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Adopted by reference as an amendment to Virginia Beach Comprehensive Plan August 28, 2012
Virginia Beach, Virginia
h i l lt o p s t r at e g i c g r o w t h a r e a m a s t e r p l a n
u r b a n d e s i g n a s s o c i a t e sa u g u s t 2 0 1 2
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1
P R E PA R E D F O R
City of Virginia Beach
P R E PA R E D BY
Urban Design Associates
The Miles Agency
RCLCO
URS Corporation
VHB
WPL
ST E E R I N G C O M M I TT E E
John E. Uhrin, City Council
James L. Wood, City Council
Jeff Hodgson, Planning Commission
Robert Thornton, Planning Commission
Jack Whitney, Planning Director
Barry Frankenfield, SGA Manager
Steve Herbert, City Manager’s Office
Dorothy L. Wood, Virginia Beach Development
Authority
Ray Firenze, US Navy- NAS Oceana
Deborah Kassir, Virginia Beach Vision
Walter Potter, Potter and Company
Bruce Gallup, Gallup Surveyors and Engineers
Kristina Chastain, Captain George’s Restaurant
Sam Reid, Oceana Gardens Coalition Civic
League
Nancy M. Riedemann, Linlier Civic League
Linda Serrette, Virginia Beach Friends School
Christopher Felton, Saint Nicholas Greek
Orthodox Church
Preston Midgett, Resort Advisory Commission
Elizabeth Friss, Mayor’s Youth Leaders in Action,
Ocean Lakes High School
June Robertson, Sentara Virginia Beach
General Hospital
Brock Potter Potter and Company
Hilltop Strategic Growth Area Master Plan
acknowledgements
H I L LTO P S U P P O RT STA F F
Debbie Zywna, Planning, Project Manager
Robert A. Davis, Planning
Jeryl Phillips, Planning
Mark Schaufer, SGA Office
Richard Lowman Public Works
Barbara Duke Parks and Recreation
Peter Pommerenk Public Utilities
Rob Hudome Economic Development
Bill Johnston Public Works
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Table of Contents
table of contents
INTRODUCTION 3
EXECUTIVE SUMMARY 4
ANALYSIS 5
Portrait of Existing Conditions 6
X-Ray Exhibits 7
AICUZ and APZ /CZ Restrictions 8
Public Outreach 9
Market Analysis 10
The Design Challenge 12
ILLUSTRATIVE MASTER PL AN 13
INFRASTRUCTURE NET WORK 14
Street Network Plan 15
Transit 25
Parks and Open Space Networks Plan 29
Conceptual Bikeways and Trail Network Plan 31
Stormwater Management 33
Sanitary Sewer Systems 36
Water Systems 37
L AND USE AND DEVELOPMENT CASE STUDIES 38
Land Use Plan 39
Building Heights Plan 40
Development Case Studies 41
Development Standards 50
IMPLEMENTATION STRATEGIES 56
NEX T STEPS 59
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3 hilltop str ategic grow th area master pl an: v irginia beach, v irginia | august 2012 | urban design associates introduction
Introduction
COUNCIL’S 5 GOALS
Create financially sustainable City services1
Grow the local economy2
Become a competitive, first class resort for residents, businesses, 3 and tourists
Improve the transportation system4
Revitalize neighborhoods and plan for the future5
Source: A Strategic Plan to Achieve City Council’s Vision for the Future, December 2011
See more about SGAs in the Virginia Beach Comprehensive Plan: http://www.VBgov.com/compplan
Strategic Growth Areas along the Virginia Beach Boulevard Corridor
the city of virginia beach has identified Strategic Growth
Areas (SGAs) that have the potential to become future areas of eco-
nomic growth and unique identity within the City. Six of the eight
SGAs are located along the Interstate 264 /Virginia Beach Boulevard
corridor and a potential future transit alignment. This corridor is the
commercial spine of the city, well served by road access, and adjacent
to stable residential neighborhoods to the north and south. The cor-
ridor is predominantly auto-oriented and low-density development.
The City has embarked on a series of planning studies for the
SGAs that will provide visions for future growth. The strategic
growth area plans will identify appropriate land uses, infrastructure
needs, opportunities for private development, and civic amenities.
The Hilltop SGA 7 is located in the eastern part of the City
between the Lynnhaven SGA 6 and the Resort Area SGA 8. Hilltop
is served by an Interstate 264 interchange at First Colonial Road /
Oceana Boulevard, in addition to Laskin Road, and Virginia Beach
Boulevard.
This study was prepared within a multi-disciplinary, process-based
approach to design in three phases: understanding, exploring, and
deciding. The Hilltop Strategic Growth Area Master Plan has been
a public planning process that unfolded over the course of several
months with many public planning events to ensure a thorough and
implementable Master Plan.
I-264
Gre
at
Ne
ck R
oa
d
I -264
Lynnhaven Bay
Western Branch Lynnhaven River Broad
Bay
Ind
ep
en
de
nce
Blv
d.
Lo
nd
on
Bri
dg
e R
oa
d
4 5 6
7
8
Pembroke SGA 44
Rosemont SGA 55
Lynnhaven SGA 66
Hilltop SGA 77
Resort Area SGA 88
Naval Air Station OceanaLynnhaven
Mall
Bow Creek Golf Course
Mt. Trashmore Park
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4 hilltop str ategic grow th area master pl an: v irginia beach, v irginia | august 2012 | urban design associates executive summary
ILLUSTRATIVE MASTER PLAN
ALTERNATIVE ALIGNMENT FOR TRANSIT ALONG LASKIN ROAD
Executive Summary in 2011, the city of virginia beach commissioned Urban
Design Associates (UDA) to prepare a Master Plan for the Hilltop
Strategic Growth Area (SGA). The process involved extensive public
participation and was guided by a Steering Committee of stakehold-
ers and representatives from the community and the City. The UDA
Team gathered in Virginia Beach to collect information and discuss
the opportunities for redevelopment with citizens interested in the
Hilltop SGA. After a period of analysis, the team conducted a design
charrette at the Virginia Beach City Public School’s Laskin Road
Annex in March of 2012 to prepare design ideas in an open studio. The
purpose of the charrette was to prepare a series of design alternatives
for the Hilltop SGA.
The charrette events included focus group meetings, a public open
house, and a public presentation of design concepts. The UDA team
then refined the plan, working with the City, and presented draft rec-
ommendations to the public in a May public meeting. The following
is a summary of design principles that evolved out of the planning
process that will guide the proper frameworks and strategies for imple-
mentation of the plan.
Build a network of streets to improve traffic flow1
Provide trails and sidewalks for pedestrians and cyclists2
Provide a mix of retail, restaurants, and office uses3
Build on existing health care, food, and adjacent recreational 4
assets
Match quality of local businesses with equally memorable built setting5
Provide additional transit connections to Hilltop6
Comply with AICUZ land use zoning requirements7
Reduce land areas devoted to parking and replace with more 8
productive uses
Revisit and update old plans for roads and infrastructure 9
Incorporate an Urban Tree Canopy Program10
THE HILLTOP SGA PUBLIC PROCESS: KEY MILESTONES
25–27 January 2012 Phase 1 – Initial analysis and focus group meetings and Kick Off Public Meeting
12–16 March 2012 Phase 2 – Design Charrette
14 March 2012 Open House
15 March 2012 Public presentation of design alternatives
21–22 May 2012 Phase 3 – Final Public Presentation of Master Plan Recommendations
9–11 July 2012 Presentation of Master Plan Recommendations to Planning Commission and City Council
S T UDY A RE A
analysis
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Analysis the hilltop strategic growth area analysis process
began in January 2012 with information-gathering by the consul-
tant team composed of The Miles Agency, URS Corporation, VHB,
WPL, and UDA. The team began by meeting with City staff and the
Steering Committee. A series of focus group sessions were also held
where technical experts, community leaders, members of the busi-
ness community, residents of nearby neighborhoods, and stakehold-
ers were invited to share their experience with the consultants. These
meetings covered a range of topics including transportation, utilities
and infrastructure, environment and ecology, development, and lead-
ership. The initial public meeting invited people to share their opin-
ions about the area and their aspirations for the Hilltop area.
In early 2011, the UDA Team met with the City and department
experts in a special work session to explore planning issues common to
Rosemont, Lynnhaven and Hilltop SGAs. These discussions were sum-
marized in a memo for use during subsequent planning phases. This
was reviewed to kick off the Hilltop SGA process in January 2012.
Following the January meetings, the consultants continued their
efforts of gathering information and data. The team began to sift
through the analysis information, better understand the possibili-
ties of the Hilltop SGA, and explore options for implementation.
UDA summarized the public input from the first round of commu-
nity meetings. UDA also prepared a series of analytical plans called
X-Rays as well as a Portrait of Existing Conditions for the study
area. The study area boundary shifted from the original boundary sev-
eral times throughout the process to reflect public input and observed
field conditions.
PL ANS AND STUDIES AFFECTING THE H ILLTOP SGA
2009 Comprehensive Plan1
APZ-1 /Clear Zone Master Plan2
Bikeways and Trails Plan3
Virginia Beach Outdoors Plan4
Mixed-Use Development Guidelines5
Retail Establishment & Shopping Centers Guidelines6
Virginia Beach Transit Extension Study (HRT)7
VDOT Arterial Roadway Improvement Plans8
Virginia Beach Capital Improvement Plan9
analysis
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PORTRAIT OF EXISTING CONDITIONS
The urban design analysis includes a base plan of the area that com-
bines information from several sources to provide a base from which
we can develop alternative concepts. It includes all of the elements
of the area: streets, buildings, land use, vacant land, topography, and
natural features.
Portrait of Existing Conditions
SINGLE - FA MILY RESIDEN T IA L BUILDING
MULT I - FA MILY RESIDEN T IA L BUILDING
RE TA IL BUILDING
OFFICE BUILDING
INDUS TRIA L BUILDING
INS T IT U T ION A L BUILDING
COMMERCIA L A ND INDUS TRIA L L A ND
PUBLIC PA RKS A ND OPEN SPACE
SEMI - PUBLIC OPEN SPACE
PA RK ING LOT
WATER
S T UDY A RE A
U T IL IT Y CORRIDOR
I-264
I-264
I-264
First C
olo
nia
l Ro
ad
First C
olo
nia
l Ro
ad
Laskin Road
Wolfsnare Road
Republic Road
Hillto
p R
oa
d
Re
ge
ncy
Driv
e
Laurel Lane
Southall Drive
Donna Drive
Kmart
Whole Foods
Friend’s School
Target
Marketplace at Hilltop
Hilltop Shopping Center
Regency Hilltop Shopping Center
Charles Barker Toyota
Trader Joe's
Villa
ge D
rive
Village Drive
Upper Wolfsnare Plantation
Parish Day School
St. Nicholas Greek Orth.
Church
Linkhorn Park Elem. School
Freedom Fellowship
Church
Good Shepherd Lutheran Church
Laskin Road Annex
Ego DriveV
ictor R
oa
d
Mable Lane
Wildwood Drive
Virginia Beach Boulevard
Potters Road
School Bus
Parking
Oceana Boulevard
Oce
an
a Bo
ule
vard
Virginia Beach Boulevard
No
rth O
cea
na
Bo
ule
va
rd
Old Virginia Beach Road
We
st La
ne
Laskin RoadW
inw
oo
d D
rive
Fre
ma
c Driv
e
Linkhorn Bay
Wolfsnare Creek
Reynard Drive
Wisco
nsi
n A
venue
Gre
at N
eck
Cre
ek
Kroger
POTEN T IAL TR A NSIT L INE
analysis
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STREETS X-RAY The Hilltop SGA is dominated by arterials and restricted access streets. The local network within the SGA is tattered compared to the surrounding neighborhoods, limiting the number of choices drivers have for navigating the area. Large arterials break the SGA into isolated “silos” that are difficult for drivers, pedestrians, and cyclists to cross safely.
PARKS AND OPEN SPACE X-RAY The open space system in the Hilltop SGA is flanked by branches of the Lynnhaven River to the west and Linkhorn Bay to the east. A series of small parks, fields, and institutions serve the SGA, but typically they are disconnected from the waterways and from one another, lacking a system of trails and connected spaces. Few people are able to walk to local parks.
SETTLEMENT PATTERNS X-RAY The Hilltop SGA is largely built out of low-density, parking-lot intensive uses including retail shopping, restaurants, and services. Some smaller multi-family development is present in and around the Hilltop SGA study area.
RESIDENTIAL X-RAY Neighborhoods surround the shopping corridor within the Hilltop SGA. Some neighborhoods were added to the SGA to recognize the need to integrate them into the thinking.
LAND USE DISTRIBUTION EMPLOYMENT X-RAY A diverse mix of retail options is available along Laskin Road, but some of the uses are under-utilized and past their design life.
PARKING X-RAY Virginia Beach was built to accommodate the automobile. Parking lots consume an enormous amount of what could otherwise be productive land while diminishing the health and vitality of the environment and watershed.
X-Ray Exhibits
Understanding the fabric of the site is a key part of the design pro-
cess. This is accomplished through a series of diagrams called
UDA X-Rays® which pull apart information so that the site can be
more clearly understood. Each x-ray describes not only a physical
element of the area, but also potential issues to be resolved.
Streets19.7%
Parking47.0%
Buildings13.5%
Open Space11.5%
Other8.3%
analysis
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AICUZ ANALYSIS X-RAY The Hilltop SGA has a very unique dynamic regarding land use. Redevelopment areas are layered with various land use restrictions imposed by AICUZ. The adopted APZ-1 /CZ Master Plan identifies permitted uses in the most restricted areas and will be carried forth in this planning process.
AICUZ and APZ /CZ RestrictionsDevelopment in the Hilltop SGA is limited, because the area is
located within the zones designated as greater than 75 db by the
Air Installation Incompatibility Use Zones (AICUZ) as well as the
Clear Zone (CZ) and Accident Potential Zones 1 and 2 (APZ-1 and
APZ-2) in certain portions. Each designation has specific land use
restrictions, with Clear Zones being the most limited and the APZ-1
zone following in limitations. AICUZ zones are organized by acci-
dent potential zones and noise levels, with increasing restrictions
in higher noise contours. These overlays dramatically impact in the
Hilltop SGA. For the most part, new residential redevelopment is
prohibited beyond what exists today, therefore precluding a true mix-
ing of uses or other development typologies that rely on significant
residential uses. Tables describing all compatible land uses in AICUZ
can be found in Article 18 of the Virginia Beach Zoning Ordinance
(Appendix A of the City Code).
Limited permitted residential growth restricts the mix of uses
that can locate in Hilltop. The fewer the number of uses, in particular
residential, the greater the burden on the transportation network.
Mixing of uses should be maximized to the greatest extent to
minimize local trips.
NOISE ZONES
A P Z-2 ZONE
A P Z-1 ZONE
CLE A R ZONE
> 75 DB Noise Zone
> 70-75 DB Noise Zone
analysis
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Public Outreach
The first step in the Hilltop SGA Master Plan design process con-
sisted of detailed analysis of existing conditions, collection of statis-
tical data, mapping, development of analytical x-ray diagrams, site
documentation, and site and precedent photography. In addition to
this ‘hard’ analysis, the ‘soft’ analysis presented a picture of the per-
ceptions and aspirations of the community and the stakeholders. This
part of the process included meetings with the client group, Steering
Committee, focus groups, high school students, interviews, and a
public meeting. At each of these meetings, participants were asked
the same three questions:
What are the Strengths of the Hilltop SGA?1
What are the Weaknesses of the Hilltop SGA?2
What are the Visions and Opportunities for the Hilltop SGA in 3
the future?
STUDY AREA WEAKNESSES
Traffic volumes, intersections, and feeder roads for non-regulars;
No pedestrian and bicycle accommodation;
Navy jet noise and AICUZ restrictions on real estate development;
Unremarkable physical environment (“placeless”);
“Four Islands” of strip retail development divided by high-way barriers;
Number, frequency, and response time of emergency vehicles headed to hospital;
Flooding from insufficient stormwater and drainage facilities;
Access to transit, including the proposed location of LRT station;
Lack of usable public open space; and
“Back of house” uses along Virginia Beach Boulevard and south of Interstate 264.
STUDY AREA OPPORTUNITIES
An authentic pedestrian-first, “park once” environment;
Development of a truly connected street network that takes pressure off arterials and breaks down divide between the four corners;
Provide for parks, open space, and stormwater facilities;
Plan for future potential transit corridor;
Make transit centrally accessible;
Introduce a tree canopy program to mitigate stormwater and reduce parking lot impacts;
Improve efficiency and quality of land use with more com-pact development and less prominent parking facilities;
Diversify the Hilltop Experience (“plenty of places to spend money, need a reason to spend time”);
Move “back of house” uses to APZs; and
Capture more tourism spending.
Red dots signifying what the residents and stakeholders indicated as the weaknesses in the Hilltop SGA centered around transportation, the inefficient network of streets, and lower-end or vacant properties.
Blue dots representing the priorities and visions of stakeholders appeared throughout the Hilltop SGA study boundary, but focused on key redevelopment sites.
Green dots, representing the strengths of the Hilltop SGA, focused around open space and several of the shopping center areas.
STUDY AREA STRENGTHS
Proximity to amenities such as the hospital, beach, retail, schools, and churches;
Diverse mix of retail and nearby housing that is attainable for a diverse demographic, including military families, empty nesters, and young families;
Presence of food with Stoney’s Produce, six grocers, and many local restaurants;
Predominance of locally-owned small businesses and retailers;
High-end retail destination within city;
Access from Virginia Beach Boulevard and Interstate 264;
Current transit service features two bus lines;
Feeder roads for bicyclists and local traffic; and
Ability to attract spending from Oceanfront tourism.
analysis
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Market Analysis
CURRENT MARKET DRIVERS
The Hilltop SGA represents a unique opportunity to enhance an
established market area with a distinct identity within the City of
Virginia Beach. However, Hilltop’s current success is its greatest
challenge to future redevelopment.
Today, Hilltop can be understood as a diverse commercial district
anchored by a strong collection and variety of retail developments,
with ancillary office and industrial /flex users. Key factors that have
contributed to Hilltop’s current success include:
Location at a key crossroads of three major East-West connectors »
(I-264, Virginia Beach Blvd, and Laskin Road) and one of the
few North-South connectors (First Colonial Road) within the
city. These key thoroughfares provide access to the region’s major
economic drivers, including:
Sentara Virginia Beach General Hospital ›
Naval Air Station Oceana ›
Resort area and tourist destinations ›
Proximity to a high concentration of affluent households in the City. »
EXISTING MARKET CONDITIONS
Hilltop’s retail properties have consistently outperformed the overall
Virginia Beach market. Though additional competitive market areas
(such as Town Center) now offer newer environs at a similar cost to
tenants, this has had little effect on Hilltop’s performance and its per-
ception as a premier retail and medical office location within Virginia
Beach. Hilltop commands a household audience and provides retail
options across all expenditure categories; Town Center retail primar-
ily offers restaurant and dining options for adjacent office employees
and a nightlife crowd. New soft goods retailers looking to expand
into the Hampton Roads market typically cite Hilltop as their top
choice for a first retail location. The reasons for as such are as follows:
Established shopping destination with diverse retail base that 1
enhances total sales potential rather than competing for a share of
limited spending
Proximity to Oceanfront Resort and major tourist destinations2
Ideal location at the intersection of major transportation routes3
Hilltop’s top retail properties achieve rents of $25–30/SF, con-4
sistent with the citywide top of market. These properties, located
at the intersection of First Colonial Road and Laskin Road, have
a collective vacancy rate at or below 5% for over 1 million SF
of retail. Their enduring success can be attributed not only to its
base location and demographic factors, but also to the unique and
diverse tenant base that chooses to locate in Hilltop, despite its
dated building stock and configuration, rather than any particular
quality of the retail centers themselves.
Other users, especially medical office, have clustered in and
nearby the Hilltop SGA because of its proximity to Sentara Virginia
Beach General Hospital, which has historically been the primary
hospital serving City residents and is currently the City’s only top-
rated trauma center. While the recent opening of Sentara Princess
Anne Health Campus to serve the southern half of the city — where
most new household growth has located — may increase competition
for ancillary medical users and may prompt a re-shuffling of health
services providers within the City, it does not pose a true threat to
the expansion of a health cluster in the Hilltop SGA. In fact, it may
promote the expansion of total medical and health services employ-
ment within the City.
City-wide, especially in the Hilltop SGA, many medical office
users have chosen to locate in building stock not constructed explic-
itly for medical use. This indicates a market opening for true medical
office space designed specifically for health care users rather than
adapted to their unique needs. Available office space within the SGA
marketing specifically to medical users (though it is unclear if origi-
nally intended as such) has asking rents of $20–$24/SF full service.
This is a premium of 20–25% over asking rents at other comparable
office environments nearby. While the provision of new, medical-spe-
cific office space therefore presents a near-term opportunity, realiza-
tion of the total potential medical office demand through 2030 would
likely require redevelopment of under-utilized sites for higher and
better use.
Finally, examination of property performance vis-à-vis physi-
cal and location assets suggests that Hilltop’s successes have come
despite increasing transportation, access and planning constraints.
It in fact is likely under-performing relative to its true potential, as
an example of a place that can achieve the next level of performance
with thoughtful placemaking and physical planning improvements.
Hence the recommendations below are founded on the following
concept: rather than an entire reinvention, the SGA process should
allow the area to become a “better version of itself ” that addresses
the constraints that currently may prevent the area from function-
ing at its maximum efficiency. Based on market trajectories visible
0%
10%
20%
30%
40%
50%
60%
2011
2012
2013
2014
2015
2016
2017
2018
2019
2020
2021
2022
2023
2024
2025
2026
2027
2028
2029
2030
Capture of Medical Office Demand by SGACity of Virginia Beach2011-2030
Hilltop SGA Newtown SGA Pembroke SGA
analysis
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to date — specifically the strong performance of the assets but lim-
ited room for upside potential that will drive private redevelopment
absent physical improvements — failing to reinvest will likely mean
that Hilltop will likely endure in its current form — as a collection
of auto-oriented strip retail centers with other commercial uses dis-
persed throughout.
HILLTOP SGA POSIT IONING
The area within the SGA boundaries should be considered as having
two primary market positions, each of which is mutually-reinforcing:
Premier Retail Destination
Top regional retail destination serving local and regional house- »
holds and attracting visitors from the Oceanfront.
Establish Hilltop as one of the luxury retail locations serving ›the entire Hampton Roads market
Create a pedestrian-friendly streetscape that provides an unpar- ›alleled shopping and dining experience
Located north of I-264 and centered on the First Colonial and »
Laskin Road intersection, and extending along the Laskin Road
corridor, that encompasses the primary commercial developments
for which the Hilltop area is known
This area has distinct market opportunities and will experience ›the majority of development forecasted within this SGA.
Production, Distribution and Repair District
Branded service district that enhances the market dynamics of »
existing businesses and lower intensity land uses
Faces similar conditions to analogous districts within the previ- »
ously studied Lynnhaven SGA
Located south of I-264 primarily along Virginia Beach Blvd, part »
of a continuous belt of light industrial that stretches through mul-
tiple SGAs
The planning goal for Hilltop SGA should be to resolve physical
issues that have hampered the evolution of the area and that allow it
to reach its full market potential. Despite its positioning at the top of
the market, the area is conceivably under-performing relative to the
potential of its market drivers. These underlying strengths should:
Enhance the SGAs attractiveness to an even broader array of »
regionally-attractive and destination retailers.
Attract a range of commercial developers who may be capable of »
executing land aggregation and complicated development deals
as well as assume control or assist with the repositioning of exist-
ing assets in order to introduce higher quality that can increase
Hilltop’s draw from city /region-wide to supra-regional.
Allow for the flexibility for medical offices to locate and expand »
within the Hilltop SGA.
REAL ESTATE STRATEGIES
Of all of the SGAs, arguably, Hilltop requires the least direct level of
pure real estate intervention or aggressive market enhancement sim-
ply because existing market dynamics preclude such strategies; exist-
ing properties are already desired locations for retailers and medical
office, and the surrounding demographics and economics are superb.
Instead, this is an area where thoughtful planning, public realm,
investment, and transportation design could very well help the area
reach additional velocity, putting the opportunity — and responsibil-
ity — squarely on planners and transportation officials to make the
right calls regarding public improvements.
Effective strategies should focus more on creating a walkable grid
of local streets, identifying potential parcel assemblages and market-
ing these as prime redevelopment sites, and encouraging the forms
and types of development identified as preferable in the SGA plan.
These tenets can enhance the interaction between the SGA planning
process and real estate market dynamics:
The SGA plan should identify a location in which public invest- »
ment in high quality, pedestrian-friendly streetscape can result in
a walkable street grid that may spur the existing market to assem-
ble and redevelop the adjacent parcels.
This should occur at under-performing sites within or near the ›retail core surrounding the Laskin Road and First Colonial
Road intersection.
These areas are appropriate for this intervention because ›under-performing core properties have the strongest upside for
enhanced marketability and value creation, and therefore could
catalyze additional activity nearby.
Future development in this location should be a minimum of four to »
five stories and include vertical parking structures where appropriate.
Structured parking can free up additional developable land ›within the retail core — a location currently development-con-
strained by its surface parking.
Encourage a “park once” paradigm ›
Prime the pump for future mixed-use or at least walkable ›development
In order to jump start retail development, the SGA process must »
also address the challenge of creating an internal street network,
understanding the existing parcel boundaries and the land uses
that are likely to endure in the long-term. This process can also
identify potential locations for eventual parking structures to
serve commercial development.
Potential future vision — regional high-end shopping. ›
Benefit from beach /resort as well as household base ›
Perfect complement to regional and supra-regional tourism ›strategy
Opportunity for department stores to upgrade overall retail ›
While many of these high-performing parcels may currently ›feel little pressure to reconfigure or add density, the SGA plan-
ning process should put in place these future access and park-
ing plans for when market demands for denser development
becomes clear.
analysis
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The Design Challenge
From the responses and data gathered in the initial phase of the
design process, several themes emerged that informed the design
principles. The themes highlight several design challenges:
Break down the ‘silos’ created by Laskin Road and First 1
Colonial Road
Create usable parks and open space2
Develop easy-to-use transit3
Bring back the tree canopy to deal with heat-island-effect and 4
stormwater issues
Diversify the Hilltop experience to widen market appeal and 5
accessibility
Expand the tourism market capture6 Open space in the Hilltop SGA is limited and some existing open spaces are not functionally usable as either active or passive recreational space. The plan should appropriately determine functional parks and land suitable for development.
Building on existing strengths in the retail market will help to expand the tourism market in Hilltop.
Excessive surface parking and current zoning regulations have resulted in single, separate uses. This creates neighborhoods and places that are not interconnected and walkable and lends to the feeling of being in isolated “silos.”
Commercial areas in Hilltop are often lacking the tree canopy found in other parts of the City. Street trees provide for comfort, stormwater management, and reduction of heat impacts of such large paved areas. If street trees along street corridors are not possible, tree planting should be increased on commercial parcels to compensate.
Hilltop currently has an abundance of auto oriented retail. Many of these areas could be transformed to allow for a more diverse, pedestrian scaled experience.
The design of the public realm around stops can give the perception that transit is inaccessible and hard to use.
fr amework pl an and key development sites
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Illustrative Master Plan
SINGLE - FA MILY RESIDEN T IA L BUILDING
MULT I - FA MILY RESIDEN T IA L BUILDING
NON - RESIDEN T IA L MIX ED -USE BUILDING INS T I T U T ION A L BUILDING
OFFICE BUILDING
FLE X BUILDING
PUBLIC PA RKS A ND OPEN SPACE
PA RK ING G A R AGE
PA RK ING LOT
WATER S T UDY A RE A
The Hilltop SGA Illustrative Master Plan is based on the design
principles identified in the analysis phase of the public planning
process. The plan expands the developability of many of the local
businesses by transforming land areas devoted to parking and under-
utilized commercial property into a mix of retail and office opportu-
nities. Targeted public infrastructure improvements and the potential
for enhanced transit service will help to evolve the Hilltop SGA as a
convenient, regional retail destination that’s within close proximity to
the beach.
DESIGN PRINCIPLES
Build a network of streets to improve traffic flow; »
Provide trails and sidewalks for pedestrians and cyclists; »
Provide a mix of retail, restaurants, and office uses; »
Build on existing health care, food, and adjacent recreational assets; »
Match quality of local businesses with equally memorable built set- »ting;
Improve multi-modal connections from the adjacent neighborhoods; »
Provide additional transit connections to Hilltop; »
Comply with AICUZ land use zoning requirements; »
Reduce land areas devoted to parking and replace with more produc- »tive uses; and
Revisit and update old plans for road and infrastructure improvements. »
ILLUSTRATIVE MASTER PLAN
Note: Future street alignments will be
determined in further studies, and will
be based on property availability and
feasibility.
I-264
I-264
I-264
First C
olo
nia
l Ro
ad
Wolfsnare Road
Republic Road
Hillto
p R
oa
d
Re
ge
ncy
Driv
e
Laurel Lane
Donna Drive
Kmart
Target
Marketplace at Hilltop
Hilltop Shopping Center
Regency Hilltop Shopping Center
Charles Barker Toyota
Trader Joe's
Villa
ge D
rive
Village Drive
Upper Wolfsnare Plantation
Parish Day School
St. Nicholas Greek Orth.
Church
Freedom Fellowship
Church
Good Shepherd Lutheran Church
Laskin Road Annex
Ego Drive
Victo
r Ro
ad
Mable Lane
Virginia Beach Boulevard
Potters Road
School Bus
Parking
Oce
an
a Bo
ule
vard
Virginia Beach Boulevard
No
rth O
cea
na
Bo
ule
va
rd
Old Virginia Beach Road
We
st La
ne
Laskin Road
Win
wo
od
Driv
e
Fre
ma
c Driv
e
Linkhorn Bay
Wolfsnare Creek
Reynard Drive
Wisco
nsi
n A
venue
Gre
at N
eck
Cre
ek
Whole Foods
Friend’s School
POTEN T IAL TR A NSIT L INE
First C
olo
nia
l Ro
ad
Laskin Road
Oceana Boulevard
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Infrastructure Network
STREET NETWORK PLAN TRANSIT NETWORK PLAN
TRAIL NETWORK PLAN
SANITARY SEWER AND WATER SUPPLY PLAN
PARKS AND OPEN SPACE NETWORK PLAN
STORMWATER MANAGEMENT PLAN
the redevelopment of the Hilltop SGA as a well-connected,
transit-oriented commercial center largely depends on the align-
ment and station location of the proposed LRT extension. As the
last neighborhood stop on the LRT system between Norfolk and the
ocean, the Hilltop SGA is uniquely poised to capture the retail and
office growth that this system will allow. This infrastructure network
plan proposes an updated street network that will better connect
residents and guests to local and regional destinations and allow for
a choice of travel modes. The street network plan is supplemented by
the proposed trail network, which will better connect neighborhoods
to each other and residents to the proposed open spaces. At the core
of this is an updated stormwater management and water supply plan
which supports future growth and development in the Hilltop SGA.
Cumulatively, these proposed infrastructure improvements will act
to catalyze a better connected, more mixed-use Hilltop that is able to
capitalize on its connectivity to the beach and region.
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PROPOSED STREET NETWORK REPUBLIC ROA DDONN A DRIV E NE VA N ROA DV IRGINIA BE ACH BOULE VA RDL ASK IN ROA DFIRS T COLONIA L ROA DSITE BOUNDA RY
Street Network Plan
The configuration of streets and arterials in the Hilltop SGA is
challenging for improving public accessibility with a neighborhood-
based network of walkable streets. Many surrounding neighborhoods
have cul-de-sac based street patterns. Laskin Road, First Colonial
Road, Virginia Beach Boulevard, the rail line, and Interstate 264 cre-
ate additional barriers between neighborhoods.
The Hilltop SGA plan seeks to address the current infrastruc-
ture network by defining a clear hierarchy of streets to establish a
structure of development blocks and reconnect places. The plan
recommends improvements for major streets in the Hilltop SGA
that can support urban, walkable environments that are positioned
to service growth. Landscaping has a major influence in creating an
environment that is safe and conducive to pedestrians and cyclists. It
is important to increase tree canopy along every roadway corridor. If
this is not achievable, then there should be a need to compensate by
increasing the amount of trees within the surrounding commercial
areas. Each proposed street section is drawn in detail on the follow-
ing pages to show optimum designs for all users.
Note: The Street Network Plan components that are included in this Master
Plan are concepts presented within the context of the overall vision that is
desired to be achieved for the Hilltop SGA area. However, actual roadway
alignments, cross sections (including number of lanes) and other geometric
features can only be specifically determined during the design development
process with the assistance of professional engineering analysis. These engi-
neering analyses are required to evaluate and balance the full range of
safety, technical, cost, environmental, and public input factors.
I-264
I-264
I-264
First C
olo
nia
l Ro
ad
First C
olo
nia
l Ro
ad
Laskin Road
Wolfsnare Road
Republic Road
Hillto
p R
oa
d
Re
ge
ncy
Driv
e
Laurel Lane
Southall Drive
Donna Drive
Kmart
Target
Marketplace at Hilltop
Hilltop Shopping Center
Regency Hilltop Shopping Center
Charles Barker Toyota
Trader Joe's
Villa
ge D
rive
Village Drive
Upper Wolfsnare Plantation
Parish Day School
St. Nicholas Greek Orth.
Church
Linkhorn Park Elem. School
Freedom Fellowship
Church
Good Shepherd Lutheran Church
Laskin Road Annex
Ego DriveV
ictor R
oa
d
Mable Lane
Wildwood Drive
Virginia Beach Boulevard
Potters Road
School Bus
Parking
Oceana Boulevard
Virginia Beach Boulevard
No
rth O
cea
na
Bo
ule
va
rd
Old Virginia Beach Road
We
st La
ne
Laskin RoadW
inw
oo
d D
rive
Fre
ma
c Driv
e
Linkhorn Bay
Wolfsnare Creek
Reynard Drive
Wisco
nsi
n A
venue
Gre
at N
eck
Cre
ek
Ne
va
n R
oa
d
Whole Foods
Friend’s School
LOC A L S T REE TSSTREET HIERARCHY
I -264
PRIM A RY SECONDA RY T ERT I A RY
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L ASKIN ROAD: EXISTING CONDITION AND
APPROVED VDOT DESIGN
Laskin Road is a major arterial which serves as Hilltop’s main east /
west street and as one of four primary entrances to the oceanfront
resort area. Currently the roadway consists of a four-lane divided
road with adjacent bidirectional service roads which are separated
from the main thoroughfare by planted medians. The current con-
figuration of Laskin Road impairs the crossing of pedestrians and
motorists alike; the only striped pedestrian crosswalk is located at its
intersection with First Colonial Road.
The approved VDOT design from 2000 removes the frontage
roads and maintains the curb cuts, not eliminating or consolidat-
ing them in this design. VDOT proposes to consolidate the existing
number of travel lanes and to add lanes at intersections for turning
movements. VDOT further proposes to add cross walk striping and
pedestrian signalization.
The existing condition and VDOT approved design for Laskin
Road both treat the road primarily as a vehicular throughway and
not as a pedestrian and transit-friendly corridor. While the VDOT
proposal will add capacity, it will further exacerbate the perception
of Laskin Road as a barrier to pedestrian movement. Continuous
right turn lanes may provide opportunities for on-road bike lanes and
potential future transit. However, the “body language” of the design
still privileges the car as the dominant user of the right-of-way.
Planned capacity improvements to both First Colonial Road
and Laskin Road, particularly at the intersection of these roads, will
provide more expedient transit of emergency vehicles to the hospital.
Improvements will provide needed capacity at the intersection trans-
lating into reduced queues and improved speeds. The City should
maintain its emergency vehicle preemption system to provide the
quickest response times for emergency responders.
AERIAL PERSPECTIVE OF EXISTING LASKIN ROAD (LOOKING WEST)
AERIAL PERSPECTIVE OF APPROVED VDOT DESIGN FOR LASKIN ROAD
(LOOKING WEST)
LASKIN ROAD: APPROVED VDOT DESIGN FACING EAST
160' R.O.W.
LASKIN ROAD: EXISTING STREET SECTION FACING EAST
160' R.O.W.
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LASKIN ROAD: EXISTING STREET SECTION FACING EASTHILLTOP SGA PROCESS PREFERRED L ASKIN ROAD DESIGN
ALTERNATIVE WITHOUT TRANSIT
In order to meet anticipated future traffic demands in a way that
benefits all users, Laskin Road will consolidate its service roads to
create six total travel lanes plus additional turn lanes. This allows for
the creation of a buffer along the road which will accommodate bike
lanes, walks, and landscaping. In addition to improvements along the
proposed road, promoting safer and more efficient pedestrian access
across the arterial will be accomplished by maintaining the median,
placing crosswalks at intersections, and shortening crossing distances.
L ASKIN ROAD WITHOUT
TR ANSIT
DESIGN CRITERIA
Max 6 through lanes pre- »ferred
Create a multi-modal arterial »
Consolidate service roads »and narrow travel lanes to create pedestrian accommo-dations on either side
Provide on-street bike lanes »
Provide a landscaped verge »to create a buffer between the roadway and the shared-use path on either side
Limit dedicated right-turn »lanes
Undergrounding of utilities »
AERIAL PERSPECTIVE OF HILLTOP SGA PROCESS PREFERRED LASKIN ROAD
WITHOUT TRANSIT (LOOKING WEST)
160' R.O.W.
160' R.O.W.
PREFERRED ALTERNATIVE FOR LASKIN ROAD WITHOUT TRANSIT: POTENTIAL SECTION FACING EAST (PENDING FURTHER STUDY)
Note: Street designs are conceptual. Where possible, utilities should be under-
grounded to provide room for pedestrian and cyclist accommodations. Street trees
should be included in designs wherever possible. If conditions prohibit, tree cover
should be compensated for on private development parcels.
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LASKIN ROAD: EXISTING STREET SECTION FACING EAST
PREFERRED ALTERNATIVE FOR LASKIN ROAD WITH TRANSIT: POTENTIAL SECTION FACING EAST (PENDING FURTHER STUDY)
HILLTOP SGA PROCESS PREFERRED L ASKIN ROAD DESIGN
ALTERNATIVE WITH TRANSIT
The illustrated Laskin Road with transit option is the preferred
design alternative resulting from the Hilltop SGA process. This
design differs from the previous in that it utilizes a portion of the
proposed buffer for the proposed LRT system. This option maintains
the benefits of simplified lane configurations and increased pedestri-
an and cyclist safety while bringing a significant new transit connec-
tion to the area. This further increases accessibility and modal choice
along the road.
Access to businesses on the south side of Laskin Road will be
improved by the enhanced network of secondary streets. North-south
cross streets would intersect Laskin Road at regular intervals, allow-
ing access points for entry into the blocks south of Laskin Road and
supporting the City’s access management plans. The LRT would
bring additional shoppers, patrons, and visitors to the Hilltop area
adding vitality and viability to the existing businesses.
L ASKIN ROAD WITH TR ANSIT
DESIGN CRITERIA
Max 6 through lanes pre- »ferred
Create a multi-modal arterial »
Consolidate service roads »and narrow travel lanes to create pedestrian and transit accommodations
Provide on-street bike lanes »
Planting strips, sidewalks, »and crosswalks for a safe, urban transit-oriented district
Limit dedicated right-turn »lanes
Consider reducing speed »limit to max 35 mph
Allow for full intersections »every 500 feet and limited intersections every 300 feet, including double left turn at First Colonial Road
Undergrounding of utilities »
AERIAL PERSPECTIVE OF HILLTOP SGA PROCESS PREFERRED LASKIN ROAD
WITH TRANSIT (LOOKING WEST)
160' R.O.W.
Note: Street designs are conceptual. Where possible, utilities should be under-
grounded to provide room for pedestrian and cyclist accommodations. Street trees
should be included in designs wherever possible. If conditions prohibit, tree cover
should be compensated for on private development parcels.
160' R.O.W.
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FIRST COLONIAL ROAD: EXISTING STREET SECTION FACING NORTH
FIRST COLONIAL ROAD: POTENTIAL SECTION FACING NORTH (PENDING FURTHER STUDY)
FIRST COLONIAL ROAD
First Colonial Road is a primary north /south arterial consisting
of variable conditions with four-lanes and a median or six lanes,
depending on the location. Improvements should be made to eventu-
ally provide increased pedestrian and bicycle accommodation.
FIRST COLONIAL ROAD
DESIGN CRITERIA
Max 6 through lanes pre- »ferred
Consolidate turn lane and »median
Provide on-street bike lanes »
No dedicated right-turn »lanes
158' R.O.W.
100' R.O.W.
Note: Street designs are conceptual. Where possible, utilities should be under-
grounded to provide room for pedestrian and cyclist accommodations. Street trees
should be included in designs wherever possible. If conditions prohibit, tree cover
should be compensated for on private development parcels.
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VIRGINIA BEACH BOULEVARD: EXISTING STREET SECTION FACING EAST
VIRGINIA BEACH BOULEVARD: POTENTIAL SECTION FACING EAST (PENDING FURTHER STUDY)
VIRGINIA BEACH BOULEVARD
Virginia Beach Boulevard is a primary east /west road consisting of
four-lanes in the Hilltop SGA. Unlike the Rosemont and Lynnhaven
SGAs, Virginia Beach Boulevard in this area is scaled to be more
pedestrian-friendly at its current size. However, planting strips, side-
walks, and on-street bicycle accommodations are suggested to make
the road a more suitable safe and walkable environment.
VIRGINIA BEACH BOULEVARD
DESIGN CRITERIA
Max 4 through lanes pre- »ferred
Significant increase accom- »modations for pedestrians and cyclists.
Planting strips and landscap- »ing for safe, urban pedestri-an-friendly environment
No dedicated right-turn »lanes
85' R.O.W.
66’ - 85' R.O.W. (Varies)
Note: Street designs are conceptual. Where possible, utilities should be under-
grounded to provide room for pedestrian and cyclist accommodations. Street trees
should be included in designs wherever possible. If conditions prohibit, tree cover
should be compensated for on private development parcels.
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REPUBLIC ROAD: EXISTING STREET SECTION FACING EAST
REPUBLIC ROAD: POTENTIAL SECTION- CONSTRAINED FACING EAST (PENDING FURTHER STUDY)
REPUBLIC ROAD
Republic Road, in addition to Donna Drive, is the only portion of
the Hilltop loop road system that was installed to alleviate conges-
tion at First Colonial and Laskin Roads. It is a two-lane, second-
ary street with an alternating left-turn lane. This street should be
consolidated to include two-lanes of traffic with parallel parking on
the retail side (south). By narrowing the lanes, more useful space is
provided for bike lanes, walks, and landscaping. In some locations, it
may be possible to include a planted median in a wider section (see
Potential Section-Unconstrained).
REPUBLIC ROAD
DESIGN CRITERIA
2 through lanes preferred »
Improve the accommoda- »tions of pedestrians and cyclists
On-street parking for retail »uses
60' R.O.W.
60' R.O.W.
REPUBLIC ROAD: POTENTIAL SECTION- UNCONSTRAINED
80' R.O.W.
Note: Street designs are conceptual. Where possible, utilities should be under-
grounded to provide room for pedestrian and cyclist accommodations. Street trees
should be included in designs wherever possible. If conditions prohibit, tree cover
should be compensated for on private development parcels.
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DONNA DRIVE: EXISTING STREET SECTION FACING EAST
DONNA DRIVE: POTENTIAL SECTION FACING EAST (PENDING FURTHER STUDY)
DONNA DRIVE
Donna Drive is a secondary street that runs parallel to Laskin Road,
providing an alternate east/west route internal to the SGA. It is cur-
rently situated on the back side of many Hilltop SGA uses. If transit
arrives and new development occurs, Donna Drive could become an
active street with new buildings fronting onto it. As an active, urban,
pedestrian-friendly street, Donna Drive may benefit from on-street
bike lanes, wider sidewalks, and additional landscaping. Providing
on-street parking, where permitted, is also
recommended.
DONNA DRIVE
DESIGN CRITERIA
2 through lanes preferred »
Provide on-street bike lanes »
Planting strips and landscap- »ing between roadway and sidewalks for safety and improved appearance
66' R.O.W.
66' R.O.W.
Note: Street designs are conceptual. Where possible, utilities should be under-
grounded to provide room for pedestrian and cyclist accommodations. Street trees
should be included in designs wherever possible. If conditions prohibit, tree cover
should be compensated for on private development parcels.
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NEVAN ROAD: EXISTING STREET SECTION FACING NORTH
NEVAN ROAD: POTENTIAL SECTION (PENDING FURTHER STUDY) FACING NORTH
NEVAN ROAD
Nevan Road will provide an important north/south connection
through the heart of the Hilltop SGA. A narrow median will provide
safe access for pedestrians walking from various retail amenities on
either side. As new buildings are built facing Nevan Road, the street
will become an active public space, connecting local amenities with
larger retailers moving to the Hilltop SGA. Nevan Road may also
serve as an important access to the preferred transit station location
at Laskin Road. NEVAN ROAD
DESIGN CRITERIA
4 through lanes preferred »
Create median »
Provide on-street bike lanes »
Planting strips, sidewalks, »and crosswalks for safe and efficient access to retail amenities
Off-peak on-street parking »spaces
90' R.O.W.
90' R.O.W.
Note: Street designs are conceptual. Where possible, utilities should be under-
grounded to provide room for pedestrian and cyclist accommodations. Street trees
should be included in designs wherever possible. If conditions prohibit, tree cover
should be compensated for on private development parcels.
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PROPOSED LOCAL STREETS
The consultant team, along with the Public Works Department,
designed a set of local, non-arterial street standards that are permit-
ted within Hilltop and all Virginia Beach SGAs. These street
sections should be considered for new streets designated in the
Hilltop SGA plan.
PROPOSED LOCAL STREET B — 50' ROW FACING NORTH (CONSTRAINED)
PROPOSED LOCAL STREET A — 60' ROW FACING NORTH (IDEAL)
LOCAL STREET
DESIGN CRITERIA
2 through lanes preferred »
On-street parking in ideal »conditions
Planting strips, sidewalks, »and crosswalks for safe and 25 MPH design speeds
Note: Where streets ROWs are on private property, improvements are to be made
at the discretion of the property holder and should be performed in conjunction with
redevelopment.
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In coordination with Hampton Roads Transit, the City of Virginia
Beach is considering options for extension of transit service from the
terminus of the Norfolk LRT to the Oceanfront. The study, part of
the development of an Environmental Impact Statement, is consider-
ing four alternatives — light rail, bus rapid transit, enhanced bus ser-
vice, and a no build alternative. The City of Virginia Beach recently
purchased the former Norfolk Southern right-of-way, which extends
from Newtown Road to Birdneck Road on an alignment that is
generally parallel to I-264. This study will also consider connections
from Birdneck Road to the Oceanfront. Current planning has antici-
pated a station in the Hilltop area that would be located off Potters
Road roughly centered between London Bridge Road and First
Colonial Road. Selection of the proposed location for the station was
heavily influenced by Naval Air Station Oceana’s AICUZ restric-
tions. The only allowable location along the Norfolk Southern right-
of-way was chosen as the Hilltop station location. Unfortunately,
much of the Hilltop commercial area is not within walking distance.
In addition, the proposed transit location on Potters Road does not
add significant accessibility from a driving standpoint for park-and-
ride users. These analyses led to the decision to explore alternative
station locations which can add better access for all types of riders.
The plan recommends studying a station location situated at the
core of Hilltop. Much of the Hilltop SGA will be within a reasonable
walk of the proposed station making it easily accessible to neighboring
amenities. Providing pedestrian links to the proposed station with street
and trail improvements is critical to transit-oriented economic develop-
ment. The walkability analysis shows the areas that are most likely to
change over time with transit improvements. The proposed location has
the potential to serve as a catalyst for growth in the retail market, which
will further build the character and quality of place over time.
Transit
CURRENTLY PLANNED LRT STATION - POTTERS ROAD
LOCATIONEXISTING BUS ROUTES AND WALKABILITY The area is currently relatively well-served by HRT bus service yet the ability to access the service is hampered through an impoverished pedestrian experience. A change in street network and character will benefit access to bus routes and shuttles, encouraging stronger connectivity to nearby residential areas, retail amenities, and the proposed station. Riders should be accommodated wherever feasible with bus shelters along the various bus routes.
5 - MINU T E WA LK FROM R A IL10 - MINU TE WA LK FROM R A IL
P OTEN T IA L L IGH T R A IL A L IGNMEN TP OTEN T IA L L IGH T R A IL S TAT ION5 - MINU T E WA LK FROM BUS
5 - MINU T E WA LK FROM R A IL10 - MINU TE WA LK FROM R A IL
P OTEN T IA L L IGH T R A IL A L IGNMEN TP OTEN T IA L L IGH T R A IL S TAT ION5 - MINU T E WA LK FROM BUS
BUS ROU TE 20
BUS ROU TE 32
BUS ROU TE 29
S T UDY A RE A
BUS S TOP S
5 - MINU TE WA LK
PROPOSED LRT STATION LOCATION - LASKIN ROAD
The relocation of the station can be reinforced by coordination with
major destinations and employers. A shuttle could run between NAS
Oceana and the LRT station provide daily access to the naval base for
military personnel and would bring a larger population through the
core of Hilltop to support the businesses and retail. Coordinated efforts
between major employers, such as the Navy or Sentara Hospital and
HRT, are a crucial component to successfully building the light rail rid-
ership.
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CURRENT TRANSIT ALIGNMENT UNDER STUDY BY HRT FOR VIRGINIA BEACH
TRANSIT EXTENSION STUDY
TRANSIT ALTERNATIVES
With little benefit coming from the currently planned station site,
the Master Plan explores four possible realignments to be studied in
further detail in HRT’s analysis. For the purposes of this planning
exercise, only alignments within or near Hilltop were considered,
although other conceivable terminal alignments are plausible east
of the study area. Alternative alignments may also exist to the west,
providing opportunities to serve additional development and exist-
ing neighborhoods and businesses. The following alternatives explore
alignments within the Hilltop SGA.
In the following alternatives, where the transit route is proposed
outside of the existing rail line right-of-way, there are opportunities
for providing linear parks within this space. Such a linear park may
also link to various neighboring properties where the City has begun
to purchase land as part of the AICUZ program. Open space oppor-
tunities like these can provide important neighborhood connections
and trail linkages throughout the Strategic Growth Area and its sur-
rounding communities.
TRANSIT ALTERNATIVE 1
Routing back to rail corridor. Alternative 1 begins rerouting the transit line (to the east)
from the Norfolk Southern right-of-way onto Lynnhaven Parkway or London Bridge
Road traveling to Virginia Beach Boulevard. From Virginia Beach Boulevard, the route
would transition to Laskin Road and extend to First Colonial Road. From Laskin
Road the route would move south on First Colonial Road to Oceana Boulevard until it
reaches the Norfolk Southern right-of-way where it would continue toward Birdneck
Road. The route would then extend along Birdneck Road to a planned station at 17th
Street. It then continues to a station at the Convention Center on 19th Street. From
the Convention Center this alternative route continues east along 19th Street to Arctic
Avenue, its terminal station. This alternative may be able to make use of existing roads
and bridges to reduce the cost of bringing the alignment to the core of the commercial
area in Hilltop. However, the added delay of introducing transit to these corridors may
bring forward the need for exclusive lanes for the transit vehicles.
TRANSIT ALTERNATIVE 2
Routing down Virginia Beach Boulevard. Alternative 2 follows the same route as
Alternative 1 — Lynnhaven Parkway or London Bridge Road to Virginia Beach
Boulevard to Laskin Road to First Colonial Road down to Virginia Beach Boulevard.
The route extends eastward along Virginia Beach Boulevard from First Colonial Road
to Birdneck Road then jogs north to a station at the Convention Center then it travels
along 19th Street to Arctic Avenue, its terminal station. This alternative route may open
up an opportunity for another station in the vicinity of the Hilltop SGA in the residen-
tial areas provided it is located outside of the AICUZ restrictions. This route may offer
slightly faster operation from Hilltop to the Convention Center by traversing a shorter
route.
LYNNHAVEN
HILLTOP
17TH CON CTR
19TH
LYNNHAVEN
HILLTOP
17TH CON CTR
19TH
LYNNHAVEN
HILLTOP
17TH CON CTR
19TH
CURREN T A L IGNMEN T A LT ERN AT I V E A L IGN MEN T (LONDON BRIDGE ROA D)
A LT ERN AT I V E A L IGN MEN T (LY NNH AV EN PA RK WAY )
S T UDY A RE A CURREN T A L IGNMEN T A LT ERN AT I V E A L IG N MEN T (LONDON BRIDGE ROA D)
A LT ERN AT I V E A L IGN MEN T (LY NNH AV EN PA RK WAY )
S T UDY A RE A
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LYNNHAVEN
HILLTOP
17TH CON CTR
19TH
LYNNHAVEN
HILLTOP
LASKIN EAST
17TH CON CTR
19TH
TRANSIT ALTERNATIVE 4
Routing down Birdneck Road. Alternative 4 takes the same route as Alternatives 1, 2,
and 3 from Lynnhaven Parkway or London Bridge Road to the core commercial area
of Hilltop Road — London Bridge Road to Virginia Beach Boulevard to Laskin Road.
From the Laskin Road station Alternative 4 deviates from the other alternatives by
traveling down Laskin Road from First Colonial Road to Birdneck Road. Alternative 4
offers a station at Laskin East on Birdneck Road. Alternative 4 travels down Birdneck
Road to 17th Street where it has a station then there are stations at the Convention
Center and at Arctic Avenue. Alternative 4 takes advantage of a long section of Laskin
Road that offers a wide existing right-of-way which may accommodate the transit line
without causing severe traffic congestion.
TRANSIT ALTERNATIVE 3
Routing parallel to I-264. Alternative 3 follows the same route from London Bridge
Road to the core of the Hilltop SGA — Lynnhaven Parkway or London Bridge Road
to Virginia Beach Boulevard to Laskin Road to First Colonial Road. It deviates from
Alternatives 1 and 2 by coming off First Colonial Road onto I-264 where it travels
down to Birdneck Road. From Birdneck Road the route travels to 17th Street where
there are stops just east of Birdneck Road and then one at the Convention Center.
Similar to Alternatives 1 and 2 there is a terminal station along 19th Street at Arctic
Avenue. Alternative 3 offers the shortest and most likely the most expedient route
between the proposed Hilltop station in the commercial area and the proposed station
on 17th Street just east of Birdneck Road. Alternative 3 will require some substantial
bridging to get from First Colonial Road to I-264 which is elevated over First Colonial
Road. The section of I-264 that Alternative 3 traverses is a six-lane facility. There is a
possibility that the transit route could use one of the lanes of I-264 without causing
substantial delay on I-264. This alternative will minimize the interruptions on the arte-
rial street network in comparison to the other alternatives.
WALK AND TRANSIT ACCESS TO PROPOSED HILLTOP STATION LOCATION
DRIVE ACCESS TO PROPOSED HILLTOP STATION LOCATION
CURREN T A L IGNMEN T A LT ERN AT I V E A L IGN MEN T (LONDON BRIDGE ROA D)
A LT ERN AT I V E A L IGN MEN T (LY NNH AV EN PA RK WAY )
S T UDY A RE A CURREN T A L IGNMEN T A LT ERN AT I V E A L IG N MEN T (LONDON BRIDGE ROA D)
A LT ERN AT I V E A L IGN MEN T (LY NNH AV EN PA RK WAY )
S T UDY A RE A
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LASKIN ROAD
AERIAL PERSPECTIVE OF HILLTOP SGA PREFERRED LASKIN ROAD ALTERNATIVE WITH TRANSIT (LOOKING WEST)
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PROPOSED PARKS, INSTITUTIONS AND OPEN SPACEEXISTING ACCESS TO OPEN SPACE (10 MINUTE WALK)
The Open Space Network in the Hilltop SGA seeks to build upon
the existing natural resources of Hilltop in order to expand access
to public open space through an interconnected system of parks and
trails. This will be accomplished through the creation of several new
parks as well as the addition of bicycle and pedestrian pathways both
along and in addition to the existing street network. New and exist-
ing parks could include the following park types:
Victory Garden1
Stormwater Outfall2
Pocket Parks3
Parks and Open Space Networks Plan
PUBLIC PA RKS A ND OPEN SPACE DE V ELOPMEN T BLOCK WAT ER ST UDY A RE A
Note: Future road alignments will be determined in further studies, and will be
based on property availability and feasibility.
I-264
I-264
I-264
First C
olo
nia
l Ro
ad
First C
olo
nia
l Ro
ad
Laskin Road
Wolfsnare Road
Republic Road
Hillto
p R
oa
d
Re
ge
ncy
Driv
e
Southall Drive
Donna Drive
Kmart
Regency Hilltop Shopping Center V
illag
e Driv
e
Village Drive
Upper Wolfsnare Plantation
Parish Day School
Ego DriveV
ictor R
oa
d
Mable Lane
Wildwood Drive
Virginia Beach Boulevard
Potters Road
Oceana Boulevard
Oce
an
a Bo
ule
vard
Virginia Beach Boulevard
No
rth O
cea
na
Bo
ule
va
rd
Old Virginia Beach Road
We
st La
ne
Laskin RoadW
inw
oo
d D
rive
Fre
ma
c Driv
e
Linkhorn Bay
Wolfsnare Creek
Reynard Drive
Wisco
nsi
n A
venue
Gre
at N
eck
Cre
ek
1
3
3
3
3
3
2
Ne
va
n R
oa
d
Laurel Lane
Upper Wolfsnare Plantation
3
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PARK T YPES
As part of the public open space networks plan, several suggested
park types have been developed. These types range from passive,
such as pocket parks, to productive, such as the student farm and
victory garden. In addition to these, the stormwater outfall park will
capitalize on existing, under-utilized open space in order to educate
the public about and help to preserve the delicate and unique wet-
land ecology of the region. All of these types will provide new and
enhanced opportunity for residents and visitors to both connect with
and more fully utilize the city’s natural ecology.
VICTORY GARDEN POCKET PARKSSTORMWATER PARK
Victory gardens were originally created to provide self-sufficiency during war-times and to support the nation’s war efforts. Today, vic-tory gardens are associated with urban sustainability and are used to capture the military culture of the past and build upon the success-ful programs of WWI and WWII. People may grow food at home or in shared public spaces in order to provide local food supplies to families and charities. The gardens could be educational opportunities for students, young and old.
Victory gardens may include infor-mational kiosks for the general pub-lic, instructional kiosks for garden-ers, and places to sit and observe activities. They are a good alterna-tive to otherwise development-restrictive parcels or where land is currently unproductive. They could provide a much needed staple for the community and pay tribute to the military legacy of the area.
Pocket parks provide a place for people to sit outdoors and socialize or relax in urbanized areas. They are accessible to the general public and facilitate connections to adja-cent uses. They provide street or block definition and they are often placed around a monument or are in relation to public art. They are typically created on available small parcels or irregular pieces of land. Functions include spaces for relax-ation, meeting friends, taking lunch breaks, reading a book, or play areas for children. They typically provide seating, shade, lighting, planting, focal features, and articu-lated pavement patterns.
These types of parks can occur on either public or private property and could be managed by a variety of organizations, such as public, private, partnership, and even non-profit organizations.
Through the coordinated design of a park system and a stormwater management program as green infrastructure, the Hilltop SGA will have to reclaim more of its natu-ral flood control system. Instead of relying solely on the existing network of storm sewers and paved ditches, green infrastructure would supplement this system by providing major outfall areas and stormwater treatment for broad sections of Hilltop’s development. This would minimize the burden on individual sites that are more con-strained.
By making a stormwater park a public amenity, residents and visi-tors could learn about stormwater treatment trains, water quality, pol-lutant removal, and better manage-ment practices. A stormwater park would serve not only as a utilitarian facility, but also as a public open space.
This type of park would serve primarily as a regional stormwater management facility but with an added emphasis on public access and design composition. These types of spaces would need to be championed by private businesses within the local watershed and potentially initiated by public-private ventures.
The Hilltop Victory Garden also has the opportunity to provide for infor-mal recreation off of a regional trail system that runs east-west through the site.
In order to ensure a Victory Garden is successful, strong private-public partnerships should be established with neighboring organizations for implementation and long term maintenance.
Note: The proposed uses are subject to
refinement when the planning process
for implementation of the plan is put
in motion due to restrictions associ-
ated with their location in the Accident
Potential Zone - 1 (APZ-1).
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I-264
I-264
I-264
First C
olo
nia
l Ro
ad
First C
olo
nia
l Ro
ad
Laskin Road
Wolfsnare Road
Republic Road
Hillto
p R
oa
d
Re
ge
ncy
Driv
e
Laurel Lane
Southall Drive
Donna Drive
Kmart
Target
Marketplace at Hilltop
Hilltop Shopping Center
Regency Hilltop Shopping Center
Charles Barker Toyota
Trader Joe's
Villa
ge D
rive
Village Drive
Upper Wolfsnare Plantation
Parish Day School
St. Nicholas Greek Orth.
Church
Linkhorn Park Elem. School
Freedom Fellowship
Church
Good Shepherd Lutheran Church
Laskin Road Annex
Ego DriveV
ictor R
oa
d
Mable Lane
Wildwood Drive
Virginia Beach Boulevard
Potters Road
School Bus
Parking
Oceana Boulevard
Oce
an
a Bo
ule
vard
Virginia Beach Boulevard
No
rth O
cea
na
Bo
ule
va
rd
Old Virginia Beach Road
We
st La
ne
Laskin RoadW
inw
oo
d D
rive
Fre
ma
c Driv
e
Linkhorn Bay
Wolfsnare Creek
Reynard Drive
Wisco
nsi
n A
venue
Gre
at N
eck
Cre
ek
BIKEWAYS AND TRAIL NETWORK DIAGRAM
The Conceptual Bikeways and Trail Network Plan advances the
adopted Virginia Beach Bikeways and Trails Plan of 2011 by provid-
ing a comprehensive trail system which will further increase connec-
tivity between neighborhoods and destinations. This will be accom-
plished through a combination of on and off-street bicycle facilities.
This plan prioritizes bicycle routes of regional importance mentioned
in the Virginia Beach Bikeways and Trails Plan with the inclusion
of on-road bike lanes along Virginia Beach Boulevard, Laskin Road,
and First Colonial Road. This plan also provides significant connec-
tions between existing and proposed open and green spaces as well as
proposed residential and commercial development.
ON - ROA D BIK E L A NE W IT H
W IDENED S IDE WA LKS
SIGNED SH A RED ROA DWAY
SH A RED - USE PAT H
Conceptual Bikeways and Trail Network Plan
S T UDY A RE A
ON - ROA D BIK E L A NE W I T H
SH A RED USE PAT H
ON - ROA D BIK E L A NE
BIKEWAYS AND TRAIL PL AN DESIGNATIONS
ON-STREET FACIL IT IES *
Shared roadways »
Signed shared roadways »
Wide outside lanes »
Paved shoulders »
Striped bike lanes »
OFF-STREET FACIL IT IES *
Shared-use paths »
Soft paths (unpaved shared- »use paths)
Wide sidewalks »
* For definitions of specific types of facilities, please reference the City of Virginia Beach’s Bikeways and Trails Plan, 2011
Ne
va
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oa
d
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Whole Foods
Friend’s School
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BIKEWAY AND TRAIL T YPES
By ordinance, Virginia Beach allows bicycles on all sidewalks except
in Town Center and the Resort Area. In the Hilltop SGA, facilities
should be large enough to accommodate both pedestrians and cyclists
at the same time.
A mix of both on-road and off-road bicycle facilities should
be considered throughout the Hilltop SGA. The on-road facili-
ties should include signed shared roadways, wide outside lanes, and
marked bike lanes. The off-road facilities should include shared-use
paths and wide sidewalks. See the City of Virginia Beach’s Bikeways
and Trails Plan for detailed descriptions of each.
SIGNED SHARED ROADWAYS
(WIDE OUTSIDE L ANES)
Bike route signs or »“Share the Road” signs
Provide continuity /connect to »roadways with designated bike lanes
Bike-safe drainage inlets »
14' min. wide outside travel lanes »
SHARED -USE PATHS
Minimal street crossings »
Two-way travel for cyclists »and pedestrians
4' min. buffer between street »and path
Typically asphalt »
Positive drainage »
8'–10' wide path »
BICYCLE L ANES
Striped and signed for exclusive »use by cyclists
One-way »
Segregate motorists from »cyclists
Bike-safe drainage inlets »
Pavement markings (solid »white stripe, arrow, and helmeted cyclist)
4'–5' min. width bike lanes in »addition to 11'–12' min. width motor vehicle travel lanes
WIDE SIDEWALKS
Typically concrete, but may »be pavers
For pedestrian use although »bicycles are allowed
Positive drainage »
4' min. buffer between street »and sidewalk recommended
In spatially constrained areas, »sidewalk may abut street
6'–8' min. width »
V EHICUL A R TR AV EL L A NE SH A RED OU TSIDE TR AV EL L A NE
11' min 14' min4'-5' min 2' 4' min2'5' 8'-10' min 6'-8' min
BIK E L A NE
CURB A ND
GU T TER
CURB A ND
GU T TER
BUFFER ZONE A ND PL A N TED
V ERGE
BUFFER ZONE A ND PL A N TED
V ERGE
SH A RED USE PAT H W IDE S IDE WA LK
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CIT Y-WIDE POLICIES
The major strategy for stormwater management in Virginia Beach
has been the use of wet ponds to provide a control on the release of
stormwater (quantity control) and to allow for settlement of sediment
for water quality control. Approximately 80 percent of the impervi-
ous area in the City is currently treated via the use of wet ponds.
Stormwater management is particularly challenging in the City
due to its location on the coastal plain adjacent to the Chesapeake
Bay, the North Landing River, Back Bay systems to the south, and
the Atlantic Ocean. This flat terrain creates a reduced hydraulic head,
while a high groundwater table increases the migration of pollut-
ants. Fortunately in the Hilltop SGA, due the presence of the ‘Pungo
Ridge’ geologic formation, groundwater is relatively low and infiltra-
tion capacity is generally high. This SGA area lends itself well to
more progressive techniques in stormwater management. However,
tidal outfalls and storm surge will cause flooding, no matter how well
the drainage system is designed. With a full outfall system, additional
surface water from rainfall events build up with nowhere to go.
Low impact design strategies are being implemented in Virginia
Beach to treat the pollution at the source as much as practical.
Reduction of impervious surface with localized storage and infiltra-
tion are important. A combination of infiltration and wet marsh
stormwater facilities will assist with the uptake of pollutants and
filtration of sediment in the Hilltop SGA, helping to improve water
quality. Use of treatment trains should be implemented as practi-
cal. Treatment trains include low impact development techniques
upstream at the pollutant source, which are anchored with regional
stormwater management facilities downstream. Treatment trains
combine multiple stormwater treatment devices in a series to increase
pollutant removal. While the treatment train approach is fairly new
to stormwater management it has been in place for decades to treat
sanitary sewer effluent at treatment plants.
Stormwater Management
The City has identified several areas in which it will be focusing rede-
velopment efforts and future urban growth, and has classified these
areas as Strategic Growth Areas (SGAs). The patterns of land use
envisioned in the SGAs are intended to concentrate development ver-
tically more than horizontally, and thereby have the potential to reduce
impervious surfaces to promote infiltration and percolation of runoff
stormwater. There is a significant potential to reduce impervious sur-
face cover during redevelopment. Based on the land use and land cover
data for the SGA plans completed and adopted to date, the ability to
convert large areas of impervious lands to pervious lands is feasible.
This represents a major reduction of the impervious area within the
SGAs over the course of TMDL implementation.
Stormwater management strategies and policies are evolving in
Virginia Beach in accordance with upcoming changes in state and
federal water quality requirements. The Hilltop SGA area was devel-
oped without the benefit of a stormwater management plan and with
a minimum of stormwater management facilities. The addition of
facilities for the control of both water quantity and water quality con-
sequently offers a challenge and an opportunity. Redevelopment will
require an overall district stormwater plan with improvements by both
the City and the property owners to mitigate the lack of existing con-
trols and prevent additional negative impacts to the receiving waters
of the Eastern Branch of the Lynnhaven River and Linkhorn Bay.
Redevelopment will also provide the opportunity to serve as a model
and a testing ground for the use of a combination of low impact devel-
opment strategies along with shared area-wide stormwater manage-
ment systems and repair of natural buffers along the open waterways.
OPEN SPACE AND DRAINAGE INTEGRATION
STORMWATER TREATMENT TRAIN
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REGIONAL AND SUB-WATERSHED STRATEGIES
A regional approach to stormwater management is beneficial for
property owners, stormwater network managers, and the environ-
ment. It presents the opportunity to provide facilities in the best
locations within the sub-watershed area, reducing the need for each
property owner to provide major stormwater storage on each site.
It also allows the most appropriate means of addressing water qual-
ity treatment on each site; and allows for the increased efficiency of
regional storage facilities that, if properly designed, can serve as an
overall area amenity. A sub-watershed approach served by a central
wet pond was successfully implemented at the Virginia Beach Town
Center; however, additional site-specific low impact development
strategies were not utilized. City development of regional facilities
in each SGA can provide much of the stormwater quantity manage-
ment with the redevelopment on individual parcels providing maxi-
mum water quality treatment as a part of their site design.
HILLTOP SGA COMMUNIT Y STORMWATER FACILIT IES
The Hilltop SGA is a highly developed area with large expanses of
impervious surface by way of roadways, parking lots, buildings and
walkways. There is approximately 80% impervious cover with little
stormwater management or water quality controls in the Hilltop
SGA. However, the Hilltop SGA is unique in that it generally con-
tains subgrade soils with the high infiltration capacity. Subgrade soils
consisting of primarily sand provide opportunities for a wealth of
infiltration facilities using the earth as filter and reducing runoff at
the source. However, an overall strategy for implementation of rede-
velopment of the area should include a general strategy of reducing
impervious surfaces as well.
Stormwater management facilities can serve as organizing com-
munity amenities in several ways. They can provide a green space
network for shade, visual relief from large expanses of pavement, and
even recreational use through adjacent trails and seating areas. They
can also be incorporated into hardscapes and public areas, providing
variety, interest, and even artistic treatments. They can help reduce
pollutant load by limiting the use of high-maintenance turfgrass.
A design strategy for both public and private spaces will be impor-
tant to creating an interesting environment while comprehensively
addressing the challenging State stormwater management criteria.
PROPOSED STORMWATER MANAGEMENT INCLUDED IN THE HILLTOP SGA FU T URE STORM WATER
Wetlands Restoration Retention Basin Enhancement
Reduction in Impervious Area Pervious Pavement in Surface
Retention Basin Enhancement
Reduction in Impervious Area Bioretention in Landscape Areas
Floodplain Management Stream Restoration Stormwater Storage
Stream/Wetlands Restoration
Stream/Wetlands Restoration
Reduction in Impervious Area Bioretention in Landscape Areas
Parking Areas
Pervious Pavement
Pervious Pavement
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TREATMENT METHODS AND PERFORMANCE STANDARDS
FOR ON AND OFF-SITE DEVELOPMENT
A much wider range of stormwater management strategies will be
necessary to meet current and future stormwater treatment require-
ments. General guidelines and strategies for addressing these require-
ments should be provided as a part of the redevelopment standards,
but it is most important to allow flexibility in the design methods
used for any particular development. This will encourage creativity
and allow the application of methods and devices developed in this
emerging field. Allowing landowners to work together jointly to pro-
vide regional stormwater management for multiple sites will also be
important. The most critical standard is the requirement to incorpo-
rate stormwater management strategies and design from the begin-
ning, incorporating them in the initial concepts for redevelopment
and refining them throughout the design and construction process.
This will maximize the use of stormwater management facilities as a
public space amenity. Redevelopment strategies that will contribute
to good stormwater management include:
Reduced impervious surface through the use of structured parking, »
pervious pavement, maximized managed turf area, and green roofs
Rainwater capture and water reclamation techniques, including »
the use of above-ground and underground storage, including their
potential use for irrigation, and constructed water features. These
include such elements as rain barrels and cisterns
Maximum use of bioretention and vegetated surface water collection »
Disconnection of rooftop drainage from below ground piping »
systems
GR A DE B SOILS
GR A DE A SOILS
GR A DE C SOILS
Based upon the local conditions, the primary types of non-region-
al stormwater facilities in the Hilltop SGA should be rain gardens,
shallow bioretention areas, and shallow swales with managed mead-
ow plantings, constructed wetlands, restored natural buffers (Riparian
Buffers), and stream restoration. Some other types of stormwater
facilities that could be of use in the Hilltop SGA area, due to the well
draining soils, include the use of sand filters, small-scale infiltration
facilities, and amended soils with underdrainage.
SOIL GRADES IN THE HILLTOP SGA
Grade A soils are characterized by soils with high infiltration and transmission while Grade B soils are characterized by moderate infiltration and transmission rates. Both Grade A and B soils lend themselves well to infiltration based stormwater management. Grade C and D soils are characterized by lower infiltration rates. Infiltration based stormwater management can still be utilized, but actual infiltration will be much more difficult to achieve.
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There are two issues to be considered when evaluating the existing
sanitary sewer system serving the Hilltop SGA relative to improve-
ments needed to serve increased development in the area — the con-
veyance system and the pump station capacities.
