# General plan documents — chesapeake-virginia Assembled by OpenPublica from the documents it serves for this government. Each section below is a separate publication by the government; page anchors (``) refer to pages of that section's own source PDF, linked in its heading. **Contains 3 documents.** OpenPublica has pinned these slots for this government: connectivity_infrastructure, conservation, economic_development, general_plan_existing_conditions, general_plan_implementation, general_plan_introduction, growth_management, housing, land_use, quality_of_life, urban_design. That is what we have looked for, not a statement that the government publishes nothing else — a plan element absent here may simply not have been reviewed yet. Last reviewed 2026-08-24. --- ## Land Use — Ch. 3, Character Districts - Source: https://www.cityofchesapeake.net/DocumentCenter/View/33159/Ch-3-Character-Districts_LowRes - Pages: 36 - Covers: land_use <
> # Character Districts # Character Districts Many comprehensive plans use a traditional land use plan to designate appropriate uses (e.g., residential, commercial, office, and industrial) in different areas of the city. However, more modern planning practice recognizes that **it’s not just the use that makes a place, but the way it fits in with its surroundings through its streets, open space, connectivity, and more.** Character districts are the City’s updated approach to planning, replacing the traditional land use plan. The 11 character districts are described in detail on the following pages and make up the bulk of this chapter. ## Complete Communities Rather than focusing on specific land uses, character districts focus on the outcomes and attributes of **complete communities**. They aim to create a place built on how it is experienced and the types of people who will be there. Uses are still a consideration, and are often described as uses typically seen, seen occasionally, and seen under special circumstances; however, there is much more flexibility in what is allowed in each district. For example, the Low-scale Neighborhood Character District mostly includes single-family residential, but it may also include some small-scale neighborhood commercial uses if they are in an appropriate location (such as on a street with higher traffic, room for parking, etc.). <
> # Character Districts ## – COMPLETE COMMUNITIES, DEFINED – Communities that provide employment, housing, recreation, and businesses for its residents with a mix of land uses to accommodate a variety of housing types and support equity and affordability. There is also a focus on other aspects of the built environment, such as stormwater management (described through best management practices, or BMPs), tree canopy, and the streetscape. While complete communities support mixed-use development, it’s important to know that this doesn’t mean every complete community should look like a pedestrian-oriented, urban block with a main street and apartments over bars and restaurants. It can also look like (and may often look like) single-family neighborhoods with parks and schools interspersed and a restaurant and pharmacy at the corner of two larger roads. In rural Chesapeake it will look like a lot of farmland, where some residents work, and important community fixtures (such as churches) and farm supply within a short drive. **GEN 3:** *Create "Complete Communities" throughout the City, focusing on maintaining the unique characteristics of each place.* <
> ## How to Use Character Districts Character districts are just one policy of many in Chesapeake 2045. It is only one aspect of the plan that City staff and Planning Commission use to make recommendations and City Council uses to make decisions on land use applications. Character districts are a tool for residents and developers to understand the typical elements expected in a community. Project managers will need to consider the broader context of the district and not just the parcels they are developing or redeveloping. ## Conservation and Environmentally Sensitive Overlay Districts The Conservation District aims to protect Chesapeake’s biodiversity, environmental services, and ecosystem connectivity. Lands identified for this district must be protected and should remain undeveloped. This is a unique character district in that its boundaries are formed based on data, including land zoned for conservation, wetland mitigation sites, and land designated by the Virginia Department of Conservation and Recreation as outstanding and very high-quality Ecological Cores and Natural Land Network corridors. The Environmentally Sensitive Overlay District is related to, but different from, the character districts. This overlay district occurs in addition to the recommended character district and provides an additional layer of policy to be considered. It identifies lands that either contain important environmental resources that should be protected or where potential hazards should be avoided to protect # Environmentally Sensitive Overlay Map <
> ### Environmentally Sensitive Overlay The Environmentally Sensitive Overlay identifies lands vulnerable to flooding or disturbance. Tailored mitigation strategies based on these features complement land in the Conservation Character District, which prohibits discretionary development. | | | | :--- | :--- | | Environmentally Sensitive Overlay | Major Roads | | Conservation Character District | Great Dismal Swamp | | | Water Bodies | future users and buildings. These areas may <
> be developed if concerns are appropriately managed, but some land in this district may be best left undeveloped. ## Character Districts and Overlay Districts .................................................. It’s important to remember that character districts will not look the same across the entire City. ### Even something that seems as simple as a Low-scale Neighborhood will develop differently depending on where it’s located. The gridded streets and narrower lots of South Norfolk (in the Urban Overlay District) are primarily single-family homes, and yet, look nothing like the cul-de-sacs and sprawling yards found in parts of Great Bridge (Suburban Overlay District) that are also primarily single- family homes. To help bridge the gap between the different landscapes across the City, the overlay district development patterns and character district policies should be considered in concert with one another to truly understand the appropriate character and opportunity. ## Character Districts and Small Area Plans .................................................. Character districts, like Chesapeake 2045 as a whole, take a high-level view of the City. By their nature, small area plans cover a specific part of the City and in much greater detail. Thus, while we expect there to be general agreement between small area plans and the character districts (or a reasoned discussion in the small area plan as to why there is not agreement), small area plans take precedence where there is a detailed recommendation and should be considered the “stronger” policy. # Character Districts Map and Descriptions <
> ### Character Districts 2045 Character Districts describe different types of "Complete Communities" in the City. Complete communities provide employment, housing, recreation, and businesses for residents with a mix of land uses and a variety of housing types. Particularly, Character Districts highlight the envisioned mix of uses, open space, amenities, and street network and mobility across the City. Revised 5/19/2026 | Character Districts | | | :--- | :--- | | | Community/Regional Commercial | | | Conservation | | | Employment Center | | | Fentress | | | Low-scale Neighborhood | | | Mid-scale Neighborhood | | | Neighborhood Center | | | Production and Processing | | | Regional Park | | | Rural Area | | | Urban Mixed-Use | | | Roads | | | Great Dismal Swamp | | | Water Bodies | # Character Districts <
> # LOW-SCALE NEIGHBORHOOD Low-scale Neighborhoods are the most common character district in Chesapeake. They are mostly single-family detached homes with townhomes and small multifamily buildings along key roadways. Schools, places of worship, civic buildings, and small-scale neighborhood commercial can be found in these areas. ### Uses * Mostly single-family residential with some accessory dwelling units and duplexes where appropriate. * Townhomes and some small multifamily buildings, typically between one and three stories, may be found along key roadways. * Schools, places of worship, civic buildings, and small-scale neighborhood commercial may be found in these areas. ### Distance to other uses * Typically located within 1.5 miles of a Neighborhood Center, Community/ Regional Commercial, or Urban Mixed-use District. ### Activation * Primarily activated during morning and evening hours. * Activation may be extended with community spaces and commercial uses. ### User * Primarily experienced by local residents. * Few, if any, amenities draw members outside the local community. ### District Compatibility * Low-scale Neighborhoods are well-buffered from Production and Processing and Employment Center Districts. ### Access and Experience * District is primarily accessed via automobile. * District can be comfortably experienced via walking, cycling, and driving, although commercial may be somewhat far from individual residences for walking. ### Street Network * Street network may include curving or meandering streets depending on location in the City, but cul-de-sacs are limited. * The street network includes multiple entry and exit points maximized to connect to surrounding districts and neighborhoods. ### Public Transportation * Public transportation service may be limited. Stops are likely located along key roadways. ### Open Space and Amenities * Open space is primarily found in the form of private yards. ### Travel to Other Open Space * Common areas, small parks, and natural open spaces with trees should be within a half-mile of every residence and safely accessible by walking or bicycling. ### Changes in Scale * Larger planned communities include usable open space with amenities such as pools, playgrounds, courts, etc. <
> ### Open Space Over Time * Larger parks may be needed as incremental development occurs. ### Streetscape * Sidewalks are located on both sides of the street throughout communities with a planted verge between the sidewalk and edge of curb. * Bike facilities are included on key roadways. ### Tree Canopy * Tree canopy is supported through street trees and other public planting areas (e.g., small parks, etc.). * Individual lots should maintain required tree canopy. <
> ### Stormwater * BMPs are typically found as retention ponds that, when possible, are incorporated into communities and act as an open space feature and amenity. <
> # MID-SCALE NEIGHBORHOOD While in many ways similar to the Low-scale Neighborhood, the balance of residential types in the Mid-scale Neighborhood shifts. There will be mostly townhomes and small multifamily buildings with some single-family detached homes. Schools, places of worship, civic buildings, and small-scale neighborhood commercial may be found here. <
> ### Uses * Mostly townhomes and multifamily buildings, up to four stories. * Some mixed-use buildings, up to six stories, may be appropriate along key roadways. * Some single-family detached, particularly in a more densely arranged layout, may be appropriate. * Schools, places of worship, civic buildings, and small-scale neighborhood commercial may be found in these areas. ### Distance to other uses * Typically located within one mile of a Neighborhood Center, Community/Regional Commercial, or Urban Mixed-use District. ### Activation * Primarily activated during morning and evening hours; activation may be extended with community spaces and commercial uses. # Character Districts Waterfront condominiums. <
> ### User * Primarily experienced by local residents. * Few, if any, amenities draw members outside the local community. ### District Compatibility * Mid-scale Neighborhoods are well-buffered from Production and Processing and Employment Center Districts. ### Access and Experience * District is primarily accessed via automobile. * District can be comfortably experienced via walking, cycling, and driving, and residences are proximate to commercial uses. ### Street Network * Street network is well-connected with shorter blocks and higher intersection density to slow down motorists, prioritize pedestrians, and maximize connections to surrounding districts and neighborhoods. ### Public Transportation * Public transportation service may be limited. Stops are typically located along key roadways. ### Open Space and Amenities * The majority of open space is provided in the form of smaller common spaces such as parks, courtyards, accessible rooftops, community clubhouses, natural spaces with trees, etc. ### Travel to Other Open Space * Common areas, small parks, and natural open spaces with trees should be within a half-mile of every residence and safely accessible by walking or bicycling. Character Districts ### Changes in Scale * Larger planned communities include usable open space that includes amenities such as pools, playgrounds, athletic courts, etc. ### Open Space Over Time * Larger parks may be needed as incremental development occurs. ### Streetscape * Sidewalks are located on both sides of the street throughout communities with a planted verge between the sidewalk and edge of curb. * Bike facilities are included on key roadways. ### Tree Canopy * Tree canopy is supported through street trees and other public planting areas (small parks, etc.). * Individual lots should maintain required tree canopy. ### Stormwater * BMPs are typically found as retention ponds that, when possible, are incorporated into communities and act as an open space feature and amenity. <
> # NEIGHBORHOOD CENTER <
> Neighborhood Centers are areas of the City where the development pattern is walkable, with a mix of uses, including small-scale retail, restaurants, personal services, offices, City services, and residential on upper floors. They look different across the City but are relatively small and contain a tight cluster of uses that serve local residents. ### Uses * Typically include small-scale retail, restaurants, personal services, institutional uses, and offices. Residential is primarily found as small-scale upper floor multifamily in mixed-use buildings. * Some mid-scale commercial centers may be appropriate with proper site design. * A limited number of auto-supported uses (car washes, drive-thrus, oil change facilities, etc.) may be located on higher-volume, higher-speed roads in the district with proper site design. # Character Districts ### Distance to other uses * Neighborhood Centers are easily accessible to Low-scale and Mid-scale Neighborhood districts. ### Activation * Primarily activated throughout the day and into the evening hours. * Additional activation may occur with upper floor multifamily residential. ### User * Primarily experienced by local residents within walking, bicycling or short drive (under 10 minutes); encourages neighborhood-centered economic activity. ### District Compatibility * Neighborhood Centers are typically surrounded by Low- or Mid-scale Neighborhoods. ### Access and Experience * Neighborhood Centers are directly accessible from nearby neighborhoods through walking, biking, automobile, and public transit. * District is most comfortably experienced via walking and cycling. ### Street Network * Street network is well-connected with shorter blocks and higher intersection density to slow down motorists, prioritize pedestrians, and maximize connections to surrounding districts and neighborhoods. <
> ### Public Transportation * Public transportation infrastructure and stops should be located along key roadways, particularly where convenient to population centers. ### Open Space and Amenities * This district provides numerous improved small open space areas in the form of pocket parks, plazas, patios, outdoor dining areas, etc. ### Changes in Scale * Larger Neighborhood Centers have a greater need to establish unique public spaces to encourage visitors to stay longer in the area. ### Streetscape * Sidewalks are located on both sides of the street with a planted verge between the sidewalk and edge of curb. * Bike facilities are included on key roadways. * Streetscape amenities are included. ### Tree Canopy * Tree canopy is primarily supported through street trees and other public planting areas and required private landscaped areas (small parks, open space maintained in developments, etc.). ### Stormwater * BMPs minimize land area in order to maintain an urban fabric. Underground water storage and treatment trains should be considered. *This graphic illustrates what new neighborhood center development might look like.* <
> # URBAN MIXED-USE Urban Mixed-Use is a designation used sparingly; it is reserved for areas of the City that are primed for increased population and activity. Because it is not used frequently, it is critical that these areas are developed with the appropriate density and intensity of use. This district is mostly mid- to high-rise mixed-use buildings, where the ground floor is a commercial, civic, or cultural use. ### Uses * Mostly vertical mixed-use mid- (4-9 stories) to high-rise (10+ stories) buildings with ground floor being non-residential uses. * Mid- to high-rise non-residential structures are appropriate. * Some mid- to high-rise residential structures are appropriate if near other non-residential uses. * Special or entertainment uses may be appropriate in this district. ### Distance to other uses * Typically located within one mile of Community/Regional Commercial or Neighborhood Center. <
> ### Activation * District is activated all hours of the day. ### User * Experienced by residents, patrons, and employees alike. * Some commercial may serve local residents, and other may be a regional draw. ### District Compatibility * District is compatible with other dense or employee-driven districts; low-scale residential is far enough away to allow for adequate buffering for transition between districts. ### Access and Experience * Public transportation and pedestrian and active transportation are prioritized, and is the most comfortable way to experience this district. * District can be accessed via all modes of transportation due to surrounding arterial roads. ### Street Network * Street network is well-connected with high intersection density and encourages safe interactions among vehicles and pedestrians and cyclists. * Street network gives preference to pedestrians and cyclists. ### Public Transportation * Public transportation options are prioritized in this district and have frequent stops and infrastructure such as enhanced bus shelters, benches, kiosks, etc., to support ridership. ### Open Space and Amenities * Pocket parks, pedestrian plazas, and other urban open spaces are found throughout the district. * Open space amenities may be incorporated vertically at multiple buildable levels and stories. <
> ### Travel to Other Open Space * This district should be in close proximity to large open spaces and accessible by means other than a private vehicle. ### Open Space Over Time * As Urban Mixed-Use areas grow, there is greater need to establish public spaces to encourage visitors to stay longer in the area. ### Streetscape * Sidewalks are located on both sides of the street. * Ample pedestrian and bicycle infrastructure is available throughout communities with street trees or urban landscaping. * Street furniture is placed throughout the district. ### Tree Canopy * Tree canopy is primarily supported through street trees and other public planting areas (e.g., small parks, open space maintained in developments, etc.). ### Stormwater * BMPs minimize land area in order to maintain an urban fabric. Underground water storage and treatment trains should be considered. <
> <
> # COMMUNITY/REGIONAL COMMERCIAL Community or Regional Commercial is comprised of shopping centers and strip malls that most people think of as commercial areas with mid-scale and big-box stores. Whether “community” or “regional” depends on the stores located there and other nearby uses that may draw customers from farther away. ### Uses * Mostly mid-scale and big-box commercial with a mix of businesses that provide access to goods, services, dining, and entertainment. * Some multifamily may be located here provided it preserves visibility and frontage for commercial. * Some production and processing uses may be allowed with proper site design. <
> * Regional Commercial centers are based on location and synergy with other uses that create draw outside of Chesapeake; physical characteristics are quite similar. * Regional Commercial has easy access to highways with high visibility. ### Activation * Primarily activated during the day and early evening. * Additional activation can occur with greater focus on uses that extend hours of operation, e.g., restaurants, bars, and entertainment venues. ### User * Experienced by a wide range of residents and visitors, including those outside the City (Regional Commercial). ### District Compatibility * District is typically surrounded by Mid-scale Neighborhood, Employment Centers, and Production and Processing. * Smaller Community Commercial districts can be compatible with Low-scale Neighborhood and can act as a buffer between incompatible districts. ### Access and Experience * Key roadways provide for all forms of transportation including public transportation, walking, and biking. ### Street Network * Street network is well-connected and uses principles of good access-management, including controlled intersections with few curb cuts and robust internal network within and between sites. <
> Character Districts <
> ### Public Transportation * Public transportation infrastructure and stops should be located along key roadways. ### Open Space and Amenities * Usable open space, with space for patios, outdoor eating, courtyards, green gathering areas, etc., is found throughout the district. ### Changes in Scale * Larger Community/Regional Commercial developments have a greater need to establish unique public spaces to encourage visitors to stay longer in the area. ### Streetscape * Sidewalks are provided throughout the internal network of the sites as well as along the perimeter. * Off-street pedestrian or bike facilities should lead into sites. ### Tree Canopy * Connected greenways, landscaped parking lot islands, and tree preservation areas all assist in providing tree canopy. ### Stormwater * BMPs are typically found as retention ponds that, when possible, are integrated into customer outdoor space. # EMPLOYMENT CENTER Employment Centers contain many workers in a large, often campus-like setting. They are unique uses that include hospitals, municipal centers, colleges and universities, corporate parks, military bases, and others where there are typically multiple connected buildings. <
> ### Uses * Large-scale Employment Centers in health care, office, research, education, government, industrial, or similar uses. * Low-rise, mid-rise, and high-rise buildings may be found depending on use, location, and proper site design. * Some supporting retail, restaurants, hotel, and personal services may be located here for area workers. * Clustering of similar industries and supporting uses is encouraged. ### Activation * Many employment center uses are 24-hour facilities with large surges of traffic at shift changes. * Additional activation may occur with supporting retail, hotels, restaurants, etc. ### User * Primarily experienced by employees and customers (e.g., hospital staff and patients). Character Districts <
> ### District Compatibility * Uses in this district may require additional mitigation measures such as buffers, screening, and noise mitigation to ensure compatibility with adjacent areas. * Impacts such as odor, noise, lighting, and vibration are addressed through proper mitigation. ### Access and Experience * District is accessible by car, bicycle, walking, and public transportation. * Employment Centers are priority locations for public transportation connections. * Within the Employment Center, district can be most comfortably experienced via biking and walking, although, depending on size, internal circulation may be necessary. ### Street Network * District is located along key roadways, but has a robust interior street network that provides for walking and biking in addition to automobiles. ### Public Transportation * Includes public transportation infrastructure such as enhanced bus shelters, benches, kiosks, etc., to support ridership. ### Open Space and Amenities * Ample open space opportunities are included throughout the campuses of this district. * May include courtyards, natural areas, and recreational facilities. <
> Character Districts <
> * Greenways and walking paths are found throughout the campus. ### Changes in Scale * Larger Employment Centers focus on enhancing community spaces for center users (e.g., students, employees, etc.) and should consider providing spaces for the broader community. ### Streetscape * Sidewalks are located on both sides of the street. * Ample pedestrian and bicycle facilities are provided. * Street furniture is placed throughout the campus. ### Tree Canopy * Tree canopy is located throughout the campus, including within natural settings and yards. ### Stormwater * BMPs are typically found as a retention ponds that, when possible, act as an open space feature and amenity for employees. # PRODUCTION AND PROCESSING Production and Processing districts include many manufacturing and distribution uses, but also allow for some minor office, retail, restaurants, and other uses to support area works. Clustering of similar industries and uses is encouraged. ### Uses * Includes many industrial and distribution uses. Examples include manufacturing, food and beverage production, data centers, warehousing and fulfillment. * Uses such as storage yards, solid waste management facilities, and other uses with potential intensive land use impacts may be appropriate with adequate mitigation. * Some supporting office, retail, restaurants, mini storage, and personal services may be located here to support area workers. * Clustering of similar industries and supporting uses is encouraged. ### Activation * Primarily activated during business hours, although some 24-hour facilities exist. * Additional activation, if desired, may occur with supporting retail and restaurants. <
> *User* * Primarily experienced by employees. * Most supporting retail, restaurants, etc., are not meant to draw outside users. *District Compatibility* * Uses in this district may require additional mitigation measures such as buffers, screening, and noise mitigation to ensure compatibility with adjacent areas. * Impacts such as odor, noise, lighting, and vibration are addressed through proper mitigation. *Access and Experience* * District is primarily accessed and experienced by driving, but internal circulation for pedestrians should be included. * Typically has nearby access to highway and interstate systems, rail, airport, and/or barge services. *Street Network* * Street network is well-connected and uses principles of good access-management, including controlled intersections with few curb cuts and robust internal network within and between sites. *Public Transportation* * Public transportation infrastructure and stops should be located along key roadways and near large employment areas. <
> An industrial building with a stormwater pond. ### Open Space and Amenities * Individual sites provide space for employees to break and recreate. * These may include picnic areas, walking paths, natural wooded areas, etc. ### Changes in Scale * Larger employment centers focus on enhancing community and open spaces for employees. ### Streetscape * Accommodations are provided for pedestrians and bicyclists including separated sidewalks and paths along the periphery of the development. ### Tree Canopy * Large natural treