Waynesboro Draft Comprehensive Plan - November 2017

Cover Art: Claude Skelton, Jr.
1967
City of Waynesboro, VA
2017 Comprehensive Plan
PREPARED BY czb, LLC
City of Waynesboro, VA PREPARED BY czb, LLC
CITY COUNCIL 4 PART 1

Bruce Allen (Mayor)
Terry Short (Vice Mayor) 4 Foreword
Alvin Pete Marks
Jeff Freeman
Elzena Anderson 10 Introduction
PLANNING COMMISSION
Constance Paradiso (Chair) 12 Foundation
Patrick McNicholas (Vice Chair)
Elzena Anderson (Council Liaison)
Stephen Arey 22 Big Things
Shannon Boyle
Miguel Eusse
Andrew Kelly
24 PART 2
STEERING COMMITTEE
Andrew Kelly 25 Goals
Shannon Boyle
Elzena Anderson (Council)
Terry Short (Council) 28 Projects
Diana Williams (School Board)
Sue Wright 30 Education
Stephen Arey
Miguel Eusse 34 Economy
David Wolfe
Melinda Ferguson 40 Infrastructure
Mary Kane
Noelle Owen
48 Quality of Life
Doug Davis
58 Neighborhoods
Sam Hostetter
Danny Ledford
Stacey Strawn
Kathy Johnson
70 PART 3
Bob Harris
70 Implementation
Cover Art: Claude Skelton, Jr. 1967
2 Waynesboro 3.0 - Catching Up, Keeping Up and Getting Ahead DRAFT NOT FOR DISTRIBUTION Waynesboro 3.0 - Catching Up, Keeping Up and Getting Ahead DRAFT NOT FOR DISTRIBUTION 3
Foreword
Theres only one location MAR

YL
in all of America thats

A
ND
partway between Harrisonburg Washington
Charlottesville and
Staunton and physically 81
linked to Skyline Drive,
ve
Shenandoah National Park,
Dri
250
ne
y li
Staunton
A
the Blue Ridge Parkway,
RGIN
Sk
Charlottesville
Waynesboro
VI
IN A
ST
and the Appalachian Trail.

G 64
W IR
E
95
V
64
way
SHENANDOAH
rk
Pa
NATIONAL PARK
Only one community is lucky enough to sit at the base of Afton Mountain, have Main
dge
Street front the South River, and be able to hike to and possibly through the Crozet
Richmond
Tunnel, where the Blue Ridge Mountains are Waynesboros to enjoy, to nurture, and,
Ri
eventually, pass on to future generations of Virginians. APPALA C IAN TRAIL Blu IL E S
e
Lynchburg 50 M
64
These attributes put Waynesboro in a unique place in American cultural geography,

H
and position the city beautifully at a time when outdoor recreational opportunity
has never been more important in the marketplace. Where else can one walk to Roanoke
Downtown, have a morning coffee, and then make short work of catching a half
dozen rainbow trout? Waynesboros setting is indeed magical. 81
I LE S
100 M
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/VDLP/Waynesboro/images/1517.jpg
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Library.
To print this page hit Ctrl+P (Windows) or Command+P (Mac)
This digital image is from the Waynesboro Public Library Photograph Collection at the Library of Virginia.
This collection is housed at the Waynesboro Public Library.
You may order prints from this collection by contacting LVAs Picture collection by email or fax. Please be certain
to include the name of the collection and the image numbers (not the URL) when making picture requests.
The present City of Waynesboro was included in the

e-mail: picture@lva.virginia.gov
fax: (804) 692-3709 thousands. This sustained a solid level of economic Street, just as Waynesboros investments Downtown are
118,491-acre Beverley Patent of 1736, issued to William
If these images will be used or reproduced in any format, you must get permission from the Waynesboro Public
Library. prosperity during the Great Depression through World War showing results. The citys commitment to continue to
Beverley by Governor William Gooch under the direction II, and for decades after. In 1948 the town was officially develop its industrial park has attracted new employers
of King George II of England. Joseph Tees purchased 465
http://image.lva.virginia.gov/cgi-bin/photo.cgi/VDLP/Waynesboro/images/1517
accorded
1/1
first class independent city status. Three and it means it has the potential to fully leverage its rail
acres from Beverley in 1739. His widow operated a well- generations of families bought homes in Waynesboro, lines and location on I-64. New, high-quality housing
known tavern or inn, and the Tees or Teas Tavern was raised children, shopped Downtown, and transformed the is being developed in Waynesboro. Older traditional
a widely known landmark. As the settlement developed,
http://image.lva.virginia.gov/cgi-bin/photo.cgi/VDLP/Waynesboro/images/0637
community.
1/1
neighborhoods are slowly being rediscovered. Small
Samuel and Jane Teas Estill and the developer James Flack businesses are successfully operating Downtown.
However, the nature of manufacturing gradually changed.
promoted the area, which was named Waynesboro as early This doesnt mean Waynesboro doesnt have work to do.
Some companies relocated to less expensive labor
as 1797 in honor of the Revolutionary War hero General The world is changing more rapidly than ever. The nature
sources, others shifted to reliance on robotics. Some
Mad Anthony Wayne. The town was officially established of retail today means that despite gains in rebuilding its
began to substitute materials. As a result, manufacturing
by the Virginia General Assembly in 1801. economic base, Waynesboro is vulnerable to the realities
employment in Waynesboro declined. Today, Waynesboro
Waynesboro flourished during the following decades. It is facing some hard realities. The upside of robust of unpredictable commercial transformation. Decisions
was incorporated as a town in 1834. Twenty years later, the employment from 1950-1970 had costs. Some but not all made elsewhere - for example in Wisconsin by the Kohls
east-west railroad reached Waynesboro, which received of these costs were then - or are even now - fully known. Corporation, in Minneapolis by Target, or in Charlotte by
even greater access to major trading markets with the What is known is the burden, or legacy, of environmental Collette - are fundamentally no more in the citys control
completion of the Crozet railroad tunnel through the Blue degradation. Theres the unoptimized value of real than were those made in Wilmington by DuPont or in
Ridge Mountains in 1858. Waynesboro was reincorporated estate along the South River. And the cost of addressing Rhode Island by the Crompton Corporation so many years
in 1874. In 1881, the north-south railroad reached the area, abandoned manufacturing facilities and other buildings. ago. Indeed, the pace of change in retail today, where
crossing the east-west line at Waynesboro Junction, east decisions by Amazon or Walmart - neither with any more
As a response to the loss of Dupont and the imperative
of the river, at a place promoters called the Iron Cross, allegiance to Waynesboro than anywhere else - require
to reposition the city economically - especially after the
which formed the nucleus of the new boomtown, Basic City, that the community become ever more informed and
Great Recession that ended in June 2009- Waynesboro
incorporated in 1891. assertive.
transitioned from its previous and vulnerable reliance
For 32 years the two towns enjoyed a remarkable period of on manufacturing to an economically more diversified
rivalry and expansion, often punctuated by recession and community. With Invisita and Lumos on one hand, and This document is Waynesboros comprehensive
depression. They finally consolidated under the name of Target, Lowes, and Home Depot on the other, Waynesboro plan, a decision-making guide to help the community
Waynesboro-Basic, following a referendum in both towns and the region today have a good diversity of well-paying successfully navigate the challenges Waynesboro faces.
in 1923. Renamed Waynesboro by the legislature the next jobs, and a sizable source of public revenue from retail Some of these challenges are well known. Others are
year, the consolidated town soon experienced industrial sales taxes and the taxation of tools and machinery. more subtle. Some are short term. Some are long-term.
investment that brought unparalleled growth. The citys efforts to incentivize the development of the The following sections describe these challenges in
By the 1950s, both General Electric and Dupont had a Town Center and surrounding commercial real estate greater detail, and then present a careful, coordinated
significant and growing presence in Waynesboro, and have paid dividends. The citys creative work within the process to address them.
together along with other manufacturers employed Downtown Enterprise Zone continues to transform Broad
Literally and figuratively, This plan is a commitment
Waynesboro is at a crossroads on three fronts.
- historically, politically,
environmentally, economically,
and especially demographically.
The city is at a historical and

political crossroads. It enjoys the
The city is at a crossroads
environmentally and
Waynesboro is at a crossroads
demographically. Waynesboro is a Catching up Keeping up Getting ahead
benefits of a lower than average economically. Waynesboro family-oriented city, with excellent
property tax rate in Virginia, but it enjoys a natural setting like few parks, good shopping, terrific First, the community must Second, the community Third, the community will
also has the challenge of having others. But its also one that, has housing options up and down the accept that it has some will have to do a better job follow through and invest
test scores below state averages not been optimized. The South ladder, and the beginnings of a catching up to do, and pay keeping up than it was able to get ahead in the future.
in the Commonwealth, several of River is on the rebound, but it is potentially great trail system. But for it. to do with limited resources The community will follow
the least up to date schools in the to Waynesboros economy only it also has an aging housing stock, This plan is clear about the need and the shock of job loss through and invest to get ahead
region, several overdue repairs fractionally as valuable as it and as demand to buy a home in to acknowledge that some of experienced 20 years ago. in the future. Sometimes
to roads and bridges, sidewalks, could be. Significant tax revenue Waynesboro has softened, and as yesterdays frugality may have This plan makes clear the aggressively and at other times
and schools, that will grow comes from the Waynesboro Town confidence in the local market has been necessary, but the time communitys commitment to bring more cautiously, Waynesboro
more costly to tackle if not fixed Center, but pad and big box retail weakened relative to Fishersville has come for Waynesboro to its schools and roads and sidewalks will see itself in the competitive
now. The community will have - by design - depreciate as newer and Staunton and elsewhere in pay the costs of bringing the city and homes to the high standard context of market reality, and will
to confront the issue of revenue shopping centers pop up down the Valley, lower housing costs up to date, pay for what it costs required for Waynesboro to compete take active steps on a continual
to maintain Waynesboro at the successfully. basis to get and stay ahead of
sufficiency if it is to successfully the road. Waynesboro will have reflect that Waynesboro is less
competitive level of finish needed cost curves, to make the most
reposition itself and become more to confront these issues if it is to and less the solidly middle income today to succeed, and pay for the of its resources, and to seize the
competitive in the region. It will become economically sustainable. community it used to be. It will expense of getting ahead of the opportunity that life in the Valley
have to confront a growing reliance have to confront its changing cost curve. offers.
on sales tax revenue, and this will demographics if residents and
mean aligning property tax rates business owners want the schools
to the reality of what it costs to to succeed and help Waynesboro
run a city properly. In short, the again become a community of
community will have to badly want choice in the valley.
Waynesboro to be able to compete,
and demonstrate a willingness to
It will take follow through on all three if todays
pay for it. Waynesboro residents genuinely want to
ensure future residents inherit a strong city.
PART 1
Introduction
This is Waynesboros Comprehensive Plan.
It is to be activated in 2018. It has five aims.
Projects
Planning Process
Foundation This starts with the establishment of clear and well communicated
This plan is the result of the
baselines. The foundation is furthered by a simple articulation of
To institute a clear foundation Waynesboros most cherished values. It is additionally amplified by planning process described here.
for how the city will make clear planning principles that will guide implementation. The baseline
decisions in the near future. conditions were discussed in numerous small group meetings that Community Engagement
took place in 2017. How the community chose to respond to these
conditions in those discussions formed the basis of the the values and - In February 2017, a project steering committee was
principle statements in this document. impaneled by the City Council to collaborate with a team
of planning professionals. Members of the steering
committee were drawn from across the community. Goals
- From March to August, they provided insights and
Big Things These are the most pressing matters the community faces at
feedback to the planning team that complemented the
the present time; matters that the community determined it quantitative and qualitative data that the planning team
To identify the big things that cannot ignore and which therefore require attention now.
Waynesboro absolutely must collected and analyzed.
get right. - The steering committee itself facilitated numerous small
group conversations in the community during the Spring
and Summer of 2017.
Goals By design, the goals in this plan are Specific (clear about what the
city is trying to achieve). They are Measurable (clear about how Community Expertise Big Things
To set clear goals for the city Waynesboro will know if progress is being made so it can continually, - From February through October, planning consultants
to aim for; goals that are clear, and objectively reassess). They are Ambitious yet Achievable (tied to worked closely with city planning staff, the police
attainable, and meaningful. financial, political, and other realities). They are Relevant (connected department, staff from parks and recreation, engineers
both to todays circumstances, and to Waynesboros estimated from public works, experts from the Economic
trajectory in the years to come). And they are Time-bound (with dates Development Authority, officials from the school system
on a calendar that the city works towards and to which it holds itself and representatives from the City Managers office.
accountable).
Projects In order to make progress towards each goal, specific actions (or Foundation
To outline the prioritized projects as they are labeled in this plan) will have to be undertaken. This
projects that are needed to plan outlines priority projects, but leaves to expert staff the finer grain
achieve these goals. work of project detail.
Implementation Even in the best of circumstances, Waynesboro will not have enough
money to do all that needs to be done. And while the community will
To describe succinctly the have to catch up in many areas, it also cant ignore the getting ahead
manner in which Waynesboro work needed to attract strong households and businesses. Thus, much Baselines Values Principles
must implement this plan. care is required to prioritize and sequence the various projects. Some
projects will need to be started immediately. Others can only start when
resources become available. Staff expertise will determine how best to
sequence and re-sequence these and future projects. In this plan, each
project is directly tied to one or more goals, has a clear connection to
the big things that Waynesboro must get right, and has a justification
contained in the baselines and in the communitys articulated value
system.
PART 1
Foundation
Part One of the
Comprehensive Plan - the Baselines
Foundation - consists
of the following three
component subparts.
Baseline conditions
Where
(current demographics,
Waynesboro
current financial capacity is today
of the city, current
market conditions).
Baselines Values Principles
The communitys values Whats Going Fundamental How We Will