Whereas the Hilltop SGA is mostly served by sanitary sewer
systems, and the receiving HRSD mains and treatment plant have
capacity to accept additional flows, the collection and pumping sys-
tems have capacity limitations. Due to the age of the infrastructure,
groundwater and rainwater can infiltrate through the piping and
into manholes, leading to reduced capacity for conveying sewage.
Even though the system functions adequately during dry weather,
problems arise during rain storms. Excessive infiltration and inflow
(I&I) can cause pump stations throughout the interconnected and
pressurized system to exceed capacities and lead to Sanitary Sewer
Overflows (SSO). As required by the Special Order by Consent
issued by the Virginia Department of Environmental Quality, the
Department of Public Utilities will rehabilitate deficient collec-
tion systems over the coming years. During the rehabilitation effort,
appropriate allowances will be made for future growth projected in
this plan.
Eight sanitary sewer pump stations serve the Hilltop SGA, all
of which are located directly within the SGA planning area bound-
ary. The pump stations were designed and constructed to serve the
assigned development based on build out projections at the time
without consideration of rezoning or major redevelopment. Most of
the stations are scheduled to be replaced by 2040 according to avail-
able records. Replacement of existing pump stations may be required
where redevelopment results in significant increases in sanitary sewer
flows. Following the adoption of the Hilltop SGA Master Plan, the
City Department of Public Utilities will update the Sanitary Sewer
Master Plan based on the projected future densities. The revised
Sanitary Sewer Master Plan will identify the upgrades that are
required to adequately serve the redeveloped Hilltop SGA.
Sanitary Sewer Systems
SEWER LINES INCLUDED IN THE HILLTOP SGAE X IS T ING SE W ER
FU T URE SE W ER
P S LOC AT ION
P S SERV ICE A RE A
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Public water service exists throughout most of the Hilltop SGA
within existing rights-of-way. Three parallel arterial water mains run
along Laskin Road, which, along with a large ground storage tank
and pumping station west of the boundary, provide ample capac-
ity for increased development in the Hilltop SGA. There are also
several large mains within First Colonial Road and Virginia Beach
Boulevard. Some realignment of smaller water mains may be required
to conform to the future road grid system, which will not only help
to meet the demands of the increased domestic and fire suppression
needs for the development, but also provide redundancy in the system.
Water Systems
WATER LINES INCLUDED IN THE HILLTOP SGA PROP OSED WATER M A INE X IST ING WATER M A IN
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Land Use and Development Case Studies
the Hilltop sga is widely recognized as the premium shopping
destination in Virginia Beach. Customers from affluent neighbor-
hoods to the north, the resort district to the east, and the broader city
via I-264 and Laskin Road are attracted by Hilltop's unique blend
of national brands and locally owned shops and restaurants. Hilltop’s
prestige is inconsistent with its environment, a strip center, suburban
environment with heavily congested roadways. To reinforce its “top of
market” status, Hilltop must address several challenges. These include
traffic congestion, an environment hostile to pedestrians and cyclists,
a landscape dominated by parking lots, and buildings that have long
surpassed their design life.
Improvements to Laskin Road and First Colonial Road will
introduce new possibilities for incrementally building a network
of local streets. These new streets will improve access and visibil-
ity to property along Laskin Road and First Colonial Road and
greatly relieve congestion by distributing traffic onto the new streets.
Coming with the streets will be sidewalks, crosswalks, landscaping
and lighting that will transform Hilltop into a walkable district. Over
time, existing retail buildings will be replaced with new retail build-
ings built facing the new streets. The suburban pattern of highways
lined with parking lots and strip centers will gradually give way to
a new pedestrian friendly mixed-use district. With the new block
structure, developers should introduce plazas and small parks as focal
points for shopping and dining. As the market permits, structured
parking will free up land currently used for surface parking, allowing
increased density and revenue from redevelopment.
The potential for locating a transit station in the center of this
vibrant district has been illustrated in this study. The introduction of
transit could accelerate redevelopment and investment.
LAND USE
CASE STUDIES
HEIGHTS
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The Hilltop SGA is home to a wealth of local businesses with a vari-
ety of retail, restaurant, office, health, and recreational uses. To build
on its role as a unique, regional destination while reinforcing land use
compatibility with the AICUZ restrictions, the below land uses are
proposed for the Hilltop SGA:
Non-Residential Mixed-use: a mixture of retail, office, and other »
non-residential uses.
Residential: existing residential areas will remain with limited »
redevelopment. AICUZ restrictions restrict expansion or densifi-
cation of residential uses beyond what is currently zoned for such.
Should the existing residential be redeveloped into new residen-
tial, at an equal or lesser density than currently exists, the new
residential shall contain housing at different price points, includ-
ing affordable housing.
Institutional: existing institutions are designated for this land use. »
Open Space: new open space opportunities. »
Industrial /Flex: Production, distribution, and repair uses. »
Land Use Plan
NON - RESIDEN T IA L MIX ED - USE
RESIDEN T IA L
INDUS TRIA LINS T I T U T ION A L
OPEN SPACE A ND S TORM WATER M A N AGEMEN T
S T UDY A RE A
LAND USE PLAN
I-264
I-264
I-264
First C
olo
nia
l Ro
ad
First Colonial Road
Laskin Road
Wolfsnare Road
Republic Road
Hillto
p R
oa
d
Re
ge
ncy
Driv
e
Laurel Lane
Donna Drive
Kmart
Target
Marketplace at Hilltop
Hilltop Shopping Center
Regency Hilltop Shopping Center
Charles Barker Toyota
Trader Joe's
Villa
ge D
rive
Village Drive
Upper Wolfsnare Plantation
Parish Day School
St. Nicholas Greek Orth.
Church
Freedom Fellowship
Church
Good Shepherd Lutheran Church
Laskin Road Annex
Ego Drive
Victo
r Ro
ad
Mable Lane
Virginia Beach Boulevard
Potters Road
School Bus
Parking
Oceana Boulevard
Virginia Beach Boulevard
No
rth O
cea
na
Bo
ule
va
rd
Old Virginia Beach Road
We
st La
ne
Laskin Road
Win
wo
od
Driv
e
Fre
ma
c Driv
e
Linkhorn Bay
Wolfsnare Creek
Reynard Drive
Wisco
nsi
n A
venue
Gre
at N
eck
Cre
ek
Ne
va
n R
oa
d
Whole Foods
Friend’s School
Hilltop SGA Permitted Land Use Plan Areas
Use (% of Total)
Area (ac.) Projected FAR
Total Buildable SF
Residential Units / ac
Mixed-Use 36% 265.5 1.5 17,349,259 –
Residential 16% 120.2 – – 10,12 & 18
Institutional 4% 31.7 0.5 1,380,137 –
Industrial 7% 51.2 0.5 668,882 –
Open Space 14% 106.7
Infrastructure 23% 174.1Total 100% 749.4 Acres – 19,398,278 sf –
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BUILDING HEIGHTS PLAN
Permitted maximum building heights are shown in the following
diagram. Most building heights in the SGA area remain unchanged
from current zoning at 3 stories. Permitted heights increase along
Laskin Road and First Colonial Road, with a maximum of 5 sto-
ries. These greater heights correspond to non-residential mixed-use
areas that will be within walking distance of the potential transit
station. Greater building heights will allow developers to consider
mixed-use development that can combine ground floor retail and
entertainment uses with upper floor office uses.
Building Heights Plan
3 M A X
5 M A X
S T UDY A RE A
FLEXIBIL IT Y OF BUILDING
HEIGHTS
Some flexibility in building heights should be permit-ted to respond to market demands.
The City may accommodate this flexibility through zon-ing overlays or development incentives.
I-264
I-264
I-264
First C
olo
nia
l Ro
ad
First C
olo
nia
l Ro
ad
Laskin Road
Wolfsnare Road
Republic Road
Hillto
p R
oa
d
Re
ge
ncy
Driv
e
Laurel Lane
Southall Drive
Donna Drive
Kmart
Target
Marketplace at Hilltop
Hilltop Shopping Center
Regency Hilltop Shopping Center
Charles Barker Toyota
Trader Joe's
Villa
ge D
rive
Village Drive
Upper Wolfsnare Plantation
Parish Day School
St. Nicholas Greek Orth.
Church
Linkhorn Park Elem. School
Freedom Fellowship
Church
Good Shepherd Lutheran Church
Laskin Road Annex
Ego DriveV
ictor R
oa
d
Mable Lane
Wildwood Drive
Virginia Beach Boulevard
Potters Road
School Bus
Parking
Oceana Boulevard
Oce
an
a Bo
ule
vard
Virginia Beach Boulevard
No
rth O
cea
na
Bo
ule
va
rd
Old Virginia Beach Road
We
st La
ne
Laskin RoadW
inw
oo
d D
rive
Fre
ma
c Driv
e
Linkhorn Bay
Wolfsnare Creek
Reynard Drive
Wisco
nsi
n A
venue
Gre
at N
eck
Cre
ek
Ne
va
n R
oa
d
Whole Foods
Friend’s School
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CHARACTER AREAS PLAN
The planning process, site analysis, and master planning of the
Hilltop SGA yielded detailed design concepts that may be used as
case studies to show how prototypical sites might redevelop over
a number of years. The case studies provide an overview of the
quality and character of development that is envisioned in the des-
ignated area. In all of the case studies, there is an emphasis on pro-
viding small open spaces and landscaping in parking lots and along
streets, which can enhance the value of the private development by
providing memorable, usable gathering spaces and help contribute
to the public realm. The six case studies that are defined within the
Hilltop SGA Master Plan are:
Southern Greenway and Innovation Zone »
Regency Hilltop Shopping Center »
Kmart Block »
Hilltop Shopping Center »
Marketplace and Kroger »
Target Block »
Development Case Studies
M A RK E TPL ACE A ND K ROGER
HILLTOP SHOPPING CEN TER
" K M A RT BLOCK "
REGENCY HILLTOP SHOPPING CEN TER
SOU T HERN GREEN WAY A ND INNOVAT ION ZONE
" TA RGE T BLOCK "
S T UDY A RE A
I-264
I-264
I-264
First C
olo
nia
l Ro
ad
First C
olo
nia
l Ro
ad
Laskin Road
Wolfsnare Road
Republic Road
Hillto
p R
oa
d
Re
ge
ncy
Driv
e
Laurel Lane
Southall Drive
Donna Drive
Kmart
Target
Marketplace at Hilltop
Hilltop Shopping Center
Regency Hilltop Shopping Center
Charles Barker Toyota
Trader Joe's
Villa
ge D
rive
Village Drive
Upper Wolfsnare Plantation
Parish Day School
St. Nicholas Greek Orth.
Church
Linkhorn Park Elem. School
Freedom Fellowship
Church
Good Shepherd Lutheran Church
Laskin Road Annex
Ego DriveV
ictor R
oa
d
Mable Lane
Wildwood Drive
Virginia Beach Boulevard
School Bus
Parking
Oceana Boulevard
Oce
an
a Bo
ule
vard
Virginia Beach Boulevard
No
rth O
cea
na
Bo
ule
va
rd
Old Virginia Beach Road
We
st La
ne
Laskin RoadW
inw
oo
d D
rive
Fre
ma
c Driv
e
Linkhorn Bay
Wolfsnare Creek
Reynard Drive
Wisco
nsi
n A
venue
Gre
at N
eck
Cre
ek
Ne
va
n R
oa
d
Whole Foods
Friend’s School
Southern Boulevard
Potters Road
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"KMART BLOCK"
Hilltop Square Shopping Center block includes a Kmart, US
Post Office, Cash Converters, Wendy’s, Taco Bell, a car wash, an
auto parts retailer and other restaurants and retail establishments.
Storefronts are set back around a large surface parking lot, which is
typical of suburban, drive-to retail. Only a portion of the parking lot
in front of Kmart is used, the rest of this vast land sits empty. Hilltop
residents love shopping at Kmart, several residents walk from close
by residential neighborhoods. This block has the potential to become
a vibrant and walkable shopping center.
PHASE 1
The vacant parking lot along Donna Drive is reconfigured to accommodate a center green, sidewalks, and a drive with parallel parking around the median. The tree-lined green surrounded by small retail footprints will create a formal entrance to the shopping center. The street trees and proper sidewalks along this new street will create a desirable address for retail and enhance the pedestrian environment.
PHASE 2
Retail buildings are added around the center green to create a public space. The new shops and restaurants will benefit from the high traffic volume of the remaining anchor. The parking lot is redeveloped with buildings addressing Donna Drive. A parking garage is built to serve the new uses. The garage is located in mid-block, behind retail, screened from public right of way. However, it is visually and physically accessible to Kmart shoppers through an access drive.
PHASE 3
A new street connecting the First Colonial Road to Jack Rabbit Road is introduced. This new connection will improve the circulation in the shopping center. New retail buildings addressing the streets are added with parking located within the new blocks. Hilltop Square Shopping Center is fully transformed into a vibrant shopping center and incorporated to the rest of Hilltop shopping district as infill redevelopment continues on incremental parcels on the north Donna Drive. The site is developed with new retail buildings fronting Donna Drive and Laskin Road and parking is accommodated on-street and in mid-block.
I-264
Donna Drive
Laskin Road
First C
olo
nia
l Ro
ad
I -264
Donna Drive
Laskin Road
First C
olo
nia
l Ro
ad
I -264
Donna Drive
Laskin Road
First C
olo
nia
l Ro
ad
Ja
ck Ra
bb
it Ro
ad
KEY PR INCIPLES
E X IS T ING DE V ELOPMEN T: 410 ,0 0 0 SFDE V ELOPMEN T AS SHOW N: 1,4 8 0 ,0 0 0 SF
Enable the buildings to »come to the street
Incorporate parking into »on-street spaces, surfaces lots and decks, both hidden away from the street
Provide safe access from »both sidewalk and parking areas.
Set up potential LRT station »location
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KMART BLOCK
AERIAL PERSPECTIVE LOOKING SOUTH OVER POTENTIAL KMART REDEVELOPMENT CASE STUDY AREA WITH COMPLETED REDEVELOPMENT
AERIAL SHOWING EXISTING CONDITIONS OF KMART SITE
AERIAL SHOWING PHASE 2 OF KMART REDEVELOPMENT
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HILLTOP SHOPPING CENTER
The Hilltop Shopping Center is best positioned for redevelopment
as there is a current demand for its existing retail and it is within
close proximity to surrounding neighborhoods. The plan calls for
incremental changes to produce an interconnected street network.
These streets will define a clear block system for a mix of uses. The
focal point of the redevelopment will be a sequence of unique and
accessible spaces that are surrounded by a variety of shop fronts.
These special places will create a vibrant environment that entices
local residents and visitors to come together as one community.
PHASE 2
The larger retail blocks are transitioned to a more urban block types through the placement of local roads to better accommodate access to retail amenities. This newly defined framework encourages a more walkable environment for pedestrians, encouraging shoppers to park-once and not "depend on the car as a shopping cart." To lessen the impact of the redevelopment, a landscaped median is added to Laurel Lane to create a buffer between the front yards of the adjacent residential and the parking lot side of the retail properties.
