varina district growth plan a vision of growth for the varina district ...

VARINA DISTRICT GROWTH PLAN
A VISION OF GROWTH FOR THE VARINA DISTRICT
HENRICO COUNTY, VA
AARON SHOEMAKER
MASTER OF URBAN AND REGIONAL PLANNING PROGRAM
L. DOUGLAS WILDER SCHOOL OF GOVERNMENT AND PUBLIC AFFAIRS
VIRGINIA COMMONWEALTH UNIVERSITY
SPRING 2012
PREPARED FOR PARTNERSHIP FOR SMARTER GROWTH

Page intentionally blank.
2

VARINA DISTRICT GROWTH PLAN
PREPARED FOR:
PARTNERSHIP FOR SMARTER GROWTH (PSG)
PREPARED BY:
AARON SHOEMAKER
MASTER OF URBAN AND REGIONAL PLANNING PROGRAM
L. DOUGLAS WILDER SCHOOL OF GOVERNMENT AND PUBLIC AFFAIRS
VIRGINIA COMMONWEALTH UNIVERSITY
SPRING 2012
STUDIO PANEL:
DR. JOHN ACCORDINO, PHD, VCU
KIMBERLY CHEN, VCU
ANDREW MOORE,
PRESIDENT OF BOARD OF DIRECTORS, PSG
3

ACKNOWLEDGEMENTS
I thank each of these individuals (listed alphabetically) for their input into the construction of this document.
Dr. John Accordino
Alissa Akins
Kimberly Chen
Rosemary Deemer
Nicole Anderson Ellis
Dr. Freeman
Kelly Hall
Jan Hatcher
Nichole Huff
Seth Humphreys
Tolu Ibikunle
Tom Jacobson
Jane Koontz
Glenn Larson
Andrew Moore
Tyrone Nelson
Dr. Damian Pitt
Dr. Michela Zonta
4

EXECUTIVE SUMMARY
The Varina District Growth Plan contains a vision for and recommendations to guide growth in the Varina magisterial district of
Henrico County, Virginia. This plan has been prepared for Partnership for Smarter Growth (PSG), a non-profit organization
whose mission is to engage communities the Richmond region to improve the quality of life by guiding where and how the
region grows. The community and members of the client organization have been continuously interested in the growth and
development in the county and the district. The client requested the plan to demonstrate ways in which the Varina district can
welcome beneficial new growth and development. This plan was created with consultation from Henrico County administration.
The Varina district is one of five magisterial districts in Henrico County. It is a predominantly rural district that contains over
half of the county’s land mass. The four other districts consist of mainly suburban style residential and commercial
development. Recently, the amount of development in Varina district has increased substantially. To address the mounting
development pressures in a meaningful manner, this plan looked at the current planning literature regarding growth theories
and practices, such as growth management and build-out analysis. Relevant precedent plans were also explored to gain an
understanding of how other plans have approached growth issues in growing rural areas. Based on the literature and
precedent plans, this plan developed research questions and a methodology to appropriately explore growth in the Varina
district.
Growth in the Varina district was explored using data from geographic information systems, growth projections, and
community/stakeholder input. Community and stakeholder input cites that it is desirable to maintain the district’s rural
character as much as possible. They also cite that Varina can be home to any type of development, including infill, and it is
simply a matter of placing the development in a desirable location. The community and stakeholders believe Varina to be
developmentally diverse, but also primarily rural. A field survey of the Varina district reveals that Varina is indeed
predominantly rural, comprised of open space and forestry, but that the district also includes suburban, industrial, and mixeduse
development. The current zoning ordinances demonstrate that Varina houses a variety of development types. Agricultural
and rural land uses comprise 67.2% of the area while suburban single-family and manufacturing land uses make up 11.1% and
10.5% respectively.
6

In addition to land use data, other research was used to gain an understanding of where and how growth has occurred. Census
data illustrates that the more densely developed areas are concentrated in the northwest portion of the district. However,
many of these densely developed areas are losing population, while most of the population growth is occurring in the rural
areas in the district. Much of these new developments are subdivisions and plans of development (PODs) and are often
disconnected from existing water and sewer infrastructure. These low-density developments often consume agricultural and
rural land and may disrupt the rural character of the district. Currently, growth projections estimate that there will be a 59.8%
increase of population and 55.4% increase in housing units between 2008 and 2035.
To address the mounting development pressure, this plan suggests a scenario of growth that aligns with client and community
ideals and goals. This plan looks at two general scenarios for growth in the Varina district and compares the types of
development and potential impacts on land consumption. The purpose of this comparison is to demonstrate how using more
dense zoning ordinances can reduce consumption of agricultural land and disruption of rural character. This demonstration also
illustrates types of development methods that may be beneficial, such as developing on existing infrastructure.
Both scenarios look at residential, office, commercial, and industrial growth, and the potential land consumption of each. The
first scenario is a growth projection based on the existing proportion of land uses in the zoning ordinance. It estimates land
consumption if the zoning ordinance proportions did not change. The second scenario is the selected alternative of growth
based on increasing the proportion of denser land uses, such as mixed-use. This plan considers the second scenario to be the
preferable scenario because it is less consumptive of agricultural land and also provides greater provisions for infill
development.
In order to achieve something similar to the selected alternative growth scenario or a similar scenario, a vision for growth in
Varina was developed. Out of the vision, three general goal categories were created and they are as follows: designate areas
ideal for directing urban growth, encourage infill development, and maintain rural and natural landscape where desirable. Each
goal has a list of more specific objectives with recommendations for actions to be taken by the client. The recommendations
suggest that the client engage various public and private entities and stakeholders to execute the strategies.
7

Some of these recommendations are specifically for the purpose of guiding development toward areas with existing
development and infrastructure. This includes investigating the potential use of growth tools such as Urban Development Areas
and impact fees for road, sewer, and water infrastructure. These recommendations also include suggesting amendments to the
zoning ordinance of Henrico County. It was suggested to enable the previously disabled R-3A, R-4, and R-4A residential
rezoning in the Varina district because these denser residential zones have been used previously. It was also suggested that
the client help devise stipulations for developing a cluster zoning ordinance for suburban subdivision developments.
The plan recommendations also include provisions for encouraging infill development and investment into existing areas in
Varina. One recommendation is to investigate the potential use for tax increment financing for use in areas losing population,
such as the Highland Springs neighborhood. Another recommendation is to complete the focus area studies for the five
revitalization/reinvestment opportunity areas in Varina.
Finally, the plan also contains recommendations to aid in the maintenance of agricultural land, open space, and natural areas.
One recommendation is to have the client engage the community to participate in conversation easements that protect open
space, natural lands, and productive farmland. The client is also recommended to engage the county administration and the
residents of Varina regarding the potential use of Agricultural and Forestal Districts. The final recommendation is to complete
the focus area studies for the four existing character protection areas in Varina.
8

