The Journey Through Hallowed Ground Corridor from Gettysburg to Monticello

Transcription

1 The Journey Through Hallowed Ground National Heritage Area Corridor Management Plan October 2008 (Final Draft) The Journey Through Hallowed Ground Corridor from Gettysburg to Monticello

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3 Corridor Management Plan for the Journey Through Hallowed Ground Corridor Pennsylvania Route 394 US Route 15 US Business Route 15 Virginia Route 20 Virginia Route 231 Virginia Route 22 Virginia Route 250 Virginia Route 53 Milton Road Prepared for: The JTHG Partnership Prepared by: Lardner/Klein Landscape Architects, P.C. In association with Glatting Jackson Kercher Anglin Kimley-Horn and Associates, Inc. John Milner Associates, Inc. Heritage Tourism Program, National Trust for Historic Preservation Oldham Historic Properties, Inc. Corridor Planning and Design Transportation Planning Engineering Preservation and Interpretation Heritage Tourism Agency Coordination FINAL DRAFT: October 2008

4 The JTHG Partnership Corridor Management Plan Advisory Committee Kimberly Abe, Senior Planner, Fauquier County Office of Planning Stuart Andreason, Executive Director, Orange Downtown Alliance David Benish, Chief of Planning, Albemarle County Todd Benson, Land Use Officer, Piedmont Environmental Council David Blake, Buckland Preservation David Boyce, Executive Director, Oatlands, Inc. Winky Chenault, Enhancement Programs, VDOT- Central Office Dave Christiansen, Manassas National Battlefield Hap Connors, Spotsylvania County Board of Supervisors Wally Covington, Supervisor- Brentsville, Prince William County Board of Supervisors Lynn Crump, Environmental Programs Planner, Virginia DCR Mike DeHart, Director of Information Technology, Piedmont Environmental Council John Egertson, Director of Planning, Culpeper County Carol Ferguson, Prince William County Board of Supervisors Office John Fieseler, Director of Tourism, Tourism Council of Frederick County, Inc. George Fitch, Mayor, Town of Warrenton, VA Florence Ford, Manager, Cumberland Township Thomas Gilmore, Director of Real Estate, Civil War Preservation Trust Ed Gorski, Land Use Officer, Piedmont Environmental Council Andrew Grigsby, Sustainability Consultant, Culpeper, VA Kai Hagen, Board of Supervisors, Frederick County, MD Emmett Heltzel, L&D Engineer, VDOT- Central Office Dan Holmes, Land Use Field Officer, Piedmont Environmental Council Mike Kane, Conservation Officer, Piedmont Environmental Council Karen Kilby, L&D Engineer, VDOT- Culpeper Cheryl Kilday, President and CEO, Loudoun Convention and Visitors Association Jackie Koons-Felion, Scenic Byways Program, Pennsylvania Dept. of Transportation Mark J. Lewis-DeGrace, Transportation Planner, Loudoun County Pam Liston, Program Manager, VDOT- Central Office Terry Maxwell, Scenic Byway Coordinator, Maryland Highway Administration Christopher Miller, President, Piedmont Environmental Council Christopher Mothersead, Director of Planning & Community Development, Town of Warrenton David Nordeen, AIA Beth Pastore, Land Conservation Manager, Piedmont Environmental Council Ellen Percy Miller, Turn the Mill Around Campaign Dick Peterson, Borough Council President, Gettysburg, PA Leighton Powell, Executive Director, Scenic Virginia Bill Rolfe, County Administrator, County of Orange Bruce Rommelt, Bull Run Estate Board Harrison Rue, Executive Director, Thomas Jefferson Planning District Commission Jerry Schiro, Middleburg Town Administrator Richard Schmoyer, Planning Director, Adams County Office of Planning & Development Peter Schwartz, Supervisor, Fauquier County Board of Supervisors Sid Siddiqui, VDOT- NOVA District Gene Swearingen, Town Manager, Haymarket, VA Edward Tucker, Director of Public Works, Town of Warrenton, VA Esther Turner, Prince William/Manassas Convention and Visitors Bureau Dennis VanDerlaske, Prince William County, VA Linda Wright, Buckland Preservation Jim Zeller, Engineering Manager, VDOT JTHG Partnership Team: Cate Magennis Wyatt, President Beth Erickson, Vice President Shelley Mastran, Project Manager Jaime McClung, Marketing Manager Jennifer Moore, Executive Assistant The Journey Through Hallowed Ground is a registered trademark of the Journey Through Hallowed Ground Partnership.

5 Table of Contents CHAPTER 1: INTRODUCTION 1.1 The Journey Through Hallowed Ground Purpose of the Plan Planning Context and Process JTHG National Heritage Area Vision and Goals for the Byway 5 CHAPTER 2: THE QUALITIES OF THE BYWAY 2.1 Corridor Definition Primary Intrinsic Qualities Supporting Intrinsic Qualities 31 CHAPTER 3: VISITOR EXPERIENCE 3.1 Finding and Following the Byway Existing Visitor Attractions and Interpretive Resources Existing Roadway Conditions Types of Change Likely to Occur to the Roadway and Roadside 57 CHAPTER 4: PRESERVING AND MAINTAINING INTRINSIC QUALITIES 4.1 Conservation and Preservation Strategies Managing Roadside Character 82 CHAPTER 5: INTERPRETATION, HERITAGE TOURISM AND VISITOR MANAGEMENT 5.1 Heritage Tourism and Visitor Management Stakeholder Involvement and the JTHG Professional Team Byway Market Research and Market Initiatives to Date Interpretation Strategies Developing an Interpretive Framework 107 CHAPTER 6: ROADWAY SAFETY, WAYFINDING, AND ENHANCEMENT 6.1 Context Sensitive Design/Solutions Design, Maintenance, and Management Guidelines Wayfindng Enhancing the Byway 169 CHAPTER 7: STEWARDSHIP 7.1 Advisory Committee Coordinating Roadway Management Practices Along the Byway Priority Projects and Programs Funding Opportunities 179

6 APPENDICES APPENDIX 1: MAPS 1. Corridor Definition and Scenic Qualities 2. Corridor Linkages 3. Historic Qualities 4. Natural Qualities 5. Recreational Qualities 6. Corridor Access and Visitor Facilities 7. Conservation Priorities 8. Visitor Sites and Attractions 9. Corridor Character Areas APPENDIX 2: HIGHWAY SAFETY ANALYSIS (Maps) APPENDIX 3: HERITAGE TOURISM 1. Site listings 2. All-American Road Partnership Letter 3. Tear-off Map 4. Sample itineraries on All-American Road APPENDIX 4: IMPLEMENTATION TABLE APPENDIX 5: SUPPORTING LOCAL LAND USE POLICIES AND EXISTING SIGN ORDINANCES APPENDIX 6: BEST PRACTICES ALONG THE BYWAY Digital (Adobe PDF) copies of the final draft plan can be downloaded at /jthg_index.html