PHASE 3
The final build-out of the Hilltop Shopping Center is a redevelopment that is legible and accessible. Public spaces interrupt the blocks to create special nodes throughout the plan that are anchored by the existing YMCA, new big box retail, and smaller, local businesses. To accommodate the new development, the plan proposed three parking garages to serve the new district in addition to street parking. With an improved street network and buildings that front on all sides of the block, the Hilltop Shopping Center has transitioned itself from surface parking lots and big box retail uses to a more urban retail district at the center of the Hilltop SGA. Laurel Lane should be reconfigured to separate neighborhood traffic from commercial traffic. However, pedestrian connections and sidewalks should align with blocks to provide access to the new retail amenities for residents.
PHASE 1
The large block of parking with retail buildings interspersed is divided to create a better network of secondary streets. The focal point of the first phase of redevelopment is the linear green that creates an entrance into the new development.
Laskin Road
Laurel Lane
Win
wo
od
Driv
eFirst C
olo
nia
l Ro
ad
Laskin Road
Laurel Lane
Win
wo
od
Driv
eFirst C
olo
nia
l Ro
ad
KEY PR INCIPLES
E X IS T ING DE V ELOPMEN T: 470 ,0 0 0 SFDE V ELOPMEN T AS SHOW N: 510 ,0 0 0 SF
Interconnect street grid »
Create a formal entrance »
Provide a variety of public »spaces
Orient= buildings to the »street
Replace surface parking »with parking garages
Place surface parking mid- »block behind buildings
Laskin Road
Laurel Lane
Win
wo
od
Driv
eFirst C
olo
nia
l Ro
ad
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HILLTOP SHOPPING CENTER
PERSPECTIVE OF THE REDEVELOPMENT OF THE HILLTOP SHOPPING CENTER PHOTO SHOWING EXISTING CONDITIONS
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MARKETPL ACE AND KROGER
Located at the corner of Laskin and First Colonial Roads and within
close proximity to a proposed transit line, this area is a prime loca-
tion for a range of non-residential uses. This design can be phased
over time to be better organized and support a more urban character
that is walkable and accessible for all users. With a mix of office, res-
taurants, local retail shops, and major anchors such as Whole Foods
Market, Michaels, and Total Wine, this area is an emerging employ-
ment center and transit-ready development.
PHASE 1
To provide a better network of streets and alternative routes for local traffic, a road is designed to run north, connecting Laskin Road to Republic Road. The existing stormwater pond is formalized to capitalize on the opportunity of a new pedestrian thru-way and development frontage. A new street also is built to connect to the neighborhood to the north to the assisted living center and Republic Road.
PHASE 2
New retail is built along the formalized water feature and the edge of the blocks to create a more urban streetscape and begin to conceal surface parking. A parking garage is placed next to the Kroger and within close proximity to Whole Food's to allow development of excess surface parking.
PHASE 3
A mid-block promenade between Laskin Road and Republic Road is designed to create a distinct retail address that is ideal for outdoor seating and visitors to congregate. A redesigned water feature and passive greens add to the uniqueness of this space, connecting the shopping district to a new office development north of Republic Road. An added parking garage will free up space for additional retail development and will increase the density and utilization of this property.
Laskin Road
First C
olo
nia
l Ro
ad
Republic Road
Laskin Road
First C
olo
nia
l Ro
ad
Republic Road
Laskin Road
First C
olo
nia
l Ro
ad
Republic Road
KEY PRINCIPLES
E X IS T ING DE V ELOPMEN T: 3 02 ,0 0 0 SFDE V ELOPMEN T AS SHOW N: 4 6 2,0 0 0 SF
Interconnect street grid »
Situate buildings close to »the street
Link office and retail uses »
Create a mid-block pedes- »trian connection
Replace surface parking »with parking garages over time
Place surface parking mid- »block behind buildings
Connect to surrounding »uses
Create central open space »and dining terrace
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“TARGET® BLOCK”
Located across from one of the proposed LRT stations, this address
is a prominent corner within the Hilltop SGA. The proposed rede-
velopment orients buildings to face along First Colonial Road and
Donna Drive to better provide a safe and accessible retail address
for an increase in vehicular and pedestrian traffic that will come as a
result of the potential transit station.
PHASE 1
A new street is introduced to better connect the street grid, distribute traffic, and minimize the volume on surrounding local roads. The new street terminates at the front entrance of the Target and is anchored with new retail buildings at either end. The new retail buildings minimize the view of surface parking and conceal a new parking garage that will serve Target shoppers.
PHASE 2
The final build-out of the Target Block includes new retail buildings along the edges of First Colonial Road and Donna Drive. To provide greater visibility for Target and the new retail uses, a road is extended through the northern block of the site to Laskin Road. Parking is located mid-block and hidden behind the buildings. Trees and landscaped areas soften the redevelopment and help to reduce surface runoff around the paved lots.
Donna DriveDonna Drive
I-264I-264
First C
olo
nia
l Ro
ad
First C
olo
nia
l Ro
ad
KEY PR INCIPLES
E X IS T ING DE V ELOPMEN T: 15 0 ,0 0 0 SFDE V ELOPMEN T AS SHOW N: 3 3 0 ,0 0 0 SF
Interconnect street grid »
Line buildings along major »roads
Replace surface parking »with parking garage
Place surface parking mid- »block behind buildings
Provide landscaped areas »for water runoff
Connect to Laskin Road »
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REGENCY HILLTOP SHOPPING CENTER
Located north of Laskin Road at the western edge of the SGA,
The Regency Hilltop Shopping Center provides a key opportunity
both for the creation of a neighborhood and regional destination for
retail shopping, high-quality office space, and beautiful passive park
space. The redevelopment of this shopping center can occur in stages,
allowing viable businesses to remain while a public realm is created
around them. The Recency Hilltop redevelopment represents one of
the high potential areas for mixed-use and walkable redevelopment.
PHASE 1
The first phase of development creates of a new street grid and a central space from the existing layout of parking drives and lots. Once this new framework is in place, the northern and southern strip buildings can be redeveloped into a new anchor, flanking retail buildings, and a structured parking deck. This would allow all of the out parcels and the anchor at the west of the property to remain. The small park space creates a gathering area for outdoor seating and other types of activities. In this first phase, the large green area at the rear of the property can be used for stormwater collection for the development with minimal upgrades.
PHASE 2
The second phase of development creates a complete retail environment and a new publicly accessible open space amenity. Once the core of the site has been established as a viable retail site, the out parcels can be redeveloped with street-facing perimeter blocks. This will reinforce the street grid and creates a true destination for neighborhood and destination shopping. Finally, the existing anchor can be redeveloped into an ideal corporate office site with an attached structured parking deck. The large green area in the rear of the site can be developed into an open space that functions both as a publicly accessible park and a functional sustainable stormwater treatment and management facility. This could be achieved through public and private cooperation and would take full advantage of the opportunities of the site.
Laskin R
oad
Laskin R
oadR
eg
en
cy D
rive
Re
ge
ncy
Driv
e
KEY PR INCIPLES
E X IS T ING DE V ELOPMEN T: 26 8 ,10 0 SFDE V ELOPMEN T AS SHOW N: 415 ,76 0 SF
Use layout of existing »parking drives and lots to transform into a network of streets and a central green space for gathering
Replace some surface park- »ing with decks that service retail and office uses
Phase development to allow »for viable redevelopment over time
Create a publicly accessible »storm water park at the rear of the site, overlooked by a highly desirable office site
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SOUTHERN GREENWAY AND INNOVATION ZONE
Potential realignment of the light rail alignment north into the
Hilltop SGA would create opportunities for reclamation of City-
owned former rail right-of-way for a strong east-west greenway. To
strengthen this greenway, the existing ball fields west of First Colonial
Road may be moved to a new park south of the greenway, which could
also incorporate victory gardens and other types of passive recreation.
The land currently occupied by the ball fields can be made available
for development with uses complementary to NAS Oceana.
PHASING
The phasing of the greenway and development opportunities in this case study would be dependent on studies. Public initiatives to relocate the ball fields and create this large park connected to a critical greenway would then catalyze private development in the blocks north of the former rail right-of-way. This development may create an innovation zone where offices or businesses needing flex or light industrial space can locate with easy access, proximity to retail uses, and linkages to a greenway system.
Potters Road
Virginia Beach Boulevard
KEY PRINCIPLES
E X IS T ING DE V ELOPMEN T: 191,9 5 0 SFDE V ELOPMEN T AS SHOW N: 5 41,15 0 SF
Create greenway along the »City-owned right-of-way with multi-use paths.
Create a large park that »connects to the greenway with relocated ball fields, a victory garden, and passive recreation uses.
Capture valuable land west »of First Colonial Road for office or flex development
Locate uses that are com- »patible with the APZ-1 and CZ Master Plan and AICUZ
First Colonial Road
Southern Boulevard
Virginia Beach Boulevard
Oceana Boulevard
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Development Standards
FRONTAGE L ANDSCAPE
Defining standards for treating frontage landscape for a mix of uses
can provide a clear public and private delineation, maximizing of a
building’s exposure to the street, and articulation on how one is to
enter and use a building. The physical elements of a streetscape (pav-
ing, trees, street furniture, lighting, and signs) along with the comfort
and convenience of people have a major importance in the design of
the frontage landscape and creating a quality environment.
Retail addresses within the Hilltop SGA should be lined with
shopfronts, outdoor cafe seating, and other commercial uses. These
addresses typically carry a higher volume of traffic so it is encouraged
that wide sidewalks are placed to accommodate this variety of activ-
ity. Wider sidewalks also allow for shopfront building elements such
as commercial awnings and signage to reinforce retail and entertain-
ment nodes and interest pedestrians along the street. These addresses
have minimal setbacks so that the buildings’ doors are placed up-
front and directly next to pedestrian activity.
STANDARDSPrioritize the street experience1
Provide shaded circulation2
Provide small setbacks3
Create large sidewalks for pedes-4 trian walkability, outdoor seating, and landscaping.
Provide lighting, signage, and 5 landscaping that is reflective of the addresses.
COMMERCIAL
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STREET FURNISHINGS
Street furnishings are an essential component of the Hilltop SGA.
Items such as benches, bike racks, trash receptacles, pet waste sta-
tions, and bollards will establish the human scale within the larger
setting. Combined with site lighting, planting, and signage, these
components help to define the nature and character of the pedestrian
experience while providing convenience, safety and comfort. These
are the details that will help create a sense of place and to establish
the Hilltop aesthetic for Virginia Beach.
Street lighting, benches, trash receptacles, and bike rack ameni-1
ties should be coordinated for coherent character. Sub-areas, such
as business and residential neighborhoods, may have differing
themes, but these themes should strongly reflect each other in
their materials, colors, and forms throughout.
Benches, trash receptacles, and bike racks should be located regu-2
larly, be sturdy designs intended for heavy use and be affixed to
the ground surface.
Iron or concrete bollards should be used to protect and define 3
important pedestrian-oriented areas.
Trash receptacles should reside in an area convenient for trash 4
pick up and be discrete as viewed from vehicular and pedestrian
traffic. They should be located at street intersections, near retail
storefronts, and in community and neighborhood parks. The
receptacles should also be coordinated with plant material and
strategically positioned behind walks or near entrance planting.
Benches should be located in pairs and should be positioned for 5
conversation and good views. When curb side, benches should
face the storefronts and away from the streets in urban environ-
ments. They should be located to not impede pedestrian flow and
be coordinated with shade when exposed to a southern aspect.
Benches should be located on level concrete pads for stable seat-
ing and ease of maintenance beneath. All transit stops should
include at least one bench in addition to trash receptacles.
Bike racks should be located at every park and commercial area. 6
They should be carefully situated near the street but behind the
entrance planting and walkways. Clusters of “Inverted U” racks or
the equivalent should be used.
Transit shelters are street furnishings that should be designed to 7
infuse public art into the streetscape.
Public art should be incorporated in pedestrian and bicycle ame-8
nities as elements that can create a comfortable, safe and attractive
public realm.
GENERAL CRITERIALocated appropriately within the 1 public realm of streets
Proper frequency and affixed to 2 the ground
Help to define the pedestrian 3 realm and provide amenity for alternative forms of transportation
STREET FURNITURE
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EX TERIOR SIGNAGE
Signage for the Hilltop SGA is critical for establishing a themed
identity to the entire community or to sub-communities of the over-
all SGA. They are also necessary for completing the extension of the
buildings to the street. It may be difficult for a pedestrian to see the
name of a store if the building sign is the only means of identifica-
tion and the entrance to that store is too high above the pedestrian
areas. Pulling additional identification signs out and toward the
pedestrian areas is an essential ingredient to creating a sense of place.
Additionally, signs that repeat font types and styles for a particular
business help to orientate the pedestrian by defining one business
space from another.
While building signage deals primarily with identification, other
sign systems in the SGA will play a critical role in defining the
environment and creating legibility and identity in the planned com-
munity. Directional and way-finding signs for themed developments
provide support for a community’s daily activities as well as special
events, and operational or regulatory signs provide important param-
eters for conducting these activities.
Site signs should be incorporated with the planting, paving, and 1
lighting designs as much as practical, except for incidental signs
such as temporary advertisements or sandwich board signs.
Light poles and building columns may be used for mounting 2
Way-finding and Regulatory signs as appropriate.
Materials such as select grade painted wood or sheet aluminum 3
are encouraged for site sign faces as well as graffiti and tamper-
resistant materials. Other highly durable sign materials such as
ceramics, aluminum, steel, acrylic, or fiberglass should also be
considered for use.
SIGNAGE
GENERAL CRITERIAAppropriately located to be read-1 able and accessible to pedestrians
Well designed and graphically 2 clean
May be mounted on light poles 3 and suspended from buildings
Encouraged materials include 4 painted wood and sheet aluminum
To encourage ease of usage, natural areas should have well defined 4
sign posts for trail lengths, destinations, and place names as rel-
evant.
Educational sign markers are critical to identifying and interpret-5
ing history and natural systems for trails and open space. These
should be strategically sited as trail systems are developed.
Interpretive signs along pedestrian linkages should be used to 6
point toward and announce culturally significant sites, such as the
Upper Wolfsnare Plantation, well before a pedestrian arrives at
these destinations.
Map-type graphics panels are critical to point out destinations 7
and nodes along trail systems so that pedestrians and casual
bicyclists can make important decisions before venturing on new
paths.
Sign graphics should be capable of rendering high-resolution full 8
color images, photographs, colorful diagrams, and bold text in all
weather conditions. They should have UV coatings that are long
lasting and resistant to graffiti, fingerprints, dirt, oil, and other
substances, and they should be strong and durable if not virtually
unbreakable. They should comprise one solid continuous piece or
several interlocking tiled pieces for larger signs.
Sign frames and bases should not be prone to peel, fade, crack, or 9
rust.
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53
LIGHTING
Lighting in the Hilltop SGA is variable. Most street lights are high
pressure sodium lamps in cobrahead fixtures, while private business
lighting is a mixture of metal halide, mercury vapor, and high pres-
sure sodium on a variety of fixture styles and pole heights, building-
mounted lighting notwithstanding.
Light fixtures otherwise provide for the safety and accessibility
of outdoor spaces at night. Fixtures should be selected for lighting
capacity as well as for architectural quality that will lend a sense of
place and articulation to the SGA. To the maximum extent possible,
light fixtures should be selected for consistency throughout Hilltop.
They should be designed as cutoff fixtures to minimize light pollu-
tion and glare. They should also offer a true color rendition in lieu of
yellow (high pressure sodium) street lights. If desirable, some lights
may be timer controlled to discourage late night access to parks and
trail systems as well as to conserve energy.
LED lighting is recommended for this SGA. These types of
street lights should have the following specifications:
4100 Kelvin (color), 80 to 100 CRI »
Bulb Life: 100,000 to 150,000 hours »
Wattage: 80 to 100 (max) »
Lumens: 6800 to 8500 (determines brightness) »
Max Min: 10 FC or less (less equals more uniform lighting) »
LIGHTING
GENERAL CRITERIAArchitectural design which adds 1 to character and sense of place
LED, dark-sky lighting2
Tool-less entry fixtures for easy 3 maintenance
Tool-less entry fixtures are recommended for ease of mainte-
nance. The City has used the Cooper-type fixture for their lighting
style on various developments. This is one of the more modern lights
offered by Dominion Virginia Power (DVP). This fixture would lend
itself well to the Hilltop area. Any similar light fixture recommended
would be well suited to reflect this style; however, selections are often
limited to DVP standards. Any special lighting fixture in a public
right-of-way that deviates from their inventory will require a special
lighting agreement with DVP if they are to maintain these lights.
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54
PARKING LOT AND STREET TREE CANOPIES
In an urban environment, soils under paved areas are highly compact-
ed. This limits the amount of water, oxygen, and nutrients available to
plant material including trees. This also limits tree root growth caus-
ing trees to be stunted or to die prematurely. There are some options
that are available for use in areas with highly compacted soils that
will allow adequate moisture, oxygen, and nutrients to reach the root
zone of trees.
One option is the use of structural soils. Structural soils under
pavement support the pavement load, but also provide an ideal soil
environment for tree root establishment. The additional root space
encourages deep root growth away from the pavement surface, elimi-
nating problems associated with pavement displacement.
Existing parking lots could be retrofitted by using a combination
of structural soils and permeable pavement without displacing any
parking spaces. Small, diamond-shaped tree pits could be installed
in the upper corners of parking spaces allowing only a small diago-
nal portion of the parking space to be removed. Placing structural
soil and permeable pavement within the parking spaces directly
surrounding the trees will allow tree roots to grow as required for
healthy trees. This will help support an urban tree canopy, especially
in Hilltop which has a high percentage of paved area.
MULCHCONCRE TE CURB
TOP SOILPERME A BLE PAV ERS
OPEN GR A DED BEDDING COURSE
# 57 OPEN GR A DED BASE AGGREG ATE
# 2 OPEN GR A DED SUB - BASE AGGREG ATE
5 0 / 5 0 TOP SOIL S TRUC T UR A L SOIL MIXS TRUC T UR A L SOIL
E X IS T ING SOIL
E X IS T ING ASPH A LT DRIV E A ISLE
12” CONCRE TE BA ND
PROP OSED PERME A BLE PAV ERS
PROP OSED TREE ISL A ND W IT H 6” CURB
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PARKING STANDARDS
Primary addresses throughout the Hilltop SGA are environmentally
impacted and aesthetically limited by the presence of many large
parking lots. Redevelopment of these parking lots with the use of
standards will ensure a better potential for future development and
create an environment that is not a hindrance to pedestrians or the
high quality character of the Hilltop community.
STAND ALONE GAR AGE STANDARDS
Free-standing »
Architectural treatment of garage's facade should be »screened from public right-of-way
Pedestrian entry articulated in the facade's composition »
Naturally ventilated »
WR APPED GAR AGE STANDARDS
Located generally in the middle of the block »
Liner buildings provide screening along public right-of-way »
Minimal visibility should occur along primary streets. »
Pedestrian entry articulated in the facade’s composition »
Naturally ventilated »
SURFACE LOT STANDARDS
Generally located at the rear or to the side of buildings »
Buildings provide screening along primary streets; shade »trees, landscaping, and low walls provide screening along secondary and tertiary streets.
Minimal visibility should occur along primary streets. »
Wayfinding methods should be clear for access of pedestri- »ans and vehicles.
A RCHI T EC T UR A LLY T RE AT ED FAC A DE
G A R AGE
G A R AGE
CONDIT IONED SPACE
PRIMARY STREET
SECONDARY STREET
SECONDARY STREET
SECONDARY STREET
Large parking lots can be divided into future development blocks to permit maximum flexibility for denser development to take place. Parking should be designed to correspond with service requirements of the block, leaving land for building pads that can be accommodated incrementally over time. As development occurs, tree-lined streets and buffered landscape edges will create a protected environment for pedestrians. Parking lots and garages should be placed out of public view but still easy to access.
FU T URE DE V ELOPMEN T S ITE
FU T URE DE V ELOPMEN T S ITE
FU T URE DE V ELOPMEN T S ITE
FU T URE DE V ELOPMEN T S ITE
FU T URE DE V ELOPMEN T S ITE
ORIGIN A L BUILDING
(1)
(2) (3)
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56 implementation str ategies
Implementation Strategies the Hilltop SGA Plan includes a series of implementation
concepts that will involve both the city and private property owners.
Improvements will evolve over several years and occur incrementally.
The following strategies will assist the community in a coordinated
approach to redevelopment:
Update zoning regulations based on the SGA plan »
recommendations
Consider tools for redevelopment including Special Assessment »
Districts, Special Service Districts, Tax Increment Financing,
Business Improvement District, and Parking Management
Create a BID or similar organization to allow property owners »
and tenants to work together to manage community events, main-
tain the district, and plan for the future.
Revisit design assumptions for scheduled improvements to major »
arteries including Virginia Beach Boulevard, First Colonial, and
Laskin Road.
The VDOT design for Laskin Road is old and outdated and »
should be redesigned with consideration to the recommendations
in this study.
Continue to explore alternative transit alignments to better serve »
Hilltop’s prime commercial area.
As improvements to Laskin Road are implemented and redevel- »
opment of commercial property evolves, build a new secondary
and tertiary street network to improve mobility and access in
Hilltop.
Implement the city wide trail system as roads and streets are »
rebuilt to new standards.
PUBLIC AND PRIVATE INITIATIVES
The Hilltop SGA will require a coordinated effort of public and private investment to achieve full potential. The public investment in open space and transportation infrastructure not only create an improved public realm but will allow for full return on the accompanying private investment.
IMPLEMENTATION STRATEGIES
ZONING
Consider: District-level flexible zoning tied to SGA programs; overlay »zones, including transit-ready, transit-oriented development; retrofitting some SGAs with new zoning, tying list of permitted /prohibited uses to physical forms.
SPECIAL ASSESSMENT DISTRICTS (SAD)/
SPECIAL SERVICE DISTRICTS (SSD)
Outline costs of necessary physical improvements by phase, and »model SSD contributions against improvement costs.
Explore legality of Floor Area Ratio (FAR)-based SAD. »
Run financial modeling of SSD by each SGA. »
TA X- INCREMENT F INANCING (T IF )
Analyze fiscal impact of proposed development at the SGA level. »
Model the contributions of a TIF, with contingency, in conjunction with »SSD for multiple phases of infrastructure investment.
Shape infrastructure investment to lessen percentage of public contri- »bution over time while increasing percentage of private contribution.
BUSINESS IMPROVEMENT DISTRICT (B ID)
Embrace BIDs as a way to advance the goals of the SGA effort. »
Cultivate leadership in the Hilltop SGA to become a BID, preferably in »conjunction with plan adoption.
PARKING MANAGEMENT
Model funding of parking via stacks of TIF, SSD, fees and compare »results of fiscal impact study against cost of parking delivery and potential sources of revenue.
TIERED INCENTIVE PROGR AM
Explore proper incentive structure as well as terms for compliance par- »ticipation; test market program with developers and property owners.
Incorporate incentive program into SGA implementation /roll-out. »
Reconcile any tax-driven incentives with TIF and SSD. »
PUBLIC IN IT IAT IV E
PRIVATE S TREE T IN IT IAT IV E
PRIVATE DE V ELOPMEN T IN IT IAT IV E
Note: Where shown initiatives are
on private property, improvements
are to be made at the discretion
of the property holder and should
be performed in conjunction with
redevelopment.
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57 implementation str ategies
Public Investments
PUBLIC INVESTMENTS DIAGRAM
The city will be responsible for key infrastructure improvements
including transportation management and street design, improve-
ments to pedestrian and bicycle infrastructure, utilities, and transit
initiatives:
Laskin Road Redesign and Implementation to eliminate frontage 1
roads and improve traffic flow and safety. Improvements to First
Colonial Road at the intersection of Laskin Road are included in
this project to help improve flow.
Streetscaping improvements to include landscaping, trees, light-2
ing, trails, sidewalks, crosswalks, and wayfinding signage
Introduce a transit station and transit park in Hilltop as part of a 3
new city wide transit system and open space network
Develop a parking strategy for Hilltop and introduce structured 4
parking in public /private ventures in order to increase open space
and tree canopy throughout the SGA
PUBLIC ROA D IN IT IAT IV E
1
4 3
1
2
2
2
I-264
I-264
I-264
First C
olo
nia
l Ro
ad
First C
olo
nia
l Ro
ad
Laskin Road
Wolfsnare Road
Republic Road
Hillto
p R
oa
d
Re
ge
ncy
Driv
e
Laurel Lane
Southall Drive
Donna Drive
Kmart
Target
Marketplace at Hilltop
Hilltop Shopping Center
Regency Hilltop Shopping Center
Charles Barker Toyota
Trader Joe's
Villa
ge D
rive
Village Drive
Upper Wolfsnare Plantation
Parish Day School
St. Nicholas Greek Orth.
Church
Linkhorn Park Elem. School
Freedom Fellowship
Church
Good Shepherd Lutheran Church
Laskin Road Annex
Ego DriveV
ictor R
oa
d
Mable Lane
Wildwood Drive
Virginia Beach Boulevard
Potters Road
School Bus
Parking
Oceana Boulevard
Oce
an
a Bo
ule
vard
Virginia Beach Boulevard
No
rth O
cea
na
Bo
ule
va
rd
Old Virginia Beach Road
We
st La
ne
Laskin RoadW
inw
oo
d D
rive
Fre
ma
c Driv
e
Linkhorn Bay
Wolfsnare Creek
Reynard Drive
Wisco
nsi
n A
venue
Gre
at N
eck
Cre
ek
Ne
va
n R
oa
d
Whole Foods
Friend’s School
2
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58 implementation str ategies
Private Redevelopment
PRIVATE REDEVELOPMENT DIAGRAM
PRIVATE ROA D IN IT IAT IV E
PRIVATE DE V ELOPMEN T IN IT IAT IV E
implementation str ategies
I-264
I-264
I-264
First C
olo
nia
l Ro
ad
First C
olo
nia
l Ro
ad
Laskin Road
Wolfsnare Road
Republic Road
Hillto
p R
oa
d
Re
ge
ncy
Driv
e
Laurel Lane
Southall Drive
Donna Drive
Kmart
Target
Marketplace at Hilltop
Hilltop Shopping Center
Regency Hilltop Shopping Center
Charles Barker Toyota
Trader Joe's
Villa
ge D
rive
Village Drive
Upper Wolfsnare Plantation
Parish Day School
St. Nicholas Greek Orth.
Church
Linkhorn Park Elem. School
Freedom Fellowship
Church
Good Shepherd Lutheran Church
Laskin Road Annex
Ego DriveV
ictor R
oa
d
Mable Lane
Wildwood Drive
Virginia Beach Boulevard
Potters Road
School Bus
Parking
Oceana Boulevard
Oce
an
a Bo
ule
vard
Virginia Beach Boulevard
No
rth O
cea
na
Bo
ule
va
rd
Old Virginia Beach Road
We
st La
ne
Laskin RoadW
inw
oo
d D
rive
Fre
ma
c Driv
e
Linkhorn Bay
Wolfsnare Creek
Reynard Drive
Wisco
nsi
n A
venue
Gre
at N
eck
Cre
ek
Ne
va
n R
oa
d
Whole Foods
Friend’s School
Private property owners are encouraged to participate in the rede-
velopment and improvements to Hilltop by creating a new street
framework to improve mobility and accessibility. With this improved
access, land owners will have the ability to redevelop their properties
to create a more pedestrian friendly centers at higher densities.
Work with the City to plan and build new streets to create a sec-1
ondary and tertiary street network. Tertiary streets that are shown
in this plan, which require the relocation of structures or parking
capacity, will be planned and built at the discretion of the prop-
erty owner.
Build complete public or private streets with accommodations for 2
vehicles, pedestrians, bicycles, furnishings and landscaping.
Redevelopment of commercial property: replacement of obsolete 3
commercial structures with new buildings placed according to
new planning standards for the district.
Provide publicly accessible open spaces and landscaping within 4
redevelopment projects that enhance value of retail and mixed-use
developments and enhance the open space network of the SGA.
Work with the city to develop a district parking strategy.5
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59 next steps
Next Steps
SUMMARY OF NEXT STEPS
Adopt the Hilltop SGA plan »
Revisit zoning regulations to permit redevelopment of property in the »Hilltop SGA
Develop a comprehensive stormwater management strategy for the »Hilltop SGA
Establish implementation and positioning strategy for all SGAs and »develop segmentation approach for each
Create necessary development mechanisms to encourage public and »private investment
Establish strategies for reconnecting street network throughout entire »SGA
Conclude analysis of transit stop location and rail alignment alternatives »
Conclude the analysis of Laskin Road alternatives »
Develop a parking management strategy for Hilltop »
Develop corridor master plan that coordinates, sequences, and priori- »tizes public investments between Newtown and the resort area
Update the Sanitary Sewer Master Plan based on projected future den- »sities to adequately serve the redeveloped Hilltop SGA.
ILLUSTRATIVE MASTER PLAN
the redevelopment of the Hilltop SGA will consist of sev-
eral key moves which will allow for the gradual redevelopment of
individual blocks and neighborhoods. Chief among these are the
reconfiguration of Laskin Road, the potential transit station loca-
tion, and the alignment of the LRT. Each of these will shape the type
of private development possible and ultimately the character of the
Hilltop SGA. The recommendations for the street network will fur-
ther allow for increased connectivity throughout the site. Concurrent
to the adoption process, the City should be actively pursing a strate-
gic growth strategy that positions the Hilltop SGA to target growth
appropriately, relative to the other SGAs.