INTRODUCTION
CLIENT ORGANIZATION
The Varina District Growth Plan was requested by representatives of Partnership for Smarter Growth and fulfills the
requirements of the Master of Urban and Regional Planning program in the L. Douglas Wilder School of Government and Public
Affairs at Virginia Commonwealth University. The client, Partnership for Smarter Growth (PSG), is a non-profit organization
whose mission is to engage the communities in the Richmond region to improve the quality of life by guiding where and how
the region grows. The client’s growth philosophy is based on a list of principles that provide guidance for where and how
desirable growth can occur in the Richmond region. These principles range from mixing land uses and implementing compact
building design to preserving open space, farmland, natural beauty and critical environmental areas. PSG is an organization
that directly and publicly supports citizen and stakeholder participation in the implementation of development models based on
principles that beneficially direct growth. They are dedicated to providing programs and alternatives for guiding development in
the region that promote the social and aesthetic benefits of certain types of growth.
The client has specific interests in the Varina magisterial district of Henrico County. The client has monitored the growth
patterns in Henrico County and Varina and has observed the character difference between Varina and the other districts in the
county. Many Varina residents and stakeholders have made their opinions clear regarding growth in Varina: they want
development to enhance the traditional, rural value and character of the district. During the creation of Henrico County’s 2026
Comprehensive Plan, the client aided in the formulation of growth goals for the Varina district and engaged Varina residents in
the planning process. The client organization helped support the organization of Envision Henrico, a citizen group actively
engaged in guiding growth in the Varina district to protect and enhance the community’s overall unique rural character.
While the client currently does not have an official stance on growth policy for
Varina, the client does want to encourage the community and stakeholders to
create a vision for Varina’s growth and development. Hence, the Varina District
Growth Plan lays a foundation for this purpose.
9

PLAN PURPOSE
The client requested the plan to demonstrate ways in which the Varina district can welcome new growth and development while
maintaining its cherished traditional rural character. With the exception of general suggestions found in Henrico County’s 2026
Comprehensive Plan, there is no vision for growth in the Varina magisterial district. This plan provides a vision for development
based on two potential growth scenarios, and provides suggestions for policy changes to implement this vision for growth.
STUDY AREA
Varina, the study area for this plan, is the largest and southeastern most magisterial district in Henrico County. The study
area borders the city of Richmond and the counties of Charles City, New Kent, Chesterfield and Hanover. The Varina
magisterial district is a growing district within the growing jurisdiction of Henrico County. Between 2000 and 2010, Henrico
County grew by 17% to a total population of 306,000.
While Varina is classified as a rural magisterial district,
it contains a plethora of development types. The
landscape in Varina is largely comprised of farms,
forests, and low-density single-family housing.
However, it also contains suburban-style housing
developments, multifamily housing, mixed-use dense
housing, suburban-style commercial developments,
and mining and industrial development. Varina is also
to the site of Central Virginia’s main air travel hub, the
Richmond International Airport. These diverse landuses
illustrate Varina’s capacity to accommodate
nearly any type of development.
10

Varina contains both traditional rural landscapes
and traditional low-density suburban commercial
areas. Source: PSG.
This plan provides analysis of the potential effects of projected growth and suggestions for ways in which this growth can occur
while protecting the traditional rural character of the district. This plan provides two development scenarios for growth in
Varina and evaluates them based on the growth principles of the client organization. This plan also provides guidelines for
implementable policies that achieve the goal of balanced growth. The Varina District Growth Plan supplements the growth data
from the 2026 Comprehensive Plan and gives the client a document that inspires good growth in the Varina district. The
Henrico County Planning Department was extensively consulted in the creation of this plan.
11

MODERN RURAL GROWTH PLANNING PRACTICES
The Varina District Growth Plan is guided by growth-based theories and practices found in urban planning literature and
precedent plans.
MODERN PLANNING THEORIES AND PRINCIPLES
The foundation for the Varina District Growth Plan is based on the ideology that growth should occur in an orderly, rather than
a haphazard, fashion and that policies can be used to achieve this goal. The most common way that this is practiced in modern
planning is through a theoretical practice called growth management. Growth management is based on the idea that public
planning should be used to guide development that results from population dispersion over time (Hamin et al 2006, 53).
Because growth and development are seen as inevitable forces in human society, growth management does not try to stop or
limit growth, rather, it tries to manage growth according to a set of guidelines (APA 2002). These guidelines are a list of
principles and policies set forth to achieve a desirable pattern of growth, which is different from how growth would presumably
occur without these defined principles and policies. Most modern comprehensive and land use plans have guiding principles for
how the jurisdiction can utilize its community assets and achieve good growth.
The client has its own specific list of guiding principles for fostering beneficial growth patterns in the region. The client supports
both physical construction and qualitative development. The first principle suggests reinvestment in already-existing
communities and infrastructure. The client suggests that good growth includes a variety of housing options that include
affordable housing and mixed-use developments. The client also believes that growth should enable communities access to
various modes of transportation including automobiles, bicycle, and walking. Finally, the client advocates for growth that
preserves rural areas, open space, and natural habitat. The client believes that responsible growth creates communities that
are compact rather than sprawling. PSG’s principles allow for beneficial growth while maintaining the traditional values of the
rural community.
Modern growth practices for large areas are based on specific analytical methodologies for deciding the desirable locations for
new development. Geographic information systems (GIS) and other spatial data analysis are used to determine what locations
12

cannot be developed because of physical and natural constraints. The hydrology of an area must be ascertained to avoid
waterways such as rivers, streams, lake, and sensitive and protected areas, such as wetlands and floodplains. Growth models
also account for topography and soil characteristics, especially in agricultural areas. Some topography is generally too
expensive to develop, and some soils are desirable to maintain for agricultural purposes.
Using these tools, criteria are developed to describe where growth can occur. The location of preexisting development is
another determinate used in modern planning practices to direct where more growth can most suitably occur. Suburban
residential and commercial development that is disconnected from other development is generally referred to as leapfrog
sprawl. Clustering development near or around preexisting development is less consumptive of farmland, forest, open space,
and natural habitat. It takes advantage of the pre-existing infrastructure, and utilizes design elements of rural designs. For
example, in Virginia, two policies, Agricultural Conversation Areas and Urban Development Areas, have been used to direct
growth.
Growth plans are often based on some type of build-out analysis. A build-out analysis is generally a demonstration of how and
where growth will occur based on numeric growth projections utilizing population estimates, existing land use, and zoning
regulations (Zirkle 2003). This analysis may include impact assessments and extreme scenarios. Using GIS, a build-out
analysis can illustrate various scenarios of growth and identify the most desirable growth pattern. A rural growth plan will often
assess the impacts of low-density suburban development versus higher-density suburban development.
RELEVANT PLANS
Precedent plans provide a relevant framework regarding the accommodation of growth and development within jurisdictions
that contain urban and rural attributes. Typically, plans that seek to control, guide, or manage growth and development for
large areas are created for government clients to implement. State governments often adopt plans that advocate for statewide
policies that focus growth in specific areas. Also, states often require municipal governments to create their own individual
growth plans for a city, county, or region. In addition, municipalities and jurisdictions often create their own plans to address
specific community needs related to directing growth and rural conservation. The integration of elements of these precedent
plans constitutes part of the theoretical framework used in this Varina District Growth Plan.
13

The Southern and Western Area Plan is a portion of the comprehensive plan for Chesterfield County, Virginia. This plan
addresses growth for a portion of Chesterfield County that is similar to the Varina district and is also in the Richmond region.
The planning approach maximizes the existing infrastructure in this portion of the county to avoid burdensome development
and the costly construction of new infrastructure. The plan also recommends policies to encourage infill development for the
protection of rural and aesthetic features and the natural environment. The plan devises three types of land designations: infill
development, planned new development (based on infrastructure location), and deferred development to preserve agriculture
and rural character. The plan also evaluates various types of development, such as low-density suburban and cluster
development. The technical report for the Southern and Western Area Plan will serve as a general framework for the Varina
District Growth Plan.
The Baltimore County 2020 Master Plan utilizes Maryland’s state-mandated smart code to manage growth in a developmentally
diverse county, which contains an array of both urban and rural land. The plan utilizes the states enabling legislation by
creating an Urban Rural Demarcation Line (URDL). This policy creates a specific designation for where urban and suburban
development is suggested to occur. Similarly, this Varina District Growth Plan addresses the policy tools mandated or enabled
by Virginia and county codes for assessing growth.
Other plans in Virginia have also proposed the use of specific tools for the purposes of addressing growth issues and rural
conservation. In A Transfer of Development Rights Plan for Nelson County, the transfer of development rights (TDR) was
proposed to concentrate growth in a predominantly rural county in Virginia. The value of the rural character was recognized
such that this plan specifically proposed the implementation of a relatively new and complex tool. Similarly, this Varina District
Growth Plan suggests the use of policy tools, which are not currently in practice or may be underutilized in Henrico County.
The Central Varina Land Use Plan is a previous Virginia Commonwealth University Studio II by Seth Humphreys and proposes a
mixed-use development in Varina based on principles of sustainability regarding growth. The plan focused on a small area of
Varina, suggests dense development that is able to support multi-modal transportation, and has a low impact on the
environment and cultural and historic rural resources. The plan sought to have a sustainable residential and commercial
mixed-use development with adequate access to services, infrastructure, and transportation. This plan demonstrates criteria
14

for growth indicators used for the selection of a study area within the Varina magisterial district. This Varina District Growth
Plan utilizes indicators to suggest specific areas in which to focus growth.
QUESTIONS FOR RESEARCH
This section gives an overview of the research questions asked for this Varina District Growth Plan. Many of the categories and
sources of data overlap with one another.
Research Design
Questions How to answer Sources for Data
Past/Present Varina
What are the dominant general aesthetic
characteristics? What are the existing
land uses?
How has Varina grown?
Where has growth occurred? Where is
planned growth? Where are variances,
conditional/special use permits
occurring?
Where should Varina grow?
What is the client and community vision
for the future of Varina? Where is
existing development and
infrastructure? Where can infill occur?
How should Varina grow?
What are the build-out impacts of
development with current zoning?
What are the build-out impacts of
development with more dense zoning?
Zoning data and aerial maps provide an
overview of aesthetic features and existing
land uses; Field surveys and
community/stakeholder input also describes
aesthetics.
Census population data shows population
change and density; Approved subdivision
and plan of developments (POD’s) display
locations of development; Comp plan displays
additional planned development.
Public participation provides community
vision; Population density data shows
already developed land; GIS data of road,
sewer, and water infrastructure displays
currently built infrastructure; GIS data shows
natural constraints.
Growth projections can be used to predict
number of housing units and acres needed to
accommodate growth; Literature provides
scenarios of potential development types in
Varina.
Henrico County Planning Department,
stakeholder interviews, field surveys.
U.S. Census Bureau, Henrico County Planning
Department.
Stakeholder interviews and focus groups,
Henrico County Planning Department.
U.S. Census Bureau, Henrico County Planning
Department
15

METHODOLOGY
The questions were answered using analytical methods extracted from the precedent plans and growth literature. Varina’s
current development status was determined through the 2026 Comprehensive Plan, field surveys, and stakeholder/citizen
participation. Varina’s past growth was determined using spatial data on population growth by Census block group, population
density, and approved subdivisions and plans of development. Projections for growth in Varina were determined using data
from the U.S. Census and contained in the scenarios of growth from the 2026 Comprehensive Plan. Natural constraints to
development were determined from GIS data provided by the Henrico County Planning Department and the U.S. Census
Bureau. Infrastructural constraints were determined from GIS data from Henrico County Planning Department as well as the
2026 Comprehensive Plan. Scenarios of growth were determined from the precedent plans and literature. These scenarios
include a low-density suburban scenario and a higher-density suburban cluster development scenario. A brief build-out analysis
demonstrated the relative impact of each scenario. Community and client desires regarding the vision for Varina and
evaluation of the scenarios of development were determined via focus groups, interviews, and questionnaires.
16

DOCUMENT STRUCTURE
This section details the general document outline for the Varina District Growth Plan. The rest of this plan is divided into two
main parts: existing condition, research, and the plan.
PART I
Part I of the document provides information on the existing conditions in Varina and Henrico County as they relate to growth
and development. The first part of this section assesses the physical aesthetics of Varina based on information received from
community members and stakeholders and from information collected via field surveys. The current land uses are also
described through analysis of the zoning ordinances in this section. Information is provided regarding natural conditions and
utility infrastructure. This section also provides analysis on where, and how, Varina has grown and is currently growing. Finally
it provides general estimates of population, housing unit, and employment growth.
PART II
Part II of the document provides an overview and comparison of two potential scenarios of growth in the Varina district. This
section compares a projection of growth based on existing land use with a selected, preferable alternative growth scenario
based on higher density development. This section uses figures of population, housing unit, and employment growth between
2008 and 2035 to give a general idea of how much land certain land uses could potentially consume.
PART III
Based on the attributes selected growth scenario in Part II, Part III of the document identifies the overall vision and three broad
goals of the Varina District Growth Plan. This section lists the more specific objectives that would fulfill the vision and
individual, implementable strategies for each objective. This section also identifies the steps of implementation necessary to
complete the plan strategies. This section outlines realistic, implementable steps on ways in which these strategies may be
executed by the client and other entities. This section contains suggestions regarding various policy tools used to achieve the
17

goals from Part II. Some of these implementable suggestions involve conventional planning tools, such as zoning code
amendments or land use on the comprehensive plan. Other suggestions involve using less common growth planning tools,
such as investigating Agricultural/Forestal Districts.
18

RESEARCH
This section of the document uses illustrative data to answer the research questions posed in the introduction of this document.
This section explores the data received from community and stakeholder input and describes the relevance of data such as
mapping of zoning and land uses.
COMMUNITY AND STAKEHOLDER INPUT
For this plan, information has been gathered from selected members of the community and client organization and from public
meeting data collected and analyzed by the Henrico County Planning Department. Information was gathered via personal
interviews, questionnaires, and a focus group.
According to the stakeholders and members of the Varina community, one of the most desirable features of the physical
landscape Varina is its appealing rural character. Residents feel that Varina is a noteworthy place and has enormous regional
value. Many of the residents who live in the rural part of Varina appreciate the low-density of housing because it provides the
benefit of very little noise, low traffic, less light pollution, and large amount of aesthetically-appealing open space and forest.
In addition, the Varina residents have access to regional resources such as the James River, parks, natural areas, and the City
of Richmond. In the western part of Varina, the rural character is directly adjacent to the densely-developed urban
environment of the City of Richmond. An individual in an automobile can travel from the central business district of the City of
Richmond to the heart of rural Varina in less than 10 minutes. This allows many residents of Varina access to the urban
amenities of the Richmond metropolitan area while being able to live in a quiet, rural community.
In terms of development, community members stated that they do not believe that any conventional type or category of
development is totally inappropriate for Varina. They believe that there is room for any type of development; it is a matter of
putting the development in the best location.
19

PHYSICAL CONTEXT OF VARINA
Varina is classified as the only rural magisterial district among four other districts within Henrico County. A visual survey
reveals that the district’s landscape is dominated by very low-density single-family housing located amongst agricultural land
and structures. Actively farmed land aesthetically creates large swaths of open space in between heavily forested areas. Twolane,
two-way country roads are the main form of transportation. Few major roads run through the rural portion of the district,
with smaller roads and private roads branching off.
The Varina district is dominated by a rural landscape, but has
substantial clusters of suburban residential, commercial,
institutional, mixed-use and industrial development. While
much of the denser residential development is clustered
together, some of it is located amid a mostly rural landscape.
The district also contains the Richmond International Airport
adjacent to the several clusters of industrial development and
suburban-density subdivisions. The photographs and aerial
images below illustrate the non-rural types of development
character typical of the Varina District.
A common rural landscape in Varina is comprised of sparsely located buildings, open fields, and forest.
20

Richmond International Airport. Source: Bing Maps.
Suburban subdivision near Lower Rocketts. Source: Bing Maps.
Richmond International Airport. Source: Flickr.
Low-density commercial development on Nine Mile Road. Source: Flickr.
21

CURRENT ZONING
The existing zoning ordinance illustrates the current land uses allowed within the Varina District. The zoning code is also the
most powerful influence on where development occurs and how growth can be guided. Zoning also dictates the precise
development parameters of the type of development, such as the setback and the minimum lot size.
Based on an inventory of Henrico County zoning code, Varina is largely an agriculture district with significant portions of
residential, manufacturing, and conservation land uses. In Varina, 67.2% of the land is zoned for agriculture with the
designation A-1, which is considered a low-intensity use. Other principle uses include single-family dwelling and manufactured
housing.
Another 11.1% of the land is zoned with a designation at R-2, R-3, and R-4 for single-family residential, which is at a higherdensity
than A-1 residential. These residential zones are located in the highest concentration in northwest Varina, such as in
the Highland Spring community. Some suburban residential uses surround the airport. Over 10.5% of the land is zoned for
various levels of manufacturing, and much of this manufacturing development is surrounding the Richmond airport.
Zone
Percentage
Agriculture 67.2
Business 1.5
Conservation 6.0
Manufacturing 10.5
Office 0.1
Single-Family Residential 11.1
Multi-Family Residential 2.3
Mixed-Use 2.1
The conservation districts are almost entirely in the north and south
portions of the district- near the floodplains of the two bordering rivers. The
principle uses of this zone are natural wildlife areas, forestry, agricultural,
and public drainage works.
The current zoning ordinance is an accurate depiction of the currently
existing types and locations of development throughout the Varina District.
It is indicative of where and how Varina has been developed. The zoning
map indicates a push of development expanding from the northwest. This
development has led to the A-1 district being zoned to more intense uses,
such as residential subdivisions and urban mixed-use development. The
rest of the district remains overwhelmingly agricultural / rural with scattered
development.
This chart illustrates the proportion each major zoning category
represents in the Varina district.
22

POPULATION DENSITY/GROWTH
The population density based on the U.S. Census-designated block groups in Varina indicates where people have settled and
the level of residential development. As defined by the Census, the block groups is a small geographic unit for which data is
collected. As with many of the more intense land uses, the bulk of the population density is concentrated in the northwest
portion of the district which is adjacent to both the suburban Fairfield district and the dense urban neighborhoods of the City of
Richmond. The street layout is indicative of more dense development and, in almost all of the denser block groups, the streets
are in a connected grid
pattern or a clustered
layout with cul-du-sacs,
similar to many of the
subdivisions in western
Henrico County.
The population growth
trends indicate that the
densest block groups are
not necessarily the fastest
growing areas. Despite
being the densest by
population, many of the
heavily-populated block
groups have grown more
slowly or have actually lost
population in the period of
2000-2010. Several areas
in Varina have clearly
accelerated in population
growth with much of the
new residential
construction and other
types of development
occurring in the more rural,
less populated block
groups.
24

POPULATION CHANGE (2000-2010) & NEW HOMES
25

MAJOR DEVELOPMENTS
Henrico County’s 2026 Comprehensive Plan provides analysis of the developments that have occurred over a 15 year period in
the entire county. This analysis provides criteria for what constitutes a “major development.” As illustrated by the population
growth and density trends, many developments have historically taken place in the northwestern portion of the district.
However, some are spread out throughout the rural and agricultural areas of Varina.
26

RECENT POD’S (PLANS OF DEVELOPMENT) AND SUBDIVISIONS
The immediate potential future of development in Varina can be observed via the location of PODs and proposed subdivisions.
PODs are often multi-family dwellings, business/commercial development, or industrial developments that require appropriate
zoning to be constructed. They are most often constructed on public arterial and collector roads. In Varina, many of the newly
developed PODs are concentrated in the northwest portion of the district. However, PODs have been approved for development
in the A-1 zones.
Conversely, subdivisions are usually single-family housing projects constructed on a parcel of subdivided land. Most of the
approved subdivisions in the Varina district are dispersed throughout the agricultural district. They generally occur in the block
groups that are growing in population rather than in block groups that are already developed. The proposed subdivisions are
most often disconnected from other development. This type of growth may be referred to as sprawl and is cited by the
community as less desirable than development on existing infrastructure.
27

Majestic Meadows subdivision is a subdivision proposed on Osborne Turnpike. It
is illustrative of the most common current method of residential developmentdisconnected
to other recent development.
29

WATER AND SEWER INFRASTRUCTURE
The county operates a water-treatment facility and maintains a contract with the City of Richmond for purchasing water. The
county’s public water system serves the more-densely developed areas to the west. Many of the residents in the A-1 district
utilize well water systems.
The county also operates a sewage treatment system. Similar to the water delivery system, the sewage system is mainly
located in the more dense areas of the northwest part of the county and along some of the major corridors. The majority of the
residents in the A-1 district operate on septic systems.
Ideally, new developments should be built on existing sewage and water infrastructure to maximize the use of the existing
systems. Building new infrastructure is very expensive and generally not subsidized by the county. However, a major
challenge to developing new areas on existing systems is overburdening the original pipes for water and sewage, which may
have a limited capacity due to the pipe diameter and other factors. Updating this infrastructure can be expensive, as it requires
custom engineering.
Water Infrastructure
Sewer Infrastructure
30

ROAD INFRASTRUCTURE
As with the other elements of the infrastructure, the road infrastructure is concentrated in the high population density block
groups. Private roads branch off of and are connected to many of the collector and arterial roads and also densely penetrate
the airport block group. Two interstates run through the Varina district, Interstate 64 and Interstate 295, and provide
opportunities for growth as they facilitate connection to the rest of the Richmond region. Interstate 64 runs through many of
the denser block groups, whereas Interstate 295 runs through much of the agricultural district. The location of interstate
systems provides criteria for focusing growth in specific locations. New commercial and residential growth should be located
near interstate access points.
31

GROWTH PROJECTIONS
The growth projections used for this plan are based on figures from the Richmond Regional Planning District Commission
(RRPDC). The data contains figures on population, housing, and employment changes between the time period of 2008 and
2035. This data is also the source data used for some of the projections of the 2026 Comprehensive Plan demand analysis.
The data predict that Varina will have a steady growth rate over 50%, but will grow more slowly than the entire county. Over
the past several decades, the average annual population growth has been 1.77% for the entire county. In recent years, the
population growth percentage has increased. The RRPDC predict that the entire county will grow roughly 69.6% in population
while Varina will grow at a slower rate of 59.8%. The employment and housing unit predictions are close to the population
change data.
Location Population Housing Units Employment
2008 2035 % 2008 2035 % 2008 2035 %
Change
Change
Change
Varina 63770 106582 59.8 27101 48956 55.4 24488 41137 59.5
County 305577 439324 69.6 128529 198111 64.9 181452 260926 69.5
32

TWO POTENTIAL GROWTH SCENARIOS OF DEVELOPMENT IN VARINA
This section describes and compares two potential scenarios of growth for the Varina District. These scenarios contain general
estimates of projected total land consumption by some types of development and potential development types that could be
present on this land. The first scenario is a projection describing the total land consumption and land use and development
types based on the existing land use zoning ordinance. The second scenario is a projection of total land consumption and a
suggestion of development types based on a higher-density model of land use. These scenarios assume that the total
population and total housing units estimates for the Varina district are accurate. These scenarios also assume that the total
area of the Varina district is roughly 84,744 acres. These scenarios do not account for calculations of all potential types of
development that occur with population growth, such as agricultural subdivisions, public buildings, park construction and road
improvements. Acreages of conservation and floodplain districts and soil and topography limitations are also not included in
the calculations. Additional data are provided in the Appendix.
33

PROJECTED / CURRENT LAND USE GROWTH SCENARIO – SCENARIO 1
The first growth scenario provides rough estimates for the Varina district’s future growth as if it were to occur based on current
patterns of land use and with little to no public intervention. This growth scenario is based on the ratios of existing land uses
(from on zoning code) in Varina and the projection figures of total population and housing units for 2035. Using these figures
and the average density per zone, the total acreage of new residential, commercial, office, and industrial development was
calculated. These calculations are shown below. The table on the left displays the current percentage of residential development
taken up by each type of residential zoning. R-2, R-3, and R-4 are single family residential. R-5, R-6, RTH, and UMU are
multi-family dwellings, townhouses, condominiums, and mixed-use. The chart on the right displays a rough estimate of the
amount of new land that would be consumed by residential, commercial, industrial, and office development. It also displays the
total amount of land that would be consumed including previous development.
A scenario of growth using existing proportions of
current zoning could consume 16,705 acres of land in
between 2008 and 2035 for these land uses. By 2035,
around half the land area of the district would be
developed by these land uses.
34

What this scenario looks like:
This scenario looks relatively similar to what has currently been built in the district. As noted in the research section of this
plan, there is a mix of residential development with the vast majority being low-density single-family housing. Recently, the
Henrico County administration has zoned a portion of land as urban mixed-use (UMU) to allow for more dense, mixed-use
development to occur. Despite the UMU designations, many of these developments have not been built. However, this
affected the projections of this scenario and enabled them to be predicted. This development scenario contains a continuation
of the development trends currently seen in the Varina District. These are predominantly R-2 single-family housing with a mix
of other housing types, including more dense single-family housing, multi-family housing, and urban mixed-use.
With a large emphasis on R-2 residential zoning, this scenario contains more
development of low-density suburban subdivisions amidst agricultural land uses. These
types of subdivisions permeate the rural/agricultural landscape and are often
disconnected from existing development and infrastructure.
35

PLANNED GROWTH SCENARIO – SCENARIO 2
This alternative scenario was created to demonstrate how changing the proportion of land uses can reduce the consumption of
agricultural land. In the previous scenario, land uses are heavily weighted towards low-density whereas this alternative
scenario contains an increased percentage of more dense single-family housing and multi-family housing. This scenario also
includes a higher proportion of mixed-use development. With higher intensity of the land use, less acreage is necessary for
development to accommodate the 2035 projection of housing units and population. For example, the urban mixed-use zoning
designation allows up to 40 units per acre. Increasing mixed-use development on or near existing infrastructure would put a
large number of residential units on a smaller land area than any other type of land use.
36

What this scenario looks like:
This alternative growth scenario would be significantly less consumptive of agricultural land. An increase of residential
development as R-4, R-5, R-6, RTH, urban mixed-use would inevitability consume less space. Urban mixed-use developments
also generally include office and commercial development, so the amount of rural land consumed by these uses would be
reduced as well. Most residential and commercial development would be clustered towards existing development and
infrastructure in the northwestern parts of the county.
Much of the more dense
development in Varina is
connected to other dense
development. These dense
single and multi-family
neighborhoods have grown
from the dense neighborhoods
from within Richmond.
37

STRENGTHS OF PLANNED SCENARIO – SCENARIO 2
This is a brief list of some of the ways Varina would benefit from the planned scenario:
• The higher proportion of denser development reduces consumption of agricultural land and natural habitat.
• Developing on existing infrastructure prevents disconnected development that disrupts the continuous rural and
agricultural character of a corridor.
• Developing on existing infrastructure prevents large, expensive infrastructure extensions.
• Developing near other development prevents traffic congestion and noise disruption in traditionally rural areas.
• Developing more densely is more conducive towards multiple modes of transportation.
• Developing a wider variety of land uses provides residents with a more varied market of housing options.
38

Scenario 1 Scenario 2
This illustration demonstrates how growth can be
focused around existing development and nodes to
prevent heavy consumption of agricultural and rural
land. Scenario 2 accomplishes this by focusing
denser development near existing development.
Source: Virginia American Planning Association
39

VISION FOR GROWTH IN THE VARINA DISTRICT
The Varina district is a predominantly rural magisterial district and a growing area in Henrico County,
Virginia. With its diverse physical landscape, Varina is capable of hosting nearly any type of development
while simultaneously preserving and enhancing the unique rural characteristics. New growth is located
predominantly on or near existing infrastructure and includes infill development of pre-existing areas.
New growth meets the continuous population demands while offering a variety housing of options on the
market.
40

GOALS, OBJECTIVES, AND STRATEGIES
The purpose of these goals is to provide guidance for achieving a scenario of growth similar to the selected growth
scenario. These goals contain specific objectives for achieving the vision of this plan. Within each objective are
specific strategies for encouraging growth in accordance with the scenario outlined in the plan. All of the strategies
in this plan have been reviewed by Henrico County administration. These recommendations are actions that have
been previously used in some capacity, have been previously considered, or are open to consideration by the
Henrico County administration.
• Goal 1. Designate areas ideal for directing urban growth.
o Objective 1.1: Guide development such that it occurs near existing development.
• Strategy: Investigate possibility of an Urban Development Area (UDA) for Varina District.
o Objective 1.2: Guide development such that it occurs near existing roads, sewer, and water infrastructure.
• Strategy: Assess possibility of road, sewer, and water impact fees.
o Objective 1.3: Enable subdivision regulations to be flexible and encourage higher-density development.
• Strategy 1: Re-enable zoning code to allow for development of R-3A, R-4, and R-4A.
• Strategy 2: Encourage subdivision developers to use design elements of cluster subdivisions.
• Goal 2. Encourage infill development.
o Objective 2.1: Encourage developers to invest in existing Varina neighborhoods, especially those experiencing
disinvestment and population loss.
• Strategy: Investigate tax increment financing.
o Objective 2.2 Investigate potential areas for reinvestment and revitalization.
• Strategy: Complete studies on potential areas for reinvestment and revitalization.
• Goal 3. Maintain rural and natural landscape where desirable.
o Objective 3.1: Encourage the use of conservation easements on prime agricultural land.
• Strategy: The client will engage the Varina community to participate in land conservation easements to
maintain productive farmland.
o Objective 3.2: Investigate potential for use of Agricultural and Forestal Districts.
• Strategy: Survey Varina landowners and stakeholders regarding interest in voluntary participation in an
Agricultural and Forestal District (AFD).
o Objective 3.3: Investigate rural corridors that are facing an increased amount of development.
• Strategy: Complete existing character protection area studies for areas in Varina.
41

GOAL 1 DESIGNATE AREAS IDEAL FOR DIRECTING URBAN GROWTH.
Objective 1.1: Guide development such that it occurs near existing development.
Strategy: Investigate possibility of an Urban Development Area (UDA) for Varina District.
What? Though no longer mandatory, an UDA was initially required by the code of Virginia to be included in the comprehensive
plan of localities with a certain level of population. UDAs are geographically-defined areas designated by the land use plan to
be higher density for purposes such as utilizing multiple modes of transportation and using available water and sewer
infrastructure. UDAs are also supposed to be located in the proximity of already developed areas. The UDA code also
encourages the area to include as much opportunity for infill and redevelopment as possible. For Henrico County, the UDA
requires a minimum of eight single family residences, 12 townhouses, or 24 apartments/condominiums per acre.
Why? Henrico County already has established an Urban Development Area for an area in West Henrico called Innsbrook. The
designation and rezoning to Urban Mixed-Use would intensify the uses and provide for more mixed-use development. However,
this area is already highly developed and does not
provide much opportunity for infill. Using the
criteria established by the Virginia legislation, a new
UDA could be established in Varina located near
existing infrastructure and planned development.
This UDA can function as a receiving area for
compatible dense commercial and residential land
uses. Ultimately, UDA can be a tool used to create
higher-density develop and avoid consumption of
agricultural land.
Implementation: In order for the UDA to be
established in Innsbrook, Henrico County
administration completed an area study of
Innsbrook. The client should investigate and
suggest potential areas to the Henrico County
Planning Department to for potential UDA study
areas. The 2026 Comprehensive Plan includes three
areas of urban and suburban mixed-use in the
future land use plan. These are highlighted on the
map.
42

The above photo displays the existing conditions of the Innsbrook UDA in West Henrico. The graphic
below is a graphical illustration of potential development. Source: Innsbrook Next Master Plan.
43

Objective 1.2: Guide development such that it occurs near existing roads, sewer, and water infrastructure.
Strategy: Assess possibility of road, sewer, and water impact fees.
What? The Code of Virginia enables jurisdictions to charge developers a “fair and reasonable” fee for connection to water and
sewer infrastructure. The code does not require any specific quantitative parameter. Impact fees generally are used to pay for
connection to the infrastructure as well as to offset the cost associated with the use of water and sewer. Impact fees for road
improvements have also been previously considered by the Henrico County administration in the past. Impact fees for road
improvements must be tied a specific improvement.
Why? Impact fees force growth and or increased demand of infrastructure to be paid for by developers rather than be
subsidized with tax-payer money. Impact fees can be designed to offset the costs of infrastructure improvements and could
incentivize growth to occur on existing infrastructure. Impact fees are advantageous because they are able to be used on
improvements for all developments rather than only those the developments that have gone through the rezoning process.
Implementation: When new development occurs in the Varina district, Partnership for Smarter Growth should lobby to have
the Henrico County administration considered employing infrastructure impact fees.
44

Objective 1.3: Enable subdivision regulations to be flexible and encourage higher-density development.
Strategy 1: Re-enable zoning code to allow for development of R-3A, R-4, and R-4A.
What? R-3A, R-4, and R-4A are three single-family zoning designations prohibited by the zoning code. As of April 2000, these
three zoning designations are no longer allowed to be created through rezoning. For R-3A, R-4, and R-4A, the minimum lot
sizes are 9500, 8000, and 7750 square feet, respectively.
Why? R-3A, R-4, and R-4A enable more clustered and higher density single-family dwellings than traditional zoning for
suburban single-family housing. These three zoning designations have largely been replaced by the R-5 zoning, which allows
for zero lot line and townhouse development. Currently, most of the areas zoned for these three zoning designations of Varina
are located in the northwest part of the county. They are often continuous with the more dense development within the City of
Richmond or the suburban Fairfield district in Henrico County. These designations allow for less land consumptive singlefamily
home growth on or near existing infrastructure. They are compatible with other types of residential zones, such as
multi-family housing, and commercial development as well.
Implementation: The Henrico County Planning Department can propose the renewal of the R-3A, R-4, and R-4A zoning
designations.
45

Strategy 2: Encourage subdivision developers to use design elements of cluster subdivisions.
What? Cluster subdivisions are subdivisions where the lots of homes are grouped together more than a traditional suburban
residential subdivision. This allows a larger portion of the subdivided land to remain open space and/or forest. As mandated by
Virginia law, Henrico County has already begun devising a cluster ordinance.
Why? Cluster subdivisions often have provisions that create a large setback from the road. This allows the rural character of
the district to be preserved. This also works for development which may not be connected to other development.
Implementation: Partnership for Smarter Growth can write suggestive stipulations for cluster development to be included in
the zoning code based off of existing examples. Henrico County Planning Department can review and propose the zoning
language for cluster development. The client should include suggestions for what they would and would not like to see
regarding cluster development in the Varina district.
Windsor Oaks is a traditional suburban subdivision.
Village at Osborne contains elements of cluster subdivisions.
46

GOAL 2. ENCOURAGE INFILL DEVELOPMENT.
Objective 2.1: Encourage developers to invest in existing Varina neighborhoods, especially those experiencing
disinvestment and population loss.
Strategy: Investigate tax increment financing.
What? Tax increment financing is a planning tool used to subsidize private sector redevelopment, infill, and infrastructure
development in disinvested neighborhoods. Tax increment financing subsidizes current improvements to a neighborhood with
the expectation that the resulting improvements will generate revenue.
Why? In the Varina district, several
neighborhoods are experiencing
population loss and increased vacancy
rates. Tax increment financing could
stimulate the private real estate
market. Reinvestment in these
neighborhoods would improve them
and reduce need for construction of
new homes in less-developed areas.
This in turn could also lead to less
consumption of agricultural (A-1)
land.
Implementation: The Henrico
County Planning Department can
investigate the potential for using tax
increment financing on disinvested
neighborhoods. Many of these
neighborhoods and commercial areas
are located in the northwest portion of
the district. The Highland Spring
subdivision is an example of a
potential candidate for use of this
tool.
47

Objective 2.2 Investigate potential areas for reinvestment and revitalization.
Strategy: Complete studies on potential areas for reinvestment and revitalization.
What? Chapter 7 of the 2026 Comprehensive Plan identifies five areas in Varina slated for reinvestment and redevelopment
studies.
Why? These areas are defined by the Henrico County community and administration as valuable areas for reinvestment. The
Henrico County Planning Department intends to have these studies completed. However, due to resource limitations, none of
the Varina focus area plans have been completed. The student plan can serve as a powerful source of data and
recommendations for these study areas.
Implementation: The VCU Master of Urban and Regional Planning Department can encourage students to complete these
projects as part of the Studio II project requirement. The Henrico County Planning Department or Partnership for Smarter
Growth may serve as the client to the student. The areas are Nine Mile Road Corridor, Williamsburg Road Corridor, Sandston
Commercial Area, Rockett’s Landing, and South Laburnum.
48

The revitalization/reinvestment
opportunity areas in the Varina District
are labeled 25-29 and highlighted in
brown.
Source: Henrico County Planning Department - 2026 Comprehensive Plan
49

GOAL 3. MAINTAIN RURAL AND NATURAL LANDSCAPE WHERE DESIRABLE.
Objective 3.1: Encourage the use of conservation easements on prime agricultural land.
Strategy: The client will engage the Varina community to participate in land conservation easements to maintain productive
farmland.
What? A conservation easement is a voluntary agreement by a landowner to place restrictions on development in the land
deed. The agreement generally takes place between the property owner and a government agency or a land trust.
Conservation easements can prohibit various types of development, such as industrial, agricultural, and commercial. Land
conservation easements are generally used to protect land valued by a property owner or a community, such as agricultural
land, historical sites, open space, and forestry.
To encourage private property owners to place conservation easements on their land, the Commonwealth of Virginia allows for
financial benefits for the land owner, such as a Virginia state income tax credit. Land owners can receive other tax benefits,
such as federal income tax deduction and estate tax deduction.
Why? The Varina community and stakeholders have identified that the agricultural, rural, open space, and forest lands are
valuable intrinsically and aesthetically. Conservation easements incentivize land owners to conserve their own land for the
benefit of the community. The 2026 Comprehensive Plan also identifies conservation and open space easements as a positive
tool for the conservation of open space.
Implementation: Partnership for Smarter Growth can create an educational initiative that engages Varina residents regarding
the benefits and of conservation easements for preserving agricultural land, open space, and natural lands.
50

Objective 3.2: Investigate potential for use of Agricultural and Forestal Districts.
Strategy: Survey Varina landowners and stakeholders regarding interest in voluntary participation in an Agricultural and
Forestal district (AFD).
What? The Code of Virginia enables municipalities to create AFDs via the Agricultural and Forestal Districts Act. Though not
part of the zoning ordinance, these land designations can serve as guidance for land use decisions. They are generally used to
protect productive farmland and natural areas from development. The AFDs are a voluntary agreement between landowners
and the local government. These AFDs are to be a minimum of 200 acres and must be approved by the Henrico County Board
of Supervisors. The protect lasts up to 10 years and may be renewed at the end of each term. This tool has been used by
several other growing Virginia counties, such as Loudoun County and Fairfax County. Information regarding their AFDs is
provided in the Appendix.
Why? Conservation of agricultural and forest area is a clearly a priority for residents of Varina. AFDs are voluntary protection
of these lands and require petitioning by the Varina district residents. AFDs provide benefits to landowners, such as protection
from intrusive development and infrastructure expansion. AFDs enable landowners whose property is located within the district
to apply for withdrawal from the district.
Implementation: Partnership for Smarter Growth should engage the Henrico County Planning Department to hold a “Town
Hall” style meeting for Varina residents to be educated about AFDs. This meeting could be used to survey feasibility of
implementing AFDs in the Varina District.
51

Objective 3.3: Investigate rural corridors that are facing an increased amount of development.
Strategy: Complete existing character protection area studies for areas in Varina.
What? Chapter 7 of Henrico County’s 2026 Comprehensive Plan lists four areas in Varina as “existing character protection
areas.” These areas are Marion Hill, the James River Corridor-East, Osborne Turnpike Corridor, and New Market Road Corridor.
Why? These areas are identified to be aesthetically important to the Henrico County community, yet are generally facing some
level of development. The Henrico County Planning Department intends to have these studies completed. However, due to
resource limitations, none of the Varina focus area plans have been completed. The student plan can serve as a powerful source
of data and recommendations for these study areas.
Implementation: The VCU Master of Urban and Regional Planning Department can encourage students to complete these
projects as part of the Studio II project requirement. The Henrico County Planning Department or Partnership for Smarter
Growth may serve as the client to the student. The student plan can serve as a powerful source of data and recommendations
for these study areas. These study areas are Marion Hill, the James River Corridor-East, Osborne Turnpike Corridor, and New
Market Road Corridor.
52

The Varina existing character
protection areas are labeled
2-4 and all located in the
southeast portion of the
district.
Source: Henrico County Planning Department - 2026 Comprehensive Plan
Source: Henrico County Planning Department - 2026 Comprehensive Plan
53

CONCLUSION
The goals, objectives, and strategies of this Varina District Growth Plan are all recommendations for ways to achieve a
preferable scenario of growth. This scenario of growth is one in which less total agricultural and rural land is consumed by nonrural
development. A logical method for achieving this with inevitable population growth is to encourage developers to create
developments at a higher density. This scenario is also preferable because it directs growth towards areas with existing
development and existing road, water, and sewer infrastructure. This is preferable because development that sprawls into
agricultural land and is disconnected from infrastructure may disrupt the traditional rural character. In general, many of the
suggestions recommended in this plan are more prolific and accessible tools for municipalities in the Commonwealth of Virginia.
As the growth and development issues of metropolitan areas escalate, it is likely that entities of the public and private sectors
will devise more efficient and amicable tools for utilizing growth in a manner that is beneficial to both the locality and the
region. The Henrico County community will
find it beneficial to use both old and new
growth tools for guiding development in the
Varina district.
54

REFERENCES
Albrecht, Don E. and H. Reed Geersten. 1982. Population growth in rural communities: Residents’ perceptions of its
consequences. Community Development Society Journal. 13(2): 75-90.
http://www.tandfonline.com/doi/abs/10.1080/15575330.1982.9987152.
American Planning Association (APA). 2002. Policy Guide on Smart Growth.
http://www.planning.org/policy/guides/adopted/smartgrowth.htm.
American Planning Assocation (APA). 2011. Managing Growth and Development in Virginia: A Review of Tools Available to
Localities. Updated October 2011. http://apavirginia.org/documents/legislation/Toolbox.pdf.
Baltimore County Planning Department. 2011. 2020 Master Plan. Updated August 8, 2011.
http://www.baltimorecountymd.gov/Agencies/planning/masterplanning/masterplan2020.html.
Chesterfield County Planning Department. 2003. The Southern and Western Area Plan. Updated November 12, 2003.
H&A Architects & Engineers. 2010. Innsbrooke next Land use study for tomorrow.
http://www.innsbrook.com/files/next/innsbrook_next_masterplan_5.pdf.
Hamin, Elizabeth, Margaret Ounsworth Steere, and Wendy Sweetser. 2006. Implementing Growth Management: The
Community Preservation Act. Journal of Planning Education and Research. 26: pp. 53 - 65.
Henrico County Planning Department. 2009. 2026 Comprehensive Plan. Updated August 12, 2009.
http://www.co.henrico.va.us/planning/projects/2026-comprehensive-plan/index.html.
Henrico County Department of Planning. 2010. Innsbrooke Area Study: Special Focus Area.
http://randolph.co.henrico.va.us/planning/specialproj/innsbrook/approved-innsbrook-study.pdf.
55

Humphreys, Seth D. 2005. Central Varina Small Area Land Use Plan.
http://www.has.vcu.edu/usp/MURP/projects762/S05_SHumphreys_Central_Varina_LUP.pdf.
Kempf, Philip S. 2008. A Transfer of Development Rights Plan for Nelson County Virginia.
http://www.has.vcu.edu/usp/MURP/projects762/S08/S08_PKempf_Transfer_Development_Rights_Nelson_Co.pdf.
Mishkovsky, Nadedja et al. 2010. Putting Smart Growth to Work in Rural Communities. IMCA.
http://icma.org/en/icma/knowledge_network/documents/kn/Document/301483/Putting_Smart_Growth_to_Work_in_Rur
al_Communities.
Partnership for Smarter Growth (PSG). 2011. http://www.psgrichmond.org.
Zirkle, Mary A. 2003. Build-Out Analysis in GIS as a Planning Tool With a Demonstration for Roanoke County, Virginia. Virginia
Poly Tech Institute and State University.
56

APPENDIX
HYDROLOGY, FORESTED, ENVIRONMENTALLY SENSITIVE AREAS, AND NATURAL CONSTRAINTS
The zoning ordinance accounts for wetlands with its conservation district zoning. Other county ordinances allow for
development around wetlands and the floodplain. The 2026 Land Use Plan also designates specific areas to avoid development
near wetlands and the floodplain. The lacustrine areas displayed below are bodies of surface water, such as lakes, and the
riverine areas are river channels. The palustrine area is defined as marsh or swamp wetlands. The upland areas represent
developable land.
Forested areas are considered an
asset by the Varina community
because they are an aesthetic
feature, a noise buffer and a
refuge for wildlife. Ideally,
development should avoid
encroaching upon continuous
forest cover. There is very little
continuous forest cover in the
northwest portions of the district.
57

Condensed Zoning Proportions of the Varina District
58

Agricultural and Forestal Districts
Loudoun County Districts and Stipulations
59