On Now Beliefs Implement
(what the communitys
fundamental beliefs are).
Planning
The set of planning Principles Values Demographics + Conservative Stewardship
Competitiveness
principles Waynesboro
will apply as it
implements this plan.
Conditions + Image Family-friendly Balance
The communitys core values and a set of
planning principles are applied to what the
facts make clear about Waynesboro.
Education + Entrepreneurial Resourceful
This provides the foundation for this plan. Economics
Independent
Foundation
Sense of Place
While there are many indicators that can be useful to tell the Waynesboros share of college-educated adults Retail replaced manufacturing as the largest
Waynesboro story, three especially influential baseline stories shape in the region (ages 25-64) is smaller than source of employment between 2007 and 2014
Baselines Waynesboro today: its share of the overall population and has
declined since 2000.
Demographics and Competitiveness. 2007 2014
Today, Waynesboro has far fewer high-income households than neighboring EXPECTED ACTUAL
jurisdictions, even failing to capture high-income earners who work in Waynesboro.
This is important because it is an indicator of weak demand. It means households
4,500 Manufacturing 23% 23%
4,000
that have a choice are choosing to live elsewhere. Weak demand translates into
3,500
lower property values and a smaller tax base, making life harder for the remaining
residents. Because it also impacts classroom performance, and therefore the 3,000
citys reputation and ability to compete for households for whom school quality 2,500
is the most important factor in choosing where to live, Waynesboros current
demographic profile undermines the long term fiscal health of the city. Given the
2,000 Retail 20%
high cost of services to meet the challenges posed by struggling households - from
housing to education to public safety - the citys current demographic profile is not
1,500
1,000
18%
Source: Census County Business Patterns..
economically sustainable. Repositioning Waynesboro in the region depends on 500
how economically diverse the city becomes.
0
Education and Economics. 2000 2015

The national economy today is highly and increasingly reliant on and prefigured to Source: 2015 American Community Survey 5-Year Estimates. Waynesboros housing stock suffers from tens
reward the educational achievements of individual households. The more formal of millions in deferred maintenance but
education - from college to technical - the greater the probability of higher earning property owners are holding back.
power. This is a reality that has the effect of intensifying Waynesboros current The number of regional families in poverty who
and growing demographic disadvantage. What is true of the national economy is live in Waynesboro is disproportionately large.
also true of Virginias and the regions. More education and more training mean
more earning power. Households with more education and training - more earning 13.0%
$76 MILLION:
power - have a greater capacity for reinvestment, not only in their own futures, but, Estimated cost to remove blight and
importantly, in their communities. As well-trained and well-educated households The citys rate is address deferred housing maintenance
make investments in their community - in their homes by higher levels of over 50%
greater than the
maintenance and more frequent upgrades, and in their cities by directing resources regional rate
into schools and parks and infrastructure - existing assets becomes even more
$34 MILLION:
8.1% 7.9%
valuable. In turn, this fuels the feedback loop needed for economic durability. Annual estimate of untapped housing
Making Waynesboro a community of choice for households with extensive expense capacity
technical training and education - the pre-requisites for high wages - is critical for
the citys long term success.
In a housing market where strong demand is sustained,
Conditions and Image. residential property owners borrow to purchase - through
mortgage financing - and to rehabilitate - through consumer
Much of Waynesboro is in good condition. Some blocks are in excellent shape.
loans and other tools - to the point where the average ratio
However, a significant portion of the citys real estate - public and private - has been of housing value to income is about 3.5 to 1. In Waynesboro,
long neglected, and it shows. Years of deferred maintenance require attention. where the ratio is closer to 3.2:1, a significant amount of
Passing by vacant storefronts or dilapidated housing is a daily reminder to untapped capacity for reinvestment exists. By contrast,
residents of Waynesboros unrealized potential. Visitors wonder why they should Valley Waynesboro Piedmont
Stauntons ratio is 3.9:1, as is the States; Charlottesvilles ratio
give Waynesboro a second look, since so many current residents and business (Saunton, (Charlottesville, is 5.9:1, and Harrisonburgs ratio is 5.2:1
owners dont appear to be reinvesting. Augusta) Albemarle,
Nelson)
Source: 2015 American Community Survey 5-Year Estimates.
MARKET SPECTRUM REGIONAL HOUSEHOLD INCOME QUINTILES BY CENSUS TRACT
$350,000
Family income distribution in
the region is closely correlated G Census Tracts in the City of Waynesboro
with levels of housing demand R ON ND Crozet
A
and the expression of demand ST EM
D
in terms of market value. In
communities that successfully $300,000 100%
Charlottesville
compete for families at
higher income ranges, levels Ruckersville
90%
of investment in housing are
greater, as are public revenues Median Home Value
to reinvest into schools, $250,000
Lexington
80%
infrastructure, and amenities. Fishersville
Nelson County
Dayton Lake Monticello 70%
Harrisonburg
$200,000 Stuarts Draft
Bridgewater
Broadway
60%
Lyndhurst
Weyers Cave
Grottoes
Elkton
Staunton 50%
Dooms
$150,000 Waynesboro
Verona
40%
D
AN
M T
DE OF
Craigsville
S
Buena Vista
Crimora 30%
$100,000
$30K $40K $50K $60K $70K $80K $90K $100K
20%
Median Family Income
10%
0%
PERCENTAGE CHANGE OF POPULATION 25 YRS AND OLDER
Waynesboros income, poverty, WITH A BACHELORS DEGREE (2000 -2015) Highest Lowest
and housing investment
Source: czb income quintile analysis based on 2011-2015
problems are reflected in its Q5 Q4 Q3 Q2 Q1 ACS 5 Year Estimates for Augusta, Nelson, Rockingham,
small (and declining) percentage 60% Greene, and Albemarle counties and independent cities of
of college graduates. In an Waynesboro, Harrisonburg, Charlottesville, and Staunton.
Each bar represents an individual census tract.
economy that increasingly
rewards a college education, 50% Charlottesville An analysis of income quintiles in the region
Waynesboros residents are not around Waynesboro (where the 1st quintile
keeping up, and the city is not represents the lowest 20% of households
capturing enough of the regions 40% in terms of income, and the 5th quintile
college graduates. Region represents the top 20%) underscores
Waynesboros relatively weak competitive
30%
Staunton position in the region. Three of the citys five
census tracts have among the regions highest
concentrations of households in the lowest
20% quintile. With 30% or more of households in
Waynesboro the 1st quintile in those census tracts, levels
of demand and investment are low.
10%
0%
2000 2015
Waynesboros residents and business owners are a community with
shared values. Four are especially important:
We will... We will not...
Conservative. Waynesboro is a conservative community. It is wise and

Waynesboro will not saddle future
cautious with the publics trust and resources. Traditional values
Values Waynesboro will catch up and generations with catch up expenses

orient family and community life. Change is welcome when at a
pace the community can absorb. In practice going forward, this
keep up where needed. that make keeping up and getting
means Waynesboro will respond to its challenges carefully, and
after study and deliberation, it will act prudently. ahead impossible.
Family- Waynesboro is family-friendly. Being able to raise a family in a

safe and nurturing community is very important. Waynesboro
friendly. is a strong religious community; there many opportunities for Waynesboro will not tolerate unsafe
residents to participate in faith-based activities and partnerships. Waynesboro will put the future of our conditions in our neighborhoods
Civic life - from the Saturday farmers market at the Pavilion, to
the Run-The-Valley Race Series - is celebrated. In practice going children at the top of our agenda. and housing where children cannot
forward, this means that Waynesboros next steps as a community possibly succeed, nor will we accept
will be taken in partnership with the many religious and civic a lack of progress in our schools.
organizations that define community life, with the expressed aim
of ensuring children in Waynesboro are able to succeed.
Entrepreneurial. Waynesboro has a can-do spirit. It is an entrepreneurial

community, full of creativity and ingenuity, and a willingness to
take risks when needed. Industry and small business have Waynesboro will invest in projects
flourished despite the loss of Dupont. Indeed, after Dupont left,
that improve residential quality of life Waynesboro will not sit on the
significant effort was required to stimulate the development of
the Town Center, and rebuild the citys tax base. Whether the and grow the communitys capacity sidelines while neighboring
challenges have been natural or otherwise, the community has to stimulate demand to invest in competition moves ahead.
always found a way to come back. In practice going forward, this
means the projects to be undertaken in the coming years will
Waynesboro.
reflect the communitys spirited commitment to becoming better
and better.
Independent. Waynesboro is a self reliant and independent community with

a history of looking inward. It has repeatedly shown that it has
the grit and resolution to face challenges. Waynesboro aims to Waynesboro will leverage its Waynesboro will not look to
set its own course, be financially self supporting, and to make ingenuity to seize opportunities and Washington or Richmond to fix its
its own way. In practice going forward, this means Waynesboro
will enthusiastically partner, but first will aim for enduring address challenges. problems.
sustainability by investing in itself using its own resources.
Sense of Place. The Waynesboro community treasures its place in the Valley, in
Respect Waynesboros place, and will Make decisions not solely on the
the Blue Ridge Mountains, and along the South River. It takes
great pride in its history and culture, geography, and place. champion environmental stewardship basis of economic self interest, but in
based on a land ethic. consideration of integrity, stability, and
beauty of Waynesboro natural setting.
Foundation Big Things Goals
Planning
Principles Going forward, Waynesboro will apply the following planning
principles as it undertakes the projects identified in this plan, projects
designed to make progress towards the citys goals, goals that have
been stated and adopted by the city to ensure Waynesboro will be
getting the big things right.
Stewardship. Balance. Assets.

It will look after public resources, the natural and built Waynesboro will be balanced so its not vulnerable in any It will protect its natural assets, assets that have gone too
environment, human capital, and local culture. In all efforts, one way. While a sustainable Waynesboro economy is unprotected or too unleveraged for too long. The South
Waynesboro must be careful and economical and remain one where there are jobs across several sectors, whats far River is a jewel any community in America would give their
committed to getting and staying ahead of maintenance more important is that workers across the Valley choose eyeteeth to have. Waynesboro must continue its efforts
costs. to live and raise their families in Waynesboro. Right now, to expand its urban trout fishery, widen kayak access,
too few strong households are choosing Waynesboro, and and invest in its parks. The citys location at the base of
so a commitment to achieving a sustainable demographic Afton Mountain, and its proximity to the Appalachian Trail
profile is critical. and to Skyline Drive and to the Blue Ridge Parkway, are
likewise unleveraged, and thus unrealized as the significant
drivers for the citys economy they have the potential to
be. Waynesboros Downtown has not reached its potential
Waynesboro either, and for Waynesboro to truly compete in the coming
Waynesboro will reassess its decades, Downtown must be a vibrant commercial and
will only priorities regularly civic success. Natural or built, the citys long list of assets
Waynesboro will make and change course
permit growth must be nurtured.
sure that its road and as conditions
that improves the Waynesboro will
bridge network and its necessitate.
community over undertake catching-
utilities work effectively and
the long-term. up, keeping up, and
efficiently, that its schools
getting ahead work.
are state-of-the art, and its Waynesboro will
amenities are first rate. constantly check Waynesboro will
data, attitudes, carefully guard its hard
competition, and won fiscal health, its built
expectations and natural environment,
and its sense of
community pride
PART 1
Big Things
Big Things Big Things
We Must Get These
The second part of this Things Right
plan builds upon and is
an extension of the first.
It consists of the three
BIG THINGS Waynesboro Vulnerabilities Standards
Pride
absolutely must address
now and get right.
Every effort must be Vulnerabilities Standards Pride Waynesboro must be responsive to In two areas where Waynesboro It is hard for visitors to tell whether
made to: uncertainties. There are three that absolutely needs to succeed, it is the community has pride, either in
What Puts What Undermines What We Say require attention. not, yet must: housing property being so fortunate as to be located
tackle lingering Us At Risk Progress About Ourselves conditions and classroom at the foot of entrances to Skyline
vulnerabilities Flooding. performance. Drive and the Appalachian Trail, or
A significant portion of Downtown as property owners and citizens
set, maintain, and remains vulnerable to flooding Property.
Flooding Natural of Waynesboro. This is because
potential and all of its attendant The housing market is relatively
communicate high theres little to indicate either, a key
consequences, plus the market weak, owing to falling standards
standards impacts (discounted value of what ingredient the citys marketability.
of care and declining levels of
would otherwise be very valuable property owner reinvestment. It is
demonstrate pride Revenue Property Built real estate) of the uncertainty posed Natural.
necessary to build a firm floor in the The South River is the citys greatest
by the absence of trusted mitigation housing market, first by establishing
infrastructure. Few significant natural asset. Continue to make it even
standards beneath which the more accessible.
investments are going to occur community will simply not allow
Poverty Education anywhere that is likely to be flooded property conditions to go, then by
under current market conditions. Built.
incentivizing reinvestment. Significant portions of the citys built
Revenue. environment have not fared well the
Education. past several decades. Public facilities
The city relies heavily on sales and Student performance in the
meals taxes, principally those from such as the high school, private
classroom has also fallen, in some property such as empty strip shopping
chains and franchises. An extremely cases to troublesome levels where
dynamic commercial environment centers, and poorly maintained
basic accreditation is an issue. housing have become the norm on too
across the country combined with the Closely tied to the citys changing
sell-by date nature of leapfrog retail many blocks that are too visible to too
demographics, many students come many. This requires attention.
puts the city at fiscal risk. to school from extremely difficult
family circumstances and are
Poverty. unprepared to succeed, with school
Poverty has risen and is a growing readiness out of reach. These and
concern. issues of transience greatly challenge
the ability of even the best teachers.
It is essential that the school system
have the resources to allow every
student to succeed in Waynesboro
Public Schools, regardless of family
of origin challenges.
PART 2
Goals
Projects
In view of where Waynesboro The goals in this plan are intentionally S-M-A-R-T,
is today - at a crossroads with that is they are Specific, Measurable, Ambitious
strengths and vulnerabilities, yet Achievable, Relevant and Time-bound. Some
its core values and planning are outputs, some are outcomes, but all are goals
principles, and the big things it the achievement of which will have a positive
absolutely must get right - this impact.
plan establishes five goals that
the community must work to
achieve.
Neighborhoods
When the communitys core
values and planning principles
are applied to these goals and
attached to a commitment to get
Goals Goals
the big things right, a resulting
Clear, Attainable, Meaningful
slate of priority projects
emerges. Infrastructure Quality of Life
Education Economic
Big Things
We Must Get These
Things Right
Planning
Principles Values
Foundation
Education Economic Infrastructure Quality of Life Neighborhoods
Goals
Performance Locational Optimization Roads and Bridges Parks and Trails Residential Values
By 2022, all Waynesboro Schools will By 2019 optimize area around exit 96. Continue to participate with VDOT. By 2021 the citys park system will By 2025 the median sales value for
be fully accredited by the 2022 state be expanded to include the new single family detached homes will be
By 2019, the City will have procured a During the period 2018-2023,
and federal accreditation standards. Sunset Park equal to, or greater than the average
small area plan for the exit 94 area. continue to monitor the funding
for Augusta County.
By 2027, all seniors will graduate gap that exists in the transportation By 2021 the existing trail system
By 2020 advance construction of the
with the qualifications to enter the maintenance area (pavement will be extended north to Ridgeview By 2025 the median rent for a two
Waynesboro extension of the Virginia
workforce and/or to enter college. maintenance, signals, bridges, alleys) Park and south to Basic Park. bedroom apartment will be equal
Natural History Museum by increasing
and develop a plan that by CY 2028 to,or greater than the average for
the local share of funding. By 2023 the citys park system
will result in 80% of the roads and Augusta County.
will be expanded to include a
Facilities By 2020, the City will have procured 100% of the citys bridges will be redeveloped Constitution Park that
an analysis of the risk of flooding of an adequate condition using the
By 2028 all educational facilities will extend from the South River to
Downtown. standard Pavement Management Safety
in Waynesboro will be caught up in Arch Avenue.
terms of maintenance and capital By 2023 construction of a trail to the System. By 2025, the rate of all Part 1 and 2
By 2028 100% of residential
improvements. Crozet Tunnel will have been started. By 2022 East Main between city Uniform Crime Reports Offenses will
addresses in Waynesboro will
limits and Arch and Broad between be less than Staunton
be less than one mile from an
Arch and Dupont will have been By 2025 all properties scored 4 or
Downtown access point to an interconnected,
redeveloped to an A standard and 5 in the 2017 evaluation will have
circumferential citywide trail
By 2025, Wayne Avenue between have achieved landmark aesthetic been upgraded to, at least a 3, or
network.
Broad and Federal and Main Street quality on par with the Blue Ridge demolished.
between Wayne and Arch will have Parkway.
a 90% storefront occupancy rate by Downtown
tenants paying market rate rents. Rental Property Impacts
Sidewalks and Trees By 2028 Main Street between
Arch, and Wayne will have been By 2020 all rental properties will have
Adopt and implement the draft 2016 been registered with the city by a
Revenue Shift redesigned to enable installation of
Sidewalk Plan. legal agent for the owner, subject to
street trees.
By 2020, the city will make progress on-going inspection requirements.
towards indexing property tax rates By 2028 a median with street trees
to the General Fund and towards will have been installed along
sequestering sales and meals taxes Lumos Plaza between Wayne and
into a discrete Comprehensive Arch
Plan Implementation Fund to be
used solely for the purpose of
making Catch Up and Get Ahead
investments.
PART 2
To attain these five goals - summarized as raising the quality of the
Projects
citys schools, leveraging the citys locational value, investing in the
citys infrastructure, increasing the quality of life for residents of
Waynesboro, and strengthening the citys housing market - this plan
outlines the specific priority projects that must now be undertaken.
City
Education Economic Infrastructure Quality of Life Neighborhoods Effectiveness
To achieve the goals established for Waynesboro will be on a solid The citys economic foundation will Residential quality of life will be Property owners will be investing The challenge of implementing this
school/student performance and for economic footing when businesses be secure in direct proportion to dramatically increased upon greater their time, energy, and money into plan requires additional staffing.
the quality of the citys educational can grow and when visitors discover the degree to which its long term development of the citys parks and upon their homes and businesses, sure that Such an expansion of staffing will
facilities, the following projects are the city is significantly reinvesting physical assets are in excellent expansion of the citys trail network. It it makes increasing sense to do so. greatly increase capacity while
scheduled. in itself. To achieve the goals condition. To achieve the goals will be further increased by additional This level of confidence in the citys accelerating attainment of goals.
Design, fully fund, and launch a established as regard maximizing of increasing the performance community policing, and by increased housing markets will be supported by At the following estimated levels
Waynesboros locational value and the and aesthetic quality of the citys code enforcement capacity. To achieve strong code enforcement, increased
Best-in-Valley for the Best Teachers and subject to the confirmation
performance of Downtown real estate, infrastructure, the following projects these goals, the following projects are police presence, and partnership
Compensation Package by 2020, and of staff experts in the relevant
the following projects are scheduled. are scheduled. scheduled. between the city and owners aimed at
thereafter maintain Best-in-Valley departments, add FTEs and/
increasing reinvestment rates.
status. Invest in school readiness, and other Monitor the funding gap that exists in Complete the re/development of or subcontractors as needed to
educational improvements. the transportation maintenance area Constitution Park from South River to Expedite the condemnation of all achieve and when possible reduce
Perform basic repairs to Waynesboro
(pavement maintenance, signals, Arch Avenue by 2023 in a manner to residential properties that dont the costs of continued dependency
High School sufficient for five years; Begin pump station installation at the
bridges, alleys). absorb the new Natural History Museum, comply with the citys maintenance on external funding and/or
meanwhile saving enough annually Industrial Park, completing installation
and at a landmark aesthetic quality on code. implementation partners.
to start substantial rehabilitation in by 2020; thereafter continue to hold/ Develop a plan that by CY 2028 will
par with the Blue Ridge Parkway.
2023 designed for completion by advertise the Industrial Park to suitors. result in 80% of the roads and 100% Public Works (5 by 2021)
2028. of the citys bridges being adequate Complete the development of Sunset
By putting an increased share of Police ( 3 by 2020)
using MPS standards. Park by 2021 in a manner that enables a
By 2027, all seniors will graduate the citys own funds into the project,
connection to East Main at Jones Hollow, Public Schools (5 by 2018)
with the qualifications to enter the expedite planning and development of Adopt and implement the 2016
and thereby connects to a future trail Building and Zoning (3 by 2018)
workforce and/or to enter college. the Virginia Natural History Museum. Sidewalk Plan and complete by CY
to the Crozet Tunnel, and at a landmark
2028 Parks/Recreation (3 by 2020)
Develop plans to begin construction aesthetic quality on par with the Blue
in 2023 of a connection to the Crozet Begin installing street trees at a rate Ridge Parkway.
Tunnel from Jones Hollow. necessary to achieve 30% canopy
Extend trail system north to Ridgeview
coverage in Waynesboros developed
With city funds, increase by 2025 Park and South to Basic Park by 2021
areas by 2028, and a 40% rate by
the small business loan capacity for
2040. Plan for and adequately resource the
Downtown businesses on Main and
completion of a city-circumference trail
on Wayne by growing the real estate Redevelop East Main between Jones
by 2028.
development loan ceiling to $200,000 Hollow and Arch, and Broad between
(capacity of five), raising business Arch and Dupont to an A standard, Waynesboro will launch the Best-in-Valley
expansion loans to $100,000 (capacity and sufficient to achieve landmark 1st Responder Compensation Package
of 10), and increasing working capital aesthetic quality on par with the Blue by 2020.
lines to $50,000 (capacity of 20). Ridge Parkway, and thereafter, at
Jones Hollow, establish a trailhead
Procure a high quality analysis of the
of the same quality leading to an
risk of flooding Downtown.
eventual trail to the Crozet Tunnel,
construction for which is to start no
later than 2023, with a tie in to the
new Sunset Park.
Education Projects
The Challenge The Significance of Addressing
Education must be addressed in performance to demographics. today come unprepared to take
the Educational Challenge
Waynesboros comprehensive plan 4. High school students are
Two clear challenges result. First, advantage of the citys excellent These two challenges - bringing school
for several reasons. The physical not graduating at high enough facilities up to date and improving
the citys educational facilities faculty and curriculum. In point of
condition of the high school rates. performance outcomes - are priorities. A
need to be upgraded. This fact:
requires considerable resources, constitutes a capital expense As greater success in elementary high school where hallways are lined with
and middle school occurs, it can be
thereby compelling the city to at the front end and adequate buckets to catch rain coming in from a leaky
1. Too many of the children anticipated that significant improvement
prioritize. Test scores at every operational funds on an on-going roof is a serious problem; but whats more
who are entering Waynesboros in Waynesboros on-time high school
grade level are among the lowest basis. Second, performance needs graduation rate and college readiness will serious is that this is not a new problem.
elementary schools are not
in the state, compelling the city to to improve, and dramatically. result. Test scores that show Waynesboros
act. Enrollment is slipping, which coming poised to succeed.
Waynesboros children are not students are performing never better than
by formula translates into fewer Teachers alone cannot engineer, much
doing as well in school as they at the top of the bottom third in the state.
less provide, enough compensatory help
state education resources, thus need to. Though some go on to enable every child to succeed. Robust This is a serious problem. Nor is this a new
requiring the city to pay attention to excel, many who enter the community-school partnerships are challenge, reflecting a deeper, more serious
to the relationship of school Waynesboro school system needed. dilemma illustrating a long running lack of
commitment to education in Waynesboro
2. A significant number of that cannot continue. Poor quality facilities
60%
Waynesboros elementary and low average proficiency reflect and
Percent of Population with Bachelors Degree or Higher
school age children are not shape the citys housing market, the citys
52% doing well in the basics. neighborhoods, the citys demographics,
Albemarle
A community partnership on behalf of
and the community as a whole. Both have
50% Charlottsville Waynesboros children must extend a deeply intertwined influence on how well
50%
through elementary school so students or how poorly Waynesboro competes in the
begin to enter middle school at a level of Valley. Both require time and resources,
preparedness on par with the state. though the impacts from positive action
40% will differ. As demand for housing in
36% Waynesboro has failed to keep pace against
Virginia 3. Waynesboros middle school
children are not performing in competition in the region, an important
31% reason is that schools in Waynesboro are
Staunton the classroom at a level they
30%
need to become successful in not viewed by the area-wide market as an
Nelson asset, and the reason for this is that right
28% high school.
now, they objectively arent. At it stands
22% A community partnership on behalf of
Augusta elementary students must extent through
today, neither performance nor facilities are
20% the 7th grade so children are able to enter good enough to help Waynesboro compete,
Waynesboro high school predictably able to succeed. so this requires immediate attention.
18% As in the elementary schools, there is a
need for additional personnel to address
special learning challenges many students
10% bring to Kate Collins.
0%
1990 2000 2007 2013
20092011
Education Priority
Projects
There is catch up work to do -
overdue facility renovations and
improving student proficiency.
There are keep up challenges
- maintaining facilities and
being responsive to shifting
demographics. And there
are get ahead opportunities
- curriculum refinement,
teacher compensation, and
reorganization.
Evaluate the merits of revising the current school catchment area designations
William Perry Berkeley Glen

Elementary School
Wenonah Elementary
Westwood School
Elementary School
1. Design and in 2020 2. Repair high school as 3. Save now to adequately 4. Fund Kate Collins FLEX
launch and market a Best- needed. be in a position to pay TEAM
in-Valley for the Best Why Its Important for/finance high school Why Its Important
Teachers Compensation Basic learning is impeded given the current
renovations. Waynesboros elementary schools are
Package. physical condition of Waynesboro High Why Its Important struggling to succeed in the context of so
School. many children with so many challenges
Why Its Important Basic learning is impeded given the current entering the system. In many cases,
Waynesboro teachers are well physical condition of Waynesboro High challenges in the elementary school
compensated, but are better compensated School. eventually become more serious. To remedy
by competing districts. It is critical to offer this, more teachers with greater flexibility
teachers in Waynesboro compensation and a combination of special skills are
that enables Waynesboro to compete for needed in the middle school years.
the best teachers in the state. Catch up
Catch up
Catch up Keep up
Economic Projects
The competitiveness gap between Waynesboro and many Waynesboro can also just as easily be in Harrisonburg or the Economic Challenge
of its neighbors is reflected by two notable demographics Charlottesville. A family that can move to Waynesboro Competing successfully in the Valley for
realities. can find excellent options in Fishersville or Staunton. strong households is essential. Continuing
First, the number of college graduates in Waynesboro Today, demand for places such as Staunton, Crozet, and to diversify the jobs base in Waynesboro
between the ages of 25 and 64 (2,025) is only half of what it Charlottesville is simply stronger among well educated is important. Improving the citys image
would be if the regions college graduates were distributed workers than is demand for Waynesboro. Consequently, by continually reinvesting in the citys
proportionately (4,170). By not retaining and attracting while Waynesboro is succeeding on some levels, it
infrastructure and housing and storefronts
a fair share of households that already live nearby and remains one of the regions softer markets.
has to occur if the city is to be competitive.
have higher than average levels of household income, While part of Waynesboros demographic disadvantage
Waynesboro is at a fiscal disadvantage when it comes to There are some aspects of a citys economy
is a result of superior competition, it also stems from that are within its control, and others
having the means to invest in the quality-of-life amenities the nature of a shifting economy. A large manufacturing
that in turn, will positively influence future demand. that are not, and everything is along a
sector that accounted for 23% of all jobs as recently
Second, Waynesboros industrial legacy and soft market as 2007 shrank to 18% by 2014 closer to the state continuum. But the bottom line is this: the
conditions resulting in a relatively old and inexpensive and national average. The loss of 500 manufacturing single best of many good predictors of the
housing stock have given the city an outsize share jobs over that period was offset by jobs gained in vibrancy and durability of a local economy
of families living in poverty and whose options are other sectors including retail, which surpassed in 2017 is the level of total educational
highly constrained. Currently, the poverty rate for family manufacturings share of the local job market. But the attainment of its citizens. This profoundly
households in Waynesboro (13%) is 55% higher than the rise of retail jobs themselves vulnerable to national impacts the attractiveness of a citys
rate for the region. trends has reinforced the emergence of low-wage jobs workforce, its business climate, and its level
Indeed, the state average across Virginia for households as a significant piece of Waynesboros economy. One- of entrepreneurial activity (research and
with a college degree is 36.9% and rising, the seventh third of Waynesboros employed residents are in low- development, patent volume, technology,
highest in the United States. Stauntons rate is 31.3%, wage jobs compared to just 24% of employed residents in
startup frequency and success). And a city
Fishersvilles 34%, Charlottesvilles is 49.8%, Crozets Augusta County.
can increase its level of overall educational
is 50.8%, and Harrisonburgs is 35.8% By contrast, The paradox of healthy employment levels essentially in two ways: it can get there
Waynesboros is 18.4%. One way to have a fair share (unemployment is now less than 5% in Waynesboro)
by homegrown means by education and
of households with a college degree across the region mixed with low or stagnant wages is a nationwide
is for Waynesboro to find a way for more than 1,500 challenge. But it is not a challenge that will be addressed
retention or by in-migration. Waynesboro
strong families to want to move to and raise families in locally by hoping for the next large employer to come must take steps to make progress in both
Waynesboro. If Harrisonburg, Charlottesville, and Crozet to town. Nor will Waynesboro be fundamentally more areas.
are subtracted from these considerations, Waynesboro competitive so long as less than 20% of the adult
is still 748 households short of a fair share in this regard. population has a college degree, and less than 25% of
What all of this means is that Waynesboro is having to Waynesboro Highs graduating seniors are measurably
grapple with greater levels of need - housing, educational, college ready.
public safety - than the rest of the region, and do so with The time when a community could be economically
fewer resources. self sufficient without having an exceptionally well
Waynesboro is in a cut-throat competition for businesses educated labor force has long passed. Progress for
and households especially for those that have options Waynesboro will come by acknowledging Waynesboros
in todays economy and are able to take their purchasing connectedness to the global economy, and the markets
power, investment capacity, and social capital elsewhere. need to attract entrepreneurs and skilled workers.
For those who choose small town life in the Shenandoah Progress will also be enhanced by catching up on years
Valley and the Piedmont region of Virginia, Waynesboro of deferred reinvestment, in both the citys physical
is one of many good options. A company that can be in assets and the citys workforce.
Crozet Tunnel
Jones Hollow Trail

Economic
Priority Projects to the Crozet Tunnel
There is catch up work to
East Entryway
do - investing in education at Connecting the
unprecedented levels. There are dots from downtown
keep up challenges - getting the to Sunset Park
Industrial Park into position to
succceed. And there are get
Proposed to our entrance to the
ahead opportunities - investing
View South on Sunset Park Blue Ridge Parkway
in Downtown physically and Arch Avenue and Skyline Drive
in business development and (New Museum)
expansion, and by growing
Waynesboros relationship to the
mountains and the South River and
the natural environment in general.
v er
Ri
Current th
u
So
Constitution Park/
Greenway Trail/
Downtown
1. Invest robustly in school 2. Consistent with VDOT 3. Increase the citys share
readiness and other road installation plans, of the projected cost of
educational improvements. schedule continued developing the National
Why Its Important maintenance in the History Museum in order
Industrial Park. to expedite design and
Waynesboro teachers are well
compensated but are better compensated construction, and hasten 4. Develop plans to extend the citys trail system from
Why Its Important Jones Hollow to the Crozet Tunnel.
by competing districts. It is critical to offer
Protecting previous investments in the
its opening.
teachers in Waynesboro compensation Why Its Important
that enables Waynesboro to compete for Industrial Park and growing its capacity to Why Its Important
the best teachers in the state. succeed in attracting businesses and thus The uniqueness of the Crozet Tunnel - culturally, geographically, physically, historically
jobs is important. A modest investment Interpretive strategies by museums and
mean it is an economic development opportunity waiting to be tapped. When complete,
to bring the Industrial Park to a level parks to advance cultural learning are
residents and visitors will have significantly extended the citys connectivity to the Blue
necessary to compete in the Valley brings a key part of linking Waynesboro to its
Ridge Mountains and to the economic opportunities that will accompany exploration of
the existing cost/future potential benefit geography, and will have a clear role in
Catch up revitalizing Downtown, strengthening the
the area from both Nelson and Augusta counties.
ratio into a range Waynesboro can afford.
citys relationship with the South River, and
using the built environment to affirm these
connections.
Get Ahead
Keep up
Get Ahead
Proposed
View from
5. Significantly increase Kroger (north to
the financial capacity Main Street)
of the Waynesboro
Economic Development
Authority to invest equity
and make loans towards
business development and
expansion Downtown.
Why Its Important Current
Current vacancy rates along Wayne

Avenue and Main Street are too high
to communicate success and too low
for either corridor to obtain the leasing
momentum needed for Downtown to be
vibrant, much less sustainably so. Key
buildings need to become flood proof
if not redeveloped outright. A parking
garage will eventually be needed. Existing
businesses that are succeeding need help
expanding, and entrepreneurs in the Valley
on the sideline need encouragement to
locate Downtown. Current capacity by the
WED to provide sufficient incentives for
6. Address revenue vulnerabilities
these ambitions is far too low and must be posted by reliance on the Town
increased dramatically. Center and similar suburban-style
commercial development.
Why Its Important
Get Ahead
Waynesboro is vulnerable to a fast changing retail landscape
and property taxes are not indexed in a rational way to the
the actual costs of running the city, yet should be.
Get Ahead
Infrastructure Projects
Entering Waynesboro should be as beautiful and the Infrastructure Challenge
welcoming as entering Shenandoah National Park at Waynesboro communicates function. It
Rockfish Gap. Roads and bridges in Waynesboro should communicates a basic-ness. Its extensively
evoke the Blue Ridge Parkway, and let everyone - residents
vacant Downtown, worn building envelops
and visitors alike - feel special in Waynesboro.
on key entryways, notably missing tree
This level of finish needs to go hand in hand with the canopy, lack of easily grasped center and
degree to which city roads and bridges and sidewalks are
edges, and persistently vacant buildings all
up to date, fully on or ahead of maintenance schedules.
notify visitors that the vibrancy they seek
Waynesboros roads and bridges are in very good shape
overall, though additional resources to stay on top of might just as well be found elsewhere. Now
costs on an annual basis are in order. The essence of thats not the only truth about Waynesboro,
the challenge for the citys infrastructure is less pressing but too many signals are sent that say
than for the citys schools and housing, and different. were not worth it and the many roads
Here, maintenance is less the issue than finding ways to and bridges that link the Valley to the
significantly increase the capacity of the city to redevelop Mountains exist as significant opportunities
its infrastructure to a landmark level of aesthetic quality to communicate otherwise. Stonework,
befitting a gateway to the Blue Ridge Mountains, and build street tree installation, signage, and artistic
a community consensus that aesthetic quality is important
notes all can have a profound and positive
enough to pay for.
impact on the Citys image. Waynesboros
infrastructure is probably the citys best
opportunity quickly and durably claim
a place on the podium. Doing so will
be neither cheap nor easy; but what the
Pavement Conditions Waynesboro community must do is convey
Excellent (>85) that it is worthy. The most important rule
Good (70-85) of investing is that capital follows capital.
Fair (40-70) Making investments in itself will yield
considerable rewards. Half measures will
Poor (<40)
avail Waynesboro nothing.
Infrastructure
Priority Projects
bringing road and bridge schedules
fully up to date. There are keep
up challenges - setting aside
enough resources annually to
maintain roads and bridges at the
optimum level. And there are get
ahead opportunities - investing
in aesthetic beauty to help make
Waynesboro as charming its
setting and the market demands.
CITYWIDE RECOMMENDATIONS
1. Develop a plan that by - INFRASTRUCTURE -

2028 will result in 80%
of the roads and 100% of Existing Sidewalks
the citys bridges being in Existing Trail
adequate condition using
standard VDOT measures.
Sidewalk Missing
Why Its Important (Infill and Replacement)
Like taking care of a homes roof before
it rains, getting and staying ahead of the Proposed Long-Term
cost curve on expensive public works Trail Plan
obligations is one the best investments
Waynesboro can make.
Existing Parks
Catch up Schools
Crozet Tunnel
Proposed Minor Trail

(connect Sunset Park)
2. Adopt and implement
the draft 2016 Sidewalk
Plan
Why Its Important
The Citys sidewalks offer users of all
ages the opportunity to get around town
without the dependency of the automobile.
The gaps in sidewalk connectivity
create safety concerns for the end user
and these gaps, should be completed
within the next 10 years.
Key Entryways and Corridors
After The following entryway and corridor Broad Street
improvement projects are vital to ensure
the kind of visual statement Waynesboro
must convey to both residents and
visitors alike:
Broad Street is the primary
transportation route to move east/west
through the downtown area, and yet it
is challenged by the lack of any defining
or memorable features. To the average
passerby, it is neither an unimpeded
bypass for Main Street, nor a quaint
local street typical of its proximity to downtown. This is not to say that
the businesses along Broad Street are not viable or downright unique in
some instances. It is rather an observation of the right-of-way itself: It
is far too wide given its central city location. Street tree planting and
the implementation of center boulevard islands (allowing for necessary
turning movements) would greatly improve the aesthetic characteristic
of Broad Street.
Rosser Avenue the section of Rosser Avenue that extends from I-64
northeast to Pratts Wood Road contains numerous grassed medians
that could be planted with trees. This would create a sense of arrival for Trees: the only
visitors to Waynesboro. Additional trees planted along either side of
Rosser Avenue would also provide an improved streetscape and, in time, infrastructure that
give the appearance of a narrowed right-of-way. increases in value
3. Begin installing street trees over its lifetime.
at a rate necessary to achieve Before The Society of
a 30% canopy in Waynesboros Municipal Arborists
developed areas by 2028 and
begin to reclaim hardscape
areas for parkland if possible or
stormwater basins at minimum.
Why Its Important
Rosser Ave
Trees and greenspace are essential to the quality
of life for the residents of Waynesboro. The
City should aim for ambitious goal of 30% urban
coverage within the next 10 years, and then set
the bar higher - 40% by 2040. The same is true
for greenspace; seize any opportunity to reclaim
impervious surfaces for both aesthetic and
functional purposes.
East Main Street (near

Basic City Beer Company)
East Main
Street (at Afton
Ice Cream Shop
4. Redevelop East Main

between Jones Hollow and
Arch and Broad between
Arch, and Dupont to an A
standard, and sufficient
to achieve landmark
aesthetic quality.
Why Its Important
East Main Street is a major entryway
into Waynesboro and should become
a billboard for the citys renaissance,
highlighting Waynesboros place in the
Shenandoah Valley and reminding visitors
of its special and unique qualities.
Shenandoah National Park - A National Treasure in Our Backyard
Quality of Life Projects
When one regularly remarks about how happy, safe, and satisfied they The Significance of Addressing
feel in their personal and professional lives, they most likely have a the Quality of Life Challenges in
pretty high quality of life. The place they live in often has a lot to do with Waynesboro
that, owing to factors like job opportunities, a good housing market,
access to quality public schools, and proximity to outdoor activities. What cannot happen is a handful of half
measures, whether for roads and bridges or
sidewalks or street trees, or public schools,
or other public investments. Public monies
are sacred, and public space deserves
investments in quality sufficient to inspire
the market to invest its private resources.
The recent history of Waynesboro is to
choose low taxes over a high level of finish,
and Waynesboro cannot compete in 2017
with this approach. In all investments -
from the completion of Constitution and
Sunset Parks to extending the citys trail
system, to ensuring enough code and police
The Challenge enforcement capacity, Waynesboro cannot
Besides education, in no area does Waynesboros future eventually enabling any resident to walk out of their front afford to go into the future cheaply; it must
depend quite so much as the degree to which it makes a door and within a 15 minute walk be able to be on a
tilt in favor of Stanley Abbotts design
concerted effort to invest in itself. circumferential city trail that takes them Downtown and
to the South River and to the citys parks, demand for ambitions and achievements for the Blue
Today, aesthetic quality matters in the relentless Ridge Parkway.
housing in Waynesboro will grow. As housing demand
competition between communities vying for tourist and
grows, property values will grow. As values grow, so will
other visitor dollars, for home purchases by middle income
the tax base.
families able to live elsewhere, and by businesses that have
a keen eye on the residential opportunities their employees As Waynesboros Downtown becomes increasingly more
might have were they to relocate company operations. vibrant, civic life Downtown will grow. As economic
In this respect, the best returns to the city in terms of investments in the Natural History Museum and in
economic development will be from investments in projects a tree canopy downtown and in urban design more
that generate increased quality of life for residents, past generally, Downtown Waynesboros full potential can
and future. Trails and parks and a vibrant Downtown begin to be realized. This is the approach that has been
are the most important of these, along with beautiful so successful in Lynchburg (Sasaki Associates; ERA;
infrastructure. Craddock-Terry Hotel) and Roanoke (Downtown Roanoke
Inc)and will work in Waynesboro.
Such investments communicate confidence and pride, the
lifeblood of any community with stable and rising property
values. Middle income families want to see their childrens
schools are as beautiful as the high test scores they require
as a condition for planting roots in a community. After that,
strong households want homes likely to appreciate in value,
a probability that increases as investments in quality of life
grow.
As Waynesboros trail system becomes more extensive,
Quality of Life
Priority Projects
There is catch up work to do - refining

Constitution Park to optimize it as the
link between Downtown and the South
River, and also extending the citys trail
system North to Ridgeview Park and
South the Basic Park. There are keep
up challenges - improving the design
of Downtown, especially Main Street,
Lumos Plaza, and Wayne Avenue. And
there are get ahead opportunities -
developing Sunset Park and planning
for, and eventually implementing a
circumferential trail system.
1. Redevelop/refine
Constitution Park to
address flooding, and
connect with the new
Natural History Museum in
such a way that it creates
an urban street wall
along Arch, yet connects
Downtown to the South
River.
Why Its Important
Constitution Park is the citys connection
to the beautiful South River. Unfortunately,
due to the lack of street trees along the
sidewalks that connect the two, it feels
disjointed from Downtown. Even more 2. Address enclosure ratio challenges on
consequential is the block of buildings
along the east side of Arch Avenue
Main Street.
(between Main and Short Street) that Why Its Important
create a visual barrier. Over time, the City Downtown, and Main Street in particular, is the heart and soul of
has an opportunity to begin acquisition most cities and sends powerful messages about a community
and demolition of this block in an effort and its core values. Main Street should be a vibrant civic and
to reclaim land for green space - an commercial gathering place, active throughout the week, during the
opportunity heightened by the fact that this days and evenings, where residents and visitors shop, visit, attend
entire block lies in the heart of the flood festivals, and in general, enjoy life in Waynesboro. Care should be
zone, and is negatively impacted during taken to physically develop Downtown to support these activities.
regular flood events.
Catch up Catch up
PHASE I COMPONENTS:
Front Entrance Area
A - Extend Concrete Sidewalk and Curb
B - Park Entrance Sign and Plantings
C - Plantings in Islands
D - Entrance Pavement Improvement
E - Waynding Sign
A Gate Area and Access Road

F - Repurposed Gatehouse, Sign and Gates
E G - Remove Excess Gravel/Asphalt
B H - Landscape/Trees
C C
D I - Place Slurry Mix on Road
J - Road Prole Modication and Pavement
F
E Overlook Area
E K - Modify and Overlay Main Parking Lot
L - Main Overlook
M - Plaza
N - Secondary Overlook
O - Bike and Pedestrian Trailheads
D P - Multi-Use Path
F
G
3. Design and develop

Sunset Park. I
J
Why Its Important
Sunset Park becomes a combination
treasure for residents, and a brilliant link in
a chain to world class outdoor amenities
in the Blue Ridge Mountains. It will inspire
confidence throughout the community, and L
send important signals to the Valley that K
Waynesboro means business.
Keep up M O
SCALE: 1 = 100
SCALE: 1 = 50
0 100 200
0 50 100
Credit: LPDA Land Planning and Design (Sterling, VA)

SUNSET PARK SHEET NAME
July 2017
WAYNESBORO, VA
North Greenway Trail
4. Extend trail system to South River
Ridgeview Park and Basic Greenway
Trail
Park.
Why Its Important West
Every investment in trails will be a force Greenway
multiplier for property values Trail
Keep up Steele Run

Greenway Trail
High East
Pratts Run School Greenway
Greenway Trail
Trail
CITYWIDE RECOMMENDATIONS
What Does Keeping Up Mean for the - CONNECTIVITY -
Greenway Trails? Coyner Springs
Greenway Trail
Regionally, statewide, and nationally, trails are the most Pratts Run trail connection to Coyner Springs trail
Existing Trail (1 mile)
popular, and most-used, recreation amenity in the cities connection an approximately half mile gap that CITYWIDE RECOMMENDATIONS
that have installed them. Trails have the highest benefit- could be closed by using the north side shoulder of
to-cost ratio of any recreation amenity. Trails along or Rosser Avenue as a defined, and painted, greenway
- CONNECTIVITY -
Jones Hollow Proposed Trail
around water features (e.g. the South River) rank even for dual direction pedestrian/bike traffic. Greenway Trail(first phases - dark to light)
higher.
South River Proposed Minor Trail
The 2001 Conceptual Greenway Map (prepared by the Greenway Trail Existing Trail (1 mile)
Greenway Trail Phasing Recommendations (connect Sunset Park)
Whitebell Group) recommends a significant expansion
to the Citys trail system (approximately 22 miles of trail A phased approach provides a manageable
implementation approach. There are elements of the Longterm Trail Plan
recommended). The proposed routes are well thought Proposed Trail
out and, in particular, do a nice job of connecting the conceptual plan that should be completed in the first (first phases - dark to light) czb, LLC
Citys existing parks. To date, only one mile of the phases of implementation, as outlined below: Crozet
proposed Greenway Trails system has been completed First, the existing one-mile stretch of Greenway Proposed Minor Trail Tunnel
the area from Constitution Park south to Arch Avenue (connect Sunset Park)
Trail, the South River Trail, should be extended
(at the intersection with Market Avenue). The following approximately one mile to the south to Ridgeview
Longterm Trail Plan Existing Sidewalk
map outlines the recommended phasing for not only Park. CITYWIDE RECOMMENDATIONS (connecting to trails)
the Greenway Trails system, but also recommended
complete streets (adequate sidewalks, bike lanes or
Second, this same stretch of trail should be The Basic Framework
- CONNECTIVITY - for Citywide Connectivity (The Spine)
extended to the north to Basic Park (crossing over Sidewalk Gaps
sharrows, street trees, etc.) that will connect to the (missing or needs repair)
the 2nd Street bridge). This extension, along with
local schools. the prior recommended extension, will not only
This plan was originally prepared by the Whitesell expand the use of the trail system but also capitalize Existing Trail (1 mile) Existing Sidewalk
Group and has been updated to include the following upon the aesthetic amenities of the South River. (connecting to trails) Existing Parks
connections: Third, the Jones Hollow Trail extending from the Schools
An extension of the Steele Run Greenway to connect to Proposed Trail Sidewalk Gaps
South River Trail at its western terminus should
the northeastern edge of Sunset Park. This one third (first phases - dark to light) (missing or needs repair)
be fully constructed to the proposed eastern
mile stretch begins at Steel Run Creek and Malcom terminus at the entrance to the Crozet Tunnel an Proposed Minor Trail
Avenue, incorporates sections of the existing Malcom approximately 2 mile endeavor. (connect Sunset Park) Existing Parks
Avenue trail, and connects into the proposed trails
within Sunset Park. Longterm Trail Plan Schools
5. Design and plan for a
citywide circumferential
trail system enabling every
resident to be a short walk
from a trail head.
Why Its Important
Every investment in trails will be a force
multiplier for property values
High
School
Keep up
Completed Sidewalk Plan

Sidewalk Missing
(Infill and Replacement)
Completed Trail Plan
Proposed Long-Term
Trail Plan
Parks
Schools
Crozet Tunnel
Neighborhood Projects
The Challenge
In the last several decades, standards of care for homes The objective is for Waynesboro to stimulate the conditions
in Waynesboro have fallen. Many of the citys residential There are four objectives to work towards.
whereupon it makes sense to the average property owner
neighborhoods have not been maintained to the standard to invest their time, energy, and money into their residential
needed in Waynesboro for the city to be able to compete in properties, whether as home owners or absentee rental 1 2 3 4
the region. It is important that there be a firm floor in the property owners. In both cases, homes will have to be
local Waynesboro housing market beneath which residents First is to simulate Second is to encourage Third is to strengthen the Fourth is to grow
maintained to an ever higher standards for Waynesboro
will not let conditions - and thus values - fall. It is also homeowner positive neighbor-to- quality of rental housing, resident leadership
to compete for households who can, and in fact are
important that demand by Waynesboros strong households reinvestment. This neighbor interactions. especially in Transitional capacity, especially in the
now choosing Staunton or Crozet or Fishersville or even
to stay and reinvest in Waynesboro be stimulated, and that should occur in the This should occur and Opportunity Legacy and Transitional
Harrisonburg instead of Waynesboro. Across the board,
demand be sustained. It is vital that confidence within the citys middle quality throughout the city, but Neighborhoods. Neighborhoods.
Waynesboros residential neighborhoods must become
region in the future of residential life in the city grow so that neighborhoods, those creative use of community
more desirable.
regional demand seeks and finds great opportunities to identified in this plan as policing and code
plant roots and raise a family in Waynesboro. The work of revitalization is the coordination of efforts being both at risk and compliance assistance
to make these objectives so: to build a firm floor in imminently marketable. in the citys Transitional
This will take action on numerous concurrent fronts. A Waynesboros neighborhood housing market, to stimulate These are the citys Neighborhoods will have
diverse supply of good quality housing available at a range and sustain demand to live in Waynesboro by households Legacy Neighborhoods. positive impacts.
of prices is necessary for Waynesboro to be home to a who can choose to live someplace else, and to grow and
cross section of the Valleys families. Neighborhoods sustain confidence in the idea of living in Waynesboro and
that are attractive and walkable and safe is a necessity. channel that confidence into actual reinvestment. These aims, when achieved, have been shown to yield profoundly positive returns on a market wide basis. To obtain
A community of economically diverse households is progress, a creative combination of interventions and assistance will be required, and applied in a targeted manner.
necessary for Waynesboro to become competitive. To spur the incremental confidence needed for the first
Waynesboro should and can be home to plumbers and investments to occur, which in turn will prompt additional
teachers, police officers and attorneys, cashiers and investments, a one-size-fits-all strategy will not work.
accountants, students and professors, machinists and Some Waynesboro neighborhoods need only polish the
engineers; in short, to anyone and everyone with a excellent housing stocks that are already in excellent The Significance of Addressing Neighborhood Challenges
contribution to make. condition. Some blocks need more than polish; they in Waynesboro
need more active resident leadership that can promote
The citys neighborhoods must be polished to a high the development, restoration, and preservation of vibrant Waynesboros future vitality hangs in the balance, and nowhere more so than
standard. The most modest homes must communicate community life in Waynesboro. Other parts of the in the citys neighborhoods and homes. Establishing standards and helping
pride. Not every home has to appeal to everyone, but community are now developing largely through market property owners reinvest is crucial to the citys capacity to retain and attract
everyone who visits Waynesboro must be able to quickly forces alone, and in those areas, no more than very minor strong households now and in the future.
conclude that Waynesboro has a lot of pride. Preconditions tweaks to development trends may be needed. In still
for this have to exist, from a well funded and sharply others, principally those that have been long neglected and
aimed code enforcement effort, to fully funded community too rarely stewarded at a high level, opportunities must be
policing, and ample resources for home improvement and seized to set new standards. And in a few cases, there is
resident leadership development. no firmness in the markets floor. Unacceptable conditions
persist and require attention, and unacceptable owner
behaviors must be dealt with.
Waynesboro Surveyed Parcels Neighborhood work must follow a common thematic aim:
Waynesboro
Field Survey ScoreField Survey Score to grow and sustain demand.
This will be done using a variety of tools applied to specific
1 submarket conditions when and as resources become
2 available. Waynesboro
3 Using a survey of property conditions, an analysis of the Neighborhood
demographic composition of households, an examination
4
of vacancy and abandonment rates, tenure, and property Typology
5 values (from rents and sales), this plan organized
Waynesboros 16 neighborhoods into a taxonomy of four
basic types. While granular attention will be given at the DEVELOPING
block level, such an approach allows for four broadly-
defined strategies to be deployed. Waynesboro North
LEGACY
1. Opportunity neighborhoods, where investment in
sidewalks, tree canopy, streetlights, and road quality
TRANSITIONAL Delphine North
can occur along with property owner improvements, Charleston, Skyline
and Hopeman-Pelham
strict code enforcement, and higher standards for rental Upper Basic City
OPPORTUNITY
property as necessary precursors for infill development.
2. Transitional neighborhoods, where resident leadership Wayne Hills
and Hillendale
can be developed and home exteriors and yard
Jefferson Park
czbLLC
maintenance can be improved, and overall standards of Brandon East-
Port
care can be raised. Republic
Westwood Hills Road Basic City West
3. Legacy neighborhoods, where Waynesboros crown Lew Dewitt
jewels will benefit from extra polishing, and where the Downtown
Waynesboro Neighborhoods Waynesboro Surveyed
citysParcels
capacity to compete has a durable foundation. Basic City East
Waynesboro Average Survey Score
Average Survey Score Field Survey Score4. Developing neighborhoods, where a mix of uses to
coincide with current and future new development Tree Streets
2.32 - 2.49 1 opportunities may be encouraged. Brandon West
2.50 - 2.74 2
2.75 - 2.99 3 In some cases, individual developments within one of the Brandon South-Ridgeview
four types may require specific attention that differs
3.00 - 3.24 4
somewhat from the recommended approach across the
3.25 - 3.26 5 rest of the neighborhood. For example, there are quite a
Waynesboro North
number of new housing developments along Hopeman Delphine South
Parkway and along Ivy; these are selling for a high price. Coyner Spring
Charleston, Skyline Delphine North
At the same time, a number of low cost rental projects are

and Hopeman-Pelham
Upper Basic City
Wayne Hills
and Hillendale in the same part of the city. Attention to the specifically
Brandon East-
Westwood Hills
Jefferson Park
Port
Republic
differentiated conditions of various subdivisions may be
needed.
Road Basic City West
Lew Dewitt
Downtown
It is also the case that much of Waynesboro requires

Basic City East
Brandon West
Tree Streets
attention for all of the fixes that are needed to be
undertaken at once. Great care is needed in deploying czbLLC
scarce resources wisely. Legacy neighborhoods are
Brandon South-Ridgeview
highly marketable with a relatively modest amount of

Coyner Spring-Warren Moses-Delphine South
public reinvestment. Developing neighborhoods only
require small adjustments here and there. By contrast, the
prevailing conditions across Opportunity and Transitional
neighborhoods are such that great expense - more than is
czbLLC readily affordable - would be needed to treat every block at
once.
In each type of neighborhood, a somewhat different but always
demand-enhancing effort will be needed, as described below.
PROPERTY CONDITIONS
TYPE NEIGHBORHOOD STRATEGIC AIMS TOTAL 1 2 3 4 5 AVERAGE
Charleston-Skyline/
317 22 167 118 10 0 2.37
Hopeman/Pelham
Brandon South - Ridgeview Ensure density and mix of uses 707 35 404 252 16 0 2.35
sufficient to grow Waynesboros
DEVELOPING 2.51
Brandon West capacity to support local business 386 13 197 172 3 1 2.44
and public services
Coyner Spring 146 1 23 91 30 1 3.05
Lew Dewitt 920 81 444 388 4 3 2.35
Brandon East-Westwood
715 12 223 460 20 0 2.68
Hills Polish Waynesboros crown jewels,
stimulating regional appetite for
LEGACY 2.54
Tree Streets established traditional neighborhood 1,426 55 487 810 74 0 2.63
living in Waynesboro
Waynesboro North 340 25 191 114 9 1 2.32
Coyner Spring-Warren
748 1 68 502 156 21 3.17 3.17
Moses-Delphine South
Delphine North 720 0 69 519 126 6 3.10
Basic City East Develop resident leadership, 747 1 84 520 133 9 3.26
enhance standards of care, assist
TRANSITIONAL Jefferson Park owners with exterior improvements, 1,233 8 214 912 96 3 2.90 3.06
invest in tree canopy, sidewalks,
road improvements
Port Republic Road 459 2 66 312 75 4 3.03
Upper Basic City 680 2 88 507 76 7 3.00
Wayne Hills and Hillandale 358 1 41 295 21 0 2.94

Upgrade standards for rental
Delphine South 568 0 44 394 113 17 3.18
properties, building exteriors, while
OPPORTUNITY stabilizing vacant properties and 3.14
Downtown creating market conditions suitable 597 6 68 340 180 3 3.18
for eventual infill development.
Basic City West
507 0 16 358 119 14 3.26
1,462 10,860 264 2,827 6,579 1,118 72

2.81
320 21.89% 2.4% 26.0% 60.8% 10.3% 0.7%
Developing Neighborhoods Transitional Neighborhoods
These are among the strongest residential submarkets in Waynesboro, with Waynesboros neighborhoods developed largely between 1930 and 1970 are in
average sales prices the last decade ranging from $100,000 to $150,000 and transition today. Many streets lack sidewalks and a mature tree canopy. The
average overall value at $214,600. In these primarily west end and north side architecture ranges from pre war bungalows to post war brick Cape Cods and
neighborhoods, median rent is $917 (affordable to a household with annual wood-frame colonials and brick ranches. The admix of styles, lot configurations,
income of $33,000), and median household income is $62,294. Most of the and home sizes creates an eclectic residential fabric. Had the homes been
homes in these neighborhoods were built after 1960 and built on large lots. maintained to a high standard the last three decades, they would be more
Many were built more recently. In addition, there are extensive new greenfield competitively priced. In too many cases, though, attention to maintenance has
opportunities between existing subdivisions that require rethinking in terms of suffered and, consequently, homes in Waynesboros transitional neighborhoods
future development potential. are hard to market in a region with plenty of good alternatives for the same or
The city benefits from high quality construction that maintains value and is even better prices.
harmed by low quality. Median value across these neighborhoods is $123,540; median rent is $845; and
The outcome to work towards across Developing neighborhoods is the median income is $45,634. Despite significant deferred maintenance in many
maintenance of current high levels of pride, encouragement of continual cases, pride is nonetheless evident throughout many blocks, as illustrated by
reinvestment in capital upgrades by owners, slow but steady introduction of the fact that 72% of the homes are in good condition. Critically though, of the
increased densities between subdivisions where possible, and the long term 3,839 homes in these transitional areas, only 534, or 14%, are being maintained
positioning of these neighborhoods to be one of the marque places to buy a at a highly marketable condition sufficient to command top dollar in the regional
newer home in the Valley. housing market. Six of seven properties in transitional neighborhoods in
Waynesboro are not specially marketable today in their current condition.
A vulnerability - especially in Basic City East and Delphine North - is the 506
properties that are troubled but not yet distressed. In Waynesboros transitional
Legacy Neighborhoods neighborhoods, strict code enforcement is strongly encouraged, along with
These are the neighborhoods in Waynesboro most likely to have enduring the provision of financial and technical assistance to those property owners
market value, provided incomplete stretches of sidewalks are completed and needing compliance assistance. For example, unaddressed sub-standard
brought to a high standard, the mature tree canopy is maintained, the historic property conditions and prevailing and long-endured high levels of disorder
architecture is polished, and the homes themselves are reinvested in to a along Port Republic Road makes it hard for owners two blocks away on Florence
competitive standard in the coming years. to justify reinvesting.
Here is it recommended that residents are encouraged to work together on The outcome to work towards in Waynesboros transitional neighborhoods is
shared projects that improve the exteriors of homes, beautify shared common that these homes are maintained to a slightly higher standard, infrastructure
areas on streets such as intersections, and the general level of reinvestment be is upgraded, and owners are encouraged to raise the level of care of exteriors,
raised. Polishing the citys developing and legacy neighborhoods is an essential and when possible to make capital improvements. On many blocks the
down payment on Waynesboros long term capacity to compete for professional quality of absentee ownership has declined, and this requires attention.
households in the region presently more inclined to buy in Crozet or Staunton or These neighborhoods contain an outstanding supply of excellent first time
Fishersville. buyer homes and smaller homes well-suited to empty nesters who want to be
near downtown but also retain a sense of living in the country for a modest
At $37,123, the median income in the legacy neighborhoods, however, is too low
price. For these neighborhoods to be considered as such, disorder will have
to assume capital improvements will occur without assistance. Yet as these are
to be addressed, strong current owners will need encouragement to make
the citys most durably marketable residential areas with long term desirability,
investments, and maintenance codes will have to be strongly enforced.
and with an average overall home value of $227,550, using the positive equity in
homes here to collateralize reinvestment is strongly encouraged.
The outcome to work towards in Wayneboros legacy neighborhoods is to ensure
the remarkable qualities of many of the homes and blocks are polished, the
high level of care by residents continues and grows, and that these become
the signature neighborhoods in Waynesboro for families seeking traditional
settings.
Where to invest?
Opportunity Neighborhoods
Every city in America that developed between 1830 and 1930 has close-in
residential blocks near to rail lines, rivers, downtowns, older industrial sites, Cycle of Decline Cycle of Growth
mills, and which in general, were close to yesterdays places of employment and
commerce in an era where walking distance was an especially defining element
of growth and settlement. This is true in Waynesboros inner core areas of Less Even weaker
purchasing households
More strong
households
High
Values
power
Downtown and many of the blocks in close walking distance to Main Street. Attracts Attracts
weaker Worse stronger Increased
Regrettably, property standards here are quite comparatively low, with less than businesses performing
schools
businesses tax revenue
10% of the neighborhoods 1,462 properties being in good enough condition to Decreased
Worse
More Higher
sales purchasing
sell for a good price - and thus able to compete - in the regional housing market.
Levels of
conditions power Reinvestment
The real risk in these neighborhoods is not distress and abandonment typical Attracts Better
Decreased Attracts
of such older core areas in many communities across America, so much as tax
revenue Worse
weaker
households
performing
schools Maintain/
households
the fact that 320 homes - fully 20 percent - are in poor quality and very much amenities/
services
improve
homes
trending in the wrong direction. Such properties are magnets for crime. They
command very low prices on the market. Absentee owners too frequently find
value in ownership only through net cash flow deriving from reduced care, and
on some occasions, tax delinquency. Disorder follows neglect. And crime
follows disorder. High % of
troubled Owner occupants
Such problematic realities as these are well-reflected in an average sale price of households MARKET Strong and
just $51,691 since the recession, an acquisition expense that can be amortized
Owners engaged
for less than $300 a month. At this amount, it is possible to borrow enough to absentee
acquire and then properly manage a typical single family detached house in this
neighborhood and still charge no more than $600 a month. That conditions
remain below acceptable standards means that many buyers are dumpster
diving for slum rental properties they can cash flow and eventually walk away Low self Strong self-
from, tax bills they can neglect, poorly serving struggling households today, and management CAPACITY management
leaving the city holding the bag tomorrow. Without an intervention in the form of capacity capacity
strict rental property registration requirements, inspections, and unbending code
enforcement, many of these properties only future use will be as slum dwellings
acquired by toxic investors whose positive cash flow will only come from taking Deterred ________/ahead of
advantage of vulnerable tenants. maintenance cost curve
The low (31%) home ownership rate is this areas challenge and opportunity. Disorder CONDITION Tidy, orderly
First, Opportunity neighborhoods are residential areas where it makes more
Modest capital Capital upgrades
economic sense to be be an absentee landlord than an an owner occupant. upgrades ongoing
Second, Waynesboros Opportunity neighborhoods are where the regulatory
environment in Waynebsoro is such that low standards of care are in fact the
norm because they have been long tolerated. Herein is the opportunity. In
Wayne Hills, converting just 21 substandard but still recoverable homes to Transitionary Positive and
IMAGE
average condition is both an achievable objective and a meaningful one. In and divested confident
Basic City West there are 14 truly distressed residential properties, a very
manageable number to address positively. The outcome to work towards
here, through a range of interventions that address absentee ownership quality
and occasional distress, is that these areas become high quality entry level
neighborhoods offering good quality buyer and renter opportunities for young
households.
Neighborhoods
Priority Projects
addressing distressed properties
that impose a drag on neighboring
values, and ensuring blight does
not widen. There are keep up
challenges - helping existing
owners improve their homes
and rental properties. And there
are get ahead opportunities -
eventually investing in leadership
development and ensuring
infrastructure and other public
investments are tied to housing and
neighborhood improvement work.
1. Address blighting 2. Provide matching 3. Provide matching grants 4. Implement a citywide