7 PREFACE The Journey Through Hallowed Ground Corridor Management Plan has been prepared in accordance with Paragraph 9 of Federal Register / Vol. 60, No. 96 / Thursday, May 18, 1995 (referred to as the Interim Policy) in order for the routes from Gettysburg, PA, generally following PA Route 394, US Route 15, US Route 15 Business, VA Route 20, VA Route 231, VA Route 22 and connecting routes to Monticello the spine of the Journey Through Hallowed Ground National Heritage Area to be considered for nomination as an All-American Road by the Federal Highway Administration. According to the policy A corridor management plan, developed with community involvement, must be prepared for the scenic Byway corridor proposed for national designation. It should provide for the conservation and enhancement of the Byway s intrinsic qualities as well as the promotion of tourism and economic development. The plan should provide an effective management strategy to balance these concerns while providing for the users enjoyment of the Byway. The corridor management plan is very important to the designation process, as it provides an understanding of how a road or highway possesses characteristics vital for designation as a National Scenic Byway or an All-American Road. Based on guidance provided by the Federal Highway Administration, this corridor management plan has been organized to address the four core elements that must be addressed as part of the nomination process: the significance either regionally or nationally of the Intrinsic Quality(s) along your Byway that merit national designation; planning to support the preservation, enhancement and promotion of the Intrinsic Quality(s) along your route; providing a quality visitor experience; and sustainability in the form of community and organizational support to continue to preserve, enhance and promote your Byway. The Corridor Management Plan was developed with extensive citizen input, both through the contributions of the Advisory Committee and numerous public meetings. Altogether, more than 50 meetings with citizens throughout the corridor were held to develop the plan, as discussed further in Chapter 1. The plan is organized to make it easier to ascertain the core elements and the FHWA interim policy, both noted above. Chapter 1 explains how the plan was developed with community involvement including its resulting vision and goals. Chapter 2 first defines the corridor and then explains the national significance of the intrinsic qualities of the Byway. The corridor definition includes a description of the route, defines the width of the corridor, incorporates the places to visit along the corridor that are related to its themes, and incorporates the linkages associated with other regional resources that cross the Byway, such as recreational trails, other Byways, and travel corridors. Next, the primary intrinsic qualities are described that qualify the route for designation as an All-American Road. Historic qualities are nationally significant across all three states, while scenic qualities are nationally significant in Pennsylvania and Virginia. Recreational qualities are nationally significant in Maryland. Chapter 2 concludes with a section on other supporting intrinsic qualities that contribute to a high quality visitor experience. Chapter 3 describes the existing Byway conditions and its readiness for visitors. It describes how a combination of existing Byway and wayfinding signage, coupled with widely distributed tear-off maps and an official guidebook, can help the visitor find and follow the Byway. Chapter 3 lists over 30 nationally significant anchor sites along the Byway that interpret its themes, are safe and accessible, are open 300 or more days, and have full service facilities capable of handling group tours and international visitors. Chapter 3 describes the existing roadway conditions as well as the currently planned and programmed projects that are likely to be constructed along the roadway and the range of existing management and maintenance practices currently used along the roadway itself. Finally, Chapter 3 describes the general nature of growth and development along the Byway and a summary of the policies that are in place now to guide that growth.

8 Chapter 4 documents the broad range of existing programs that are available to help preserve and maintain the intrinsic qualities of the Byway including priorities to be used for implementing those conservation and preservation measures. Chapter 4 notes that over 44% of the 1.8 million acres of land that can be seen from the Byway or historic sites and features related to its themes are permanently protected by conservation easements with an additional 9% of that land protected by some kind of temporary measure such as land use taxation program or overlay district. Chapter 4 also identifies measures to manage the potential effects of intrusions to the Byway experience, especially focused on those issues where permanent preservation or conservation measures are unlikely to occur. Chapter 5 describes how the visitor experience will be managed over time including a description of how the Byway is currently marketed and promoted, and additional measures that are planned to market the Byway, including to international visitors. Chapter 5 further describes both the existing and planned interpretive strategies for the Byway. Chapter 5 discusses the three primary themes for the Byway: Land of Conflict, Reunification and Rebuilding; Land of Leadership; and Place of National Beauty and Rural Character, and the sites along the Byway that currently interpret those themes. Chapter 5, then further elaborates how the Byway can help to coordinate interpretation among the various sites, attractions, programs and product development. Potential storylines are developed for each of the primary themes as a way to lay the foundation for the development of an interpretive plan, which will be accomplished for the entire National Heritage Area. Chapter 6 discusses how the roadway itself will be managed over time to ensure that the Byway will be safe and will meet the wide range of needs for all its users in a manner that will maintain the Byway s intrinsic qualities and enhance the user s travel experience. Chapter 6 starts with a discussion of using context sensitive solutions and smart transportation as an approach for addressing both travel safety and travel capacity issues as they arise along the Byway. Illustrative and conceptual examples are included for two areas that exemplify typical transportation challenges along the Byway: one approaching Culpeper, Virginia, along US Route 15 Business and one approaching Orange, Virginia, along US Route 15. Finally, Chapter 6 includes a set of design, maintenance and management guidelines that can be used to help achieve the desired character of the Byway over time. Chapter 6 also includes many drawings;, renderings, and representative photos to assist the reader in better understanding the proposed concepts. These illustrations are not intended to imply a specific solution, and should not be construed to mean that a particular solution can be applied anywhere in the corridor. Ultimately, the appearance of this corridor, if it is arrived at using appropriate CSS methodology and approaches, will be developed with all pertinent and relevant stakeholder participation being sought, and if provided, given appropriate consideration. The CSS processes and approaches outlined in this Chapter are intended to be inclusive of all stakeholders including each state s DOT, localities, neighbors, commuters, and that cover the widest range of points of view. Chapter 7 - discusses how the JTHG Partnership has organized themselves to manage the Byway as the main spine around which a visit to the National Heritage Area will be organized. Chapter 7 describes the continuing roles and responsibilities of the Advisory Committee, subcommittees, and the Byway Manager, and identifies additional professional assistance that will be needed in several areas to monitor the implementation of the plan. Finally, Chapter 7 establishes criteria for determining priorities for implementation and identifies top priorities. A responsibility table is included in Appendix 4, along with potential funding opportunities for each of the main strategies for implementing the plan. The Corridor Management Plan recognizes that we are in an era of very serious budget and resource constraints. Rather than sit back and wait it out, the plan suggests the formation of a wide range of unique partnerships and collaborations as a way to overcome these constraints. The corridor management plan provides a blueprint for the necessary partnerships to bring more resources to help preserve, maintain and enhance this 175-mile corridor for sustainable heritage tourism development. As a cross-reference, the table on the following page identifies the fourteen requirements of the corridor management plan and the corresponding pages that address those requirements.

9 Federal Requirement (1) A map identifying the corridor boundaries and the location of intrinsic qualities and different land uses within the corridor. CMP Pages Chapter 2; Appendix 1 (2) An assessment of such intrinsic qualities and of their context. Chapter 2; Appendix 1 1 (3) A strategy for maintaining and enhancing those intrinsic qualities. The level of protection for different parts of a National Scenic Byway or All-American Road can vary, with the highest level of protection afforded those parts which most reflect their intrinsic values. All nationally recognized scenic Byways should, however, be maintained with particularly high standards, not only for travelers safety and comfort, but also for preserving the highest levels of visual integrity and attractiveness. Chapter 4, pp 63-86; Appendix 1 (4) A schedule and a listing of all agency, group, and individual responsibilities in the implementation of the corridor management plan, and a description of enforcement and review mechanisms, including a schedule for the continuing review of how well those responsibilities are being met. (5) A strategy describing how existing development might be enhanced and new development might be accommodated while still preserving the intrinsic qualities of the corridor. (6) A plan to assure on-going public participation in the implementation of corridor management objectives. (7) A general review of the road s or highway s safety and accident record to identify any correctable faults in highway design, maintenance, or operation. (8) A plan to accommodate commerce while maintaining a safe and efficient level of highway service, including convenient user facilities. (9) A demonstration that intrusions on the visitor experience have been minimized to the extent feasible, and a plan for making improvements to enhance that experience. (10) A demonstration of compliance with all existing local, State, and Federal laws on the control of outdoor advertising. (11) A signage plan that demonstrates how the State will insure and make the number and placement of signs more supportive of the visitor experience. (12) A narrative describing how the National Scenic Byway will be positioned for marketing. (13) A discussion of design standards relating to any proposed modification of the roadway. This discussion should include an evaluation of how the proposed changes may affect on the intrinsic qualities of the Byway corridor. (14) A description of plans to interpret the significant resources of the scenic Byway. Chapter 7; Appendix 4 Roadside Character, pp 82-86; Transportation and Land Use, pp ; Roadway Design, pp Chapter 7 Chapter 3, pp 53-61; Appendix 2 (maps) CSS Approach, pp Intrusions minimized: Chapter 4 Enhancements: pp Chapter 4, pp Chapter 6, pp Chapter 5, pp Chapter 6, pp Chapter 5, pp Also see Journey Through Hallowed Ground National Heritage Feasibility Study, Chapter 2, pages 15-17; Chapter 3; and Chapter 4, pages

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