the existing Loving's Produce building.Contact should be made with the owner of LovingProduce to ascertain the future of the wholesaledistribution operation at this location and thepossible availability of the property.

FundingCapital Improvement Program funding shouldsupport implementation of these strategies forachieving the Shockoe Bottom Plan. The Canal


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APPENDIX A

The following provides suggested elements to be included in the new zoning districts in order to acheive the Land Use Plan objectives.

Concept of new “Mixed Use Business”District

Title and intent of district: It is suggested thedistrict be titled “Urban Business - 2” (UB-2) toreflect its similarity to the current Urban Business(UB) District and to identify it as a primarilybusiness zoning classification. The statement ofintent for the district should be similar to the UBDistrict in many respects. It should emphasize thatthis classification is intended to encourage a denselydeveloped pedestrian oriented business area that iscompatible with the residential uses located nearbyand within the district with minimal disruption fromvehicle oriented land uses and features, such asdriveways, and vehicle traffic crossing publicsidewalk areas. It should also be stated that thisdistrict is intended to promote continuity of store-front character with a mix of small-scale retail,personal service, tourism, restaurant, entertainmentand office uses along street frontages, with dwellingand other compatible uses on upper floors, andpublic parking consolidated at convenient locations.Another key statement is that the district regulationsare intended to preserve the existing predominantscale and character, promote adaptive re-use andretention of existing structures, and ensure that newin-fill development be compatible in scale andcharacter.

Permitted uses: Nearly all of the permitted uses inthe current UB District (primarily retail, restaurant,personal service, office and some general servicebusinesses) should be permitted in the new district.The UB prohibition of “drive-up” facilities inconjunction with any use should also be included. Afew UB uses in the new district should be deleted.These include adult day care, day nurseries, touristhomes and shopping centers. Uses to be addedinclude farmers’ markets, public spaces for outdoorfestivals and public events, hotels (but not motels),nightclubs and entertainment facilities, publictransportation terminals and related facilities, andincidental processing, assembling or fabrication ofproducts that are sold at retail on the premises. APlan of Development should be required (as in theUB District) for new buildings and additions over acertain size, outdoor dining facilities and parkingareas and lots.

Other modifications to UB District regulations thatshould be considered are: deletion of the floor arealimit for dwelling uses (dwelling uses should bepermitted above or to the rear of ground floor streetfrontages); and a deletion of the limits on number ofemployees for certain service businesses. Limitingthe scale of individual commercial uses (e.g. 10,000square feet, with possible exemption for adaptive re-use of existing buildings) should also be considered.This limitation will help retain the predominantsmall-scale character of the area.

Consideration should also be given to prohibitingoutdoor entertainment within a specified distance ofresidential and mixed-use residential districts (e.g.150-200 feet). Requiring a conditional use permit,renewable on an annual basis.

Permitted signs: Generally, the sign regulations ofthe UB District would be appropriate in the new UB-2 District. They are appropriate for a pedestrianoriented shopping and entertainment area. Theprimary exception is the maximum total sign areapermitted on a lot in the UB District. (one sq. ft. perlinear foot of building frontage, not to exceed 50 sq.ft.), which should be increased (e.g. 2 sq. ft. perlinear foot of frontage, not to exceed 100 sq. ft.). UBprovisions for permitted wall signs, projecting signs(one, maximum 12 sq. ft. per building face) awningand canopy signs (one, maximum 6 sq. ft. perbuilding frontage), and freestanding signs (maxi-mum 12 sq. ft., and 10' height) are appropriate in thenew district. As in the UB District, animated,portable, roof and billboard signs should be prohib-ited.

Yard requirements: Setbacks from the street (frontyards) should be prohibited in the new district, inorder to maintain the existing predominant characterof development. Building setbacks could be permit-ted as an exception, when approved in conjunctionwith the recommended design review process, andwhen consistent with existing development on an

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abutting site. No side or rear yards should berequired, except adjacent to property zoned Residen-tial or Residential-Office.

Screening requirements: The standard city zoningordinance screening requirements should be includedin the new district. These include structural orvegetative screening abutting property in a residen-tial district, and screening of parking and refusecollection areas.

Requirements for areas devoted to parking orcirculation of vehicles: Requirements similar tocurrent UB District provisions for the location andimprovement of parking and vehicle circulationareas should be incorporated into the new district.These requirements are:

• no parking between a building and the street(applicable to both frontages on a cornerlot)

• any parking or circulation area that ispermitted adjacent to a street shall beseparated by a landscaped buffer

• no driveways are permitted to intersect astreet if a secondary frontage or alley isavailable

• low intensity lighting shall be provided inparking areas intended for night use

• general provisions for paving, striping andarrangement shall apply to all parking areas.

Additional requirements that should be considered

for parking areas and lots are: minimum tree plantingbased on a “percentage coverage at maturity”standard; and a minimum percentage landscapedarea (e.g. 5% to 10% of the total parking area).Although basic requirements need to be addressed inthe zoning district regulations, design standardsimplemented through a design review process areessential for addressing the details.

Height limit: The building height limit in the districtshould be consistent with the predominant height ofexisting structures (e.g. 2 and 3 stories, 26' - 38').The heights of any newly constructed buildings inthe district should ultimately be determined throughdesign guidelines and the design review process.Flexibility could be provided by specifying a heighttoward the lower end of that range, and permittinggreater height if approved through the design reviewprocess provided it does not exceed the height ofadjacent buildings.

Off-street parking: Off-street parking should not berequired for most individual uses in the UB-2District. Absence of specific parking requirements isrecommended in order to encourage joint-use publicparking facilities at convenient locations, to avoidpressures for individual owners to demolish existingbuildings for parking, and to promote the desiredpedestrian orientation and continuous storefrontcharacter of the area. Parking should be required fordwelling and hotel uses in a manner similar to the B-5

District. Where required parking is provided withinbuildings, maximum possible relaxation of currentCity dimensional standards should be considered inorder to enable the most efficient use of buildingspace.

Concept of new “Mixed Use - Residen-tial” District

Title and intent of district: It is suggested the newdistrict be titled “Mixed Use - Residential” (MU-R)to reflect its mixed use character and its emphasis onresidential use. An option would be to designate thedistrict as “Urban Residential - Mixed Use.” Al-though the district would be similar in many ways tothe current B-5 Central Business District, identifyingit as a “B” district would be inconsistent with theArea C vision and “Residential” designation in theShockoe Bottom Plan.

The statement of intent for the district should reflectthe vision for Area C. The intent is to encourage abroad range of mixed uses, including neighborhoodand specialty retail, personal service, and office uses.Particular emphasis should be focused on residentialuse through adaptive reuse of existing buildings andinfill development compatible in scale and characterwith existing buildings. It should state the District isintended to:

• foster a desirable urban residential environ-ment with amenities and conveniences


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conducive to a high density residentialneighborhood

• minimize potentially incompatible land usesand activities

• afford flexibility to enable practical andeconomic use of existing buildings

• afford an opportunity for a transition overtime from warehouse and light industrialuses

• encourage a predominantly pedestrianoriented environment with minimalphysical and visual disruption from parkingareas and vehicle oriented land uses andfeatures.

• encourage concentrations of street orientedretail and service uses along particular streetfrontages in the district as designated in theShockoe Bottom Land Use Plan Map.

Permitted uses: Nearly all of the permitted uses inthe current B-5 District (primarily retail, restaurant,personal service, office and some general servicebusinesses) should be permitted in the new district.he B-5 District prohibition of “drive-up” facilities inconjunction with any use should be included. Aprovision similar to that in the B-5 District enablingflexibility for continuance and improvement of lightindustrial and warehouse uses that become noncon-forming uses should also be included. A few B-5District uses could be deleted in the new district,including wholesale showrooms, storage and

distribution facilities, and motels (hotels should bepermitted, and a distinction should be made in thezoning ordinance definitions).

Another important modification from the B-5District use regulations is to permit dwelling usesthroughout the district, including ground floor streetfrontages. Other uses that should be added for clarityof intent include, public spaces for outdoor events;public tourism, recreation and other public activitiesrelated to the Canal and Riverfront development; andtourist homes. Consideration should also be given tospecifically listing recording studios and film studiosas permitted uses, since current B-5 language isunclear regarding whether they are a permitted use.Outdoor dining facilities (without entertainment)should be permitted, with conditions similar to thoseproposed in the new UB-2 District. A Plan ofDevelopment should be required for new buildings,additions over a certain size, outdoor facilities andparking areas and lots.

In order to reflect the vision for Area C, consider-ation should be given to regulations that addressthree additional issues. First, to promote a predomi-nant residential character in the district, the scale ofindividual commercial uses could be limited (e.g.10,000 square feet, with exemption for adaptive re-use of existing buildings). A second option, intendedto promote compatibility with a residential use, is tolimit intensive entertainment uses by a performance

standard requiring that where live entertainment orrecorded music is provided, it shall not be audiblebeyond the building or portion of the building inwhich it is located. In addition, a size limit on usesproviding entertainment would help minimizegeneral activity associated with such uses (e.g. 5,000to 10,000 square feet). Finally, in order to encourageconcentrations of street oriented retail and serviceuses envisioned by the Future Land Use Plan, the useregulations could specify retail, restaurant, andservice uses that are permitted only along the streetfrontages shown in the Plan (primarily Main, Cary,19th, 20th and 21st Streets).

Permitted signs: Generally, the sign regulationsproposed for the new UB-2 District would beappropriate in the Mixed Use - Residential District.(See “permitted signs” discussion for UB-2 District.)A possible exception is to prohibit freestandingsigns, particularly since they are not currentlypermitted in the B-5 District that applies to much ofthe area.

Yard requirements: Setbacks from the street (frontyards) should be prohibited in the new district, inorder that in-fill development is provided to maintainthe predominant character of existing development.Building setbacks could be permitted as an excep-tion, when approved in conjunction with the recom-mended design review process, and when consistentwith existing development on an abutting site or

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when provided for purposes of landscaping orresidential site amenity. No side or rear yards shouldbe required, except adjacent to property zonedResidential or Residential-Office.

Screening requirements: Standard city zoningordinance screening requirements should be in-cluded. These include structural or vegetativescreening abutting property in a Residential District,and screening of all parking and refuse collectionareas.

Requirements for areas devoted to parking orcirculation of vehicles: Requirements similar to theproposed UB-2 District provisions for location andimprovement of parking and vehicle circulationareas should be included in the new district. Theseinclude:

• prohibition of parking between a buildingand the street (this prohibition should applyto both frontages on a corner lot)

• any parking or circulation area that ispermitted adjacent to a street (such as at theside of a building) shall be separated by alandscaped strip

• no driveways shall be permitted to intersecta street if a secondary frontage or alley isavailable

• low intensity lighting shall be provided inparking areas intended for night use

• general provisions for paving, striping and

arrangement shall apply throughout the newDistrict.

Additional requirements that should be consideredfor parking areas and lots in the new MU-R Districtare minimum tree planting requirements (based on a“percentage coverage at maturity”) and a minimumpercentage landscaped area (e.g. 5% to 10% of thetotal parking area). Although requirements need tobe addressed in the zoning district regulations,design standards implemented through a designreview process are essential.

Height limit and other bulk requirements: The 60-foot building height limit in the B-5 District isappropriate in the new MU-R district, since it isconsistent with the predominant height of existingstructures in the area. The heights of newly con-structed buildings in the district should ultimately bedetermined through design guidelines and the designreview process. Flexibility should be provided bypermitting greater height if approved through thedesign review process provided it does not exceedthe height of adjacent buildings.

Other building bulk regulations (such as floor arearatios or lot coverage) or residential density provi-sions are not needed, and would unnecessarilycomplicate the new MU-R district. There are no suchprovisions in the current B-5 District. Density limitsare not recommended, due to the wide range of

dwelling unit sizes likely to be developed in the area,and the need to accommodate a variety of adaptivere-use situations. One option to encourage on-siteresidential amenities is to require usable (non-vehicular) open space for newly constructed residen-tial buildings (e.g. 8% - 10% of floor area, as appliesin the current B-4 and HO Districts, respectively).

Off-street parking: Off-street parking should berequired for individual uses in the Mixed Use -Residential District. However, a Parking OverlayDistrict should also be applied to the area as a meansto reduce normal zoning parking requirements. Thisapproach would recognize the lower parkingdemands resulting from the mixeduse urbancharacter of the area. An amendment to the currentParking Overlay Districts provisions in the zoningordinance would be necessary to enable its applica-tion to the Mixed Use - Residential area. Whererequired parking is provided within existing build-ings, maximum possible relaxation of current Citydimensional standards should be considered as ameans to enable the most efficient use of buildingspace.


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GENERALIZED REPRESENTATION OF PROPOSED ZONING STRATEGY MAP

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APPENDIX BSHOCKOE BOTTOM LAND USE AND DEVELOPMENT STRATEGY

AREAS, VISIONS AND RECOMMENDED IMPLEMENTATION MEASURESAREAS FUTURE CHARACTER: "VISION" SUGGESTED IMPLEMENTATION MEASURES

A. Farmers' Market • High pedestrian activity Land use/zoning Area • Pedestrian amenities • Encourage mixed uses (per "vision")

• Night-time activity - primary entertainment uses • Limit the square footage of individual commercial uses• Tourist destination • Require landscaping/other improvements for surface • Retention of character & key historic buildings parking areas• Small scale storefronts • Discourage vehicle-oriented land uses and site features• Mixed land uses, with emphasis on: • Limit driveways and curb cuts 1st floor restaurant, office, retail, personal service • Prohibit building setbacks from street upper floors - residential, office • Apply modest off-street parking requirements for new hotel/tourism support uses, but enable collective and shared parking• Well-distributed surface parking and • (If parking is required) apply dimension, access & location centrally located structured parking for visitors standards for efficient use of surface & in-building parking• Enhanced Farmers' Market activity • Provide public visitor parking • Public gathering place • Establish pedestrian-scale signage standards• Multimodal Transporation Center at Main St. Station Design/preservation

• Provide uniform streetscape improvements -preserve existing historic elements -enhanced sidewalks, with defined crosswalks -pedestrian scale lighting; sidewalk seating benches, street trees -interpretive and public directional signage• Apply special treatment to Main St. as image street• Create and apply guidelines for scale and character of new infill development• Provide design review to ensure preservation of historic properties and apply review process to areas adjacent to historic areas• Apply appearance standards to outdoor dining facilitiesTransportation, Parking and Pedestrian Circulation• Enhance quality and location of parking & expand night-time parking opportunities (see "vision")• Convert portions of 17th (Franklin to Broad), 19th, Franklin, Grace Streets to two-way• Promote primary pedestrian flow on Main, Cary, 17th, 18th Streets• Create strong pedestrian link to Shockoe Slip and Canal• Provide traffic "calming" measures

B-1



B. Broad Street • Attractive gateway to, and links between Shockoe Land use/zoning Corridor Bottom, CBD and Church Hill • Encourage mixed uses (per "vision")

• Varying emphasis of land uses and character among - permit residential, office, retail, adaptive reuse and parking decks and portions of the area lots - Infill commercial development along Broad Street - prohibit, or significantly restrict drive-through uses

- Residential emphasis to east - allow (clearly define), but apply standards for vehicle-oriented land uses - Mixed, adaptive reuse of industrial buildings to north • Require landscaping/other improvements for surface parking areas and

implement through design review process• Apply signage controls appropriate to intended land uses• Apply controls and/or design guidelines to: - provide building setback consistency, and limit curb-cuts and driveways - Require buildings to occupy most of the lot width - Encourage building heights consistent with predominant existing

Design/preservation• Apply consistent streetscape improvements• Provide sense of arrival with gateway treatment on Broad• Create and apply guidelines for scale and character of new infill development• Provide design review to ensure preservation of historic properties, and apply review process to areas adjacent to historic areas• Establish and apply the simplest, least cumbersome design review process capable of achieving the above infill and preservation objectivesTransportation, Parking and Pedestrian Circulation• Enhance quality/amenities of parking

C. Residential • Mixed use - predominant residential Land use/zoning• Neighborhood convenience commercial storefront • Encourage mixed land uses per "vision" character along Main (retail, personal service) - limit intensive entertainment uses: no live entertainment• Specialty retail on north side of Cary Street through - encourage residential adaptive reuse, incl. ground floor Tobacco Row • Limit the scale or square footage of intensive commercial uses especially

infill, preferably through a design review process• Restaurant/entertainment "anchor" near east end of the • Require modest off-street parking for all new uses area on Cary and Main Street corridors • Require landscaping/improvements for parking areas • Residential support uses • Encourage, but not require, (public & private) amenities for residents• Large building scale and building "footprints" • Apply bulk and density standards that enable compatible new infill • Compatible scale new infill residential development residential and commercial development • Continuation of existing compatible light industrial uses • Provide flexibility for continuation (in the interim) of in the interim or near-term existing compatible light industrial uses

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Residential Cont. • Well-landscaped surface parking to rear or side, and Design/preservation internal building parking • Provide streetscape improvements per Tobacco Row plan • Open views across Chapel Island and ensure connection with Farmers Market area• Consistent pedestrian-oriented streetscape • Create and apply guidelines for scale and character of new infill• Pedestrian connections to west, Canal/river, and development to Church Hill • Provide design review to ensure historic preservation

• Establish and apply the simplest, least cumbersome design review process capable of achieving the above infill and preservation objectives• Provide gateway treatment on Main St. at east end

Transportation, Parking and Pedestrian Circulation (see report text for detail)• Provide traffic "calming" measures

D. Canal- related • Canal-oriented development and recreation activities • Coordinate with, and reflect WRT plan • Open space / pedestrian orientation• Parking (minimal) • Consistent amenities and design features

E. Shockoe Slip • Strong pedestrian, vehicular and visual connections Land use/zoning• Retention of character, scale & key buildings • Continuation of "Intensive Pedestrian Area" land uses and land use• Mixed use - restaurant, retail, office predominant controls, with additional accommodation for larger scale buildings

Design/preservation• Apply consistent streetscape improvements to strengthen connection between Slip and Bottom• Create and apply guidelines for scale and character of new infill development• Provide design review to ensure historic preservation• Establish and apply the simplest, least cumbersome design review process capable of achieving the above infill and preservation objectivesTransportation/circulation (see report text for detail)• Enhance quality/amenities of parking, and increase supply• Create strong pedestrian link to Shockoe Slip and Canal

In general - All Areas • Better promote & utilize financial and technical incentives to achieve Plan objectives• Strengthen organizational structure and other means to manage and promote the area

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C-1

Year Implementation Strategy Estimated Cost Responsible Agency

2000 ModifyZoning Ordinance/Amend Zoning Map $ 10,000 Dept. Community Development (DCD)2000 Create/Adopt Design Overlay District $ 15,000 DCD2000 Create Special Tax District $ 13,000 DCD and Law Department

2001 Establish Pedestrian Public Improvement Priority $ 5,000 DCD and Dept. of Public Works (DPW)2001 Continue Scheduled Streetscape Improvements $ 70,000 DPW2001 Modify One Way Street Pattern $ 7,500 DPW2001 Prepare Truck Route Study and Revise Truck Routes $ 66,500 DPW

2002 Continue Scheduled Streetscape Improvements $ 70,000 DPW

Traffic Calming Improvements2002 First Phase (15th Street to 17th Street) $ 450,000 DPW

2003 Continue Scheduled Streetscape Improvements $ 70,000 DPWTraffic Calming Improvements

2003 Complete First Phase (15th Street to 17th Street) $ 375,000 DPW

2004 Continue Scheduled Streetscape Improvements $ 85,000 DPWTraffic Calming Improvements

2004 Second Phase (17th Street to 18th Street) $ 375,000 DPW

2005 Continue Scheduled Streetscape Improvements $ 85,000 DPW2005 Initiate Farmer’s Market Expansion $ 400,000 Farmer’s Market Commission (FMC)

2006 Continue Scheduled Streetscape Improvements $ 85,000 DPW2006 Continue Farmer’s Market Expansion $ 450,000 FMC

APPENDIX C

Estimated Costs to Implement Plan Recommendations

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