properties by condemning grants to strong home to good rental property rental property registration
the most distressed owners willing to make owners willing to make and inspection program.
homes. improvements to their improvements to their Why Its Important
Why Its Important properties. properties. Rental property is an essential part of a
Removing the negative drag on adjoining Why Its Important Why Its Important healthy housing market, except when it is
values and providing neighbors with a poorly managed. A citywide registration
Many owners want to upgrade their homes Many rental property owners want to and inspection requirement will help divide
basis for confidently making investments but for a variety of reasons are on the upgrade their homes but for a variety of
in their properties is key. good from problematic owners and begin
sidelines, withholding investments they reasons are on the sidelines, withholding to tighten the rental market.
can make. Incentives can help stimulate investments they can make. Incentives
demand can help stimulate demand
Catch up Catch up Catch up
PART 3
In Part 2 of this plan, the Adopt a Comprehensive Plan Consistency Policy immediately following adoption of
measurable goals and the priority
projects that must be undertaken Implementation 1 Comprehensive
Plan Consistency
the Comprehensive Plan. This binds Council to the plan when making any financial
or regulatory decision from that point forward.
to make progress on the Big Policy
Things have been identified and 1
described. Undertaking the Comprehensive Plan
projects listed in Part 2 will help Consistency Policy
Waynesboro Catch Up, Keep Up, To date, Waynesboros current annual city budget (approximately $54M) has
and Get Ahead. Although the list 2 2 Increase the been focused primarily on the work of trying to Keep Up (KU), with only a little
of actions has been reduced to Resources leftover for modest investments aimed at Catching Up (CU) or Getting Ahead
the truly most important things,
Increase the Resources (GA). Although there may be room for some reallocation of existing resources
to spend on Catching Up or Getting Ahead, the planning process made clear that
the list is still daunting. The the citys budget is already too slim to truly Keep Up, and any diminution of trying
planning process that led to the to Keep Up will only put the city further behind, and only increase Waynesboros
3
creation and adoption of this future Catch Up challenges. The planning process revealed that the citys annual
document made clear that a plan Prioritizing within Categories budget needs to be increased significantly to enable sufficient levels of the right
kind of investments needed to position Waynesboro to catch and keep up and
is only as good as it can actually incrementally try to get ahead. There are several ways city resources can be
be implemented. Therefore expanded for the purpose of trying to catch up and also get ahead.
how the work is started, and 4
First is to raise grants from outside sources.
how progress is measured is Prioritizing between Second is to reallocate expenditures by deferring expenses where possible.
important. This third section Categories Third is to more fully leverage Waynesboros existing assets.
of the plan describes the hard Fourth is through General Obligation Bonds.
5 Fifth is through taxes. Some combination of measures will likely be
work, and a process for making necessary to raise the revenue to a sufficient level to tackle the challenges
decisions as circumstances Estimate the True Cost of the Waynesboro faces.
change, that will be helpful Composite Priority Actions
turning the plan into reality. It is Grants from Outside Sources. In the past, Waynesboro has significantly relied
comprised of eight (8) steps. 6 on grants to supplement revenues. In fact, many capital improvements have
Allocate the Available Budget been dependent on grants, and those for which grants were not available have
been pursued less aggressively, or not at all. While grants can often seem to be
to the Composite Priorities free money, they also contain drawbacks. Federal and State grant sources are
diminishing dramatically and across the board. They can no longer be relied on.
7 Grants typically come with their own objectives, which may or may not align with
a recipient communitys priorities; what is a priority in Washington or Richmond
Manage the Implementation may not be a priority in Waynesboro, or the way Washington or Richmond might
require an action to be undertaken in Waynesboro might not make local sense.
Grant funded projects alone are unlikely to accomplish Waynesboros objectives.
8 Finally, grants often require a significant effort and cost to just to obtain (writing
Monitor and Report proposals) manage (monitoring and reporting) them, and can impose other cost-
increasing requirements.
Reallocating Existing Dollars. There are a few opportunities in the Waynesboro In each of the five goals - Educational, Economic, Infrastructure, Quality of Life,
budget where the community can decide to continue to defer maintenance
3 Prioritizing within and Neighborhoods - Council (with technical support from staff) should regularly
(regularly Keep Up), and a few areas where planned expenditures may not be Categories prioritize the proposed actions listed in this document, and also any that are
aligned with the communitys updated understanding of its revitalization needs. added year to year as changing conditions necessitate. Use should be made of the
However, the total of these reallocations will not achieve the needed revenue foundational elements contained in this plan.
goals, and they risk merely deferring (or increasing) attention to the citys Catch
For example, as regards the citys educational goals - school readiness (student
Up needs in the future.
performance) and facilities (high quality and properly maintained), this plan
identifies five projects, each with a series of attendant costs and each with
Leveraging Existing Assets. Like most cities, Waynesboro has a large portfolio
different time tables, different outputs, and a different potential impact on the
of assets, only some of which appear on the citys balance sheet. They include
future of Waynesboro. The community will need to continually rank order possible
some city as well as some private properties that are underutilized (vacant,
projects based on the following filters in the following sequence:
partially used), properties and buildings that are on land that has a higher value
(e.g. in a commercial area) than the uses to which they are being put, and Is the proposed project (or activity) consistent with the core values stated in this
easements and rights-of-way that may no longer be needed. It may be possible plan? If all of the proposed projects meet this test, Council and staff will have to
to put these assets to higher and better uses by engaging professional asset determine, transparently, which are more and which are less consistent.
managers rather than relying on department heads that are fully devoted to their Is the manner in which the project will be implemented consistent with the
primary responsibilities. planning principles stated in this plan? If all of the proposed projects meet this
test, Council and staff will have to determine, transparently, which are more and
Borrowing at Low Rates. Waynesboro has untapped capacity because it has which are less consistent.
one of the lowest debt ratios in the Valley. Increased borrowing is very viable
Is the proposed project going to measurably make progress towards the relevant
as an option. Under normal circumstances, debt and interest obligations
goal stated in this plan? If all of the proposed projects meet this test, Council
should be minimized. But with historically low interest rates and critical funding
and staff will have to determine, transparently, which will make more and less
needs long present - and a secure future unlikely without significant public ? progress.
reinvestment in schools, staffing, infrastructure, economic development, and
neighborhood improvement - a larger, creatively financed debt load is prudent.
Low borrowing rates are not likely to remain in perpetuity so striking while the Once Council and staff have done a preliminary prioritization within each
iron is hot is wise. goal category (Educational, Economic, Infrastructure, Quality of Life, and
Neighborhoods), a second level of transparent evaluation is needed.
Increasing Local Taxes Waynesboro has below average tax rates among
Is the proposed project going to increase demand and its capacity to compete
independent cities in the Commonwealth. This can be a competitive advantage
in the Valley for strong households able to choose where they want to live? If all
as it shapes the business climate and can be an incentive for business
of the proposed projects meet this test, Council and staff will have to determine,
expansion and job creation. However, low tax rates cannot overcome the
transparently, which will more greatly enhance the citys profile.
challenges identified in the planning process and described in this plan.
Is the proposed project going to improve Waynesboros capacity and probability
for reinvesting in the city in ways that will be likely to trigger additional
reinvestment? If all of the proposed projects meet this test, Council and staff
will have to determine, transparently, which will more greatly lead to a culture of
sustained reinvestment.
Is the proposed project going to improve Waynesboros physical conditions and
resulting image? If all of the proposed projects meet this test, Council and staff
will have to determine, transparently, which will more greatly lead to greater pride
of residency shown in willingness to care for property at a high level and project a
healthy image.
The highest ranked projects within each category then need to be compared
4 Prioritizing alongside one another using the same filtering questions.
between
Categories
Staff experts and consultants will then make cost estimates for the highest Measure the impact of the Waynesboro Plan projects over time and report to the
5 Estimate the composite priority actions that remain, taking care to separate out capital from 8 Monitor and Council and public. This is done by evaluating the SMART goal timelines contained
True Cost of the operating expenses, and then value engineer those costs to obtain a quotient. Report in this plan and circling back to these key metrics and others as staff experts may
Composite Priority determine and share with Council.
Actions
Education Achievement in Waynesboro
3rd and 4th grade performance compared to the County and neighboring
From the available budget, Council and staff will determine the share to be jurisdictions
6 Allocate the allocated for Caching Up, Keeping Up, or Getting Ahead, knowing all are vital, and High school graduation rates compared to the County and neighboring
Available Budget that over time todays Catch Up costs will decline, and, eventually, the budget will jurisdictions
to the Composite almost entirely be allocated over to a balanced combination of efforts designed
to Keep Up and investments aimed at Getting Ahead. Council and staff should
Priorities reserve the prerogative to re-prioritize when matters arise of health and safety Economic Progress in Waynesboro
(flooding, for example), and unique and unexpected opportunities emerge (to Per Capita Wages in Waynesboro compared to the County and neighboring
purchase a valuable property at a good price), or critical path dependencies jurisdictions
become necessary to pay for.
Household Income in Waynesboro compared to the County and neighboring
jurisdictions
Lease rates for commercial property compared to the County and neighboring
A critical part of making progress towards mitigating Waynesboros vulnerability, jurisdictions
7 Manage the setting and maintaining high standards, and re-igniting pride, as well as getting and
Implementation keeping the public trust, is good management. This includes the imperative to
Quality of Life and Neighborhood Progress in Waynesboro
Stay on budget
Residential values compared to the County and neighboring jurisdictions
Alert the public when it is not possible to stay on budget
Procure high quality design services and use high quality materials that show
pride without being extravagant
Ensure staff and Council are sharing in the development of quarterly
implementation updates
Show the public what is being done with their tax dollars (project signs, media
coverage, dedicated part of the citys web presence)
To help reinforce, and raise confidence in planning, link the implementation to its
origination in the Waynesboro Plan (signage, media coverage)
Collect and disseminate feedback throughout the project (hot line, surveys,
comment cards)
Mark/celebrate completions
A corollary of good comprehensive plan implementation is the removal of

political overtones from the implementation process. This means:
Using community standards to make decisions
Using hard data to inform decisions (return on investment, revenue history and
projections, comparables from other communities)
Getting expert advice and investing in second and if necessary, third opinions
Designating the City Council as the Board of Directors of the Comprehensive
Plan whereupon it sets policy, works with staff to prioritize, and consistently and
transparently ties decisions back to the foundational elements of the plan
Empowering a Steering Committee as a cross section of the public to monitor
plan implementation
City of Waynesboro, VA
PREPARED BY czb, LLC

Waynesboro Draft Comprehensive Plan - November 2017

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Cover Art: Claude Skelton, Jr.

CITY COUNCIL 4 PART 1

Cover Art: Claude Skelton, Jr. 1967

Theres only one location MAR

in all of America thats

linked to Skyline Drive,

and the Appalachian Trail.

These attributes put Waynesboro in a unique place in American cultural geography,

10/4/2017 Waynesboro Public Library Photograph Collection

Home >> Photographic Collections >> Search Digitized Photo Collectio ns

To print this page hit Ctrl+P (Windows) or Command+P (Mac)

This collection is housed at the Waynesboro Public Library.

must get permission from the Waynesboro Public

This collection is housed at the Waynesboro Public Library.

The present City of Waynesboro was included in the

The city is at a historical and

The communitys values Whats Going Fundamental How We Will

Education and Economics. 2000 2015

We will... We will not...

Conservative. Waynesboro is a conservative community. It is wise and

Values Waynesboro will catch up and generations with catch up expenses

Family- Waynesboro is family-friendly. Being able to raise a family in a

Entrepreneurial. Waynesboro has a can-do spirit. It is an entrepreneurial

Independent. Waynesboro is a self reliant and independent community with

Stewardship. Balance. Assets.

William Perry Berkeley Glen

Jones Hollow Trail

Current vacancy rates along Wayne

1. Develop a plan that by - INFRASTRUCTURE -

Proposed Minor Trail

East Main Street (near

4. Redevelop East Main

Shenandoah National Park - A National Treasure in Our Backyard

There is catch up work to do - refining

A Gate Area and Access Road

3. Design and develop

Waynesboro means business.

Credit: LPDA Land Planning and Design (Sterling, VA)

Keep up Steele Run

Completed Sidewalk Plan

Completed Trail Plan

At the same time, a number of low cost rental projects are

It is also the case that much of Waynesboro requires

highly marketable with a relatively modest amount of

TYPE NEIGHBORHOOD STRATEGIC AIMS TOTAL 1 2 3 4 5 AVERAGE

Lew Dewitt 920 81 444 388 4 3 2.35

Delphine North 720 0 69 519 126 6 3.10

Upper Basic City 680 2 88 507 76 7 3.00

Wayne Hills and Hillandale 358 1 41 295 21 0 2.94

1,462 10,860 264 2,827 6,579 1,118 72

320 21.89% 2.4% 26.0% 60.8% 10.3% 0.7%

1. Address blighting 2. Provide matching 3. Provide matching grants 4. Implement a citywide

Catch up Catch up Catch up

A corollary of good comprehensive plan implementation is the removal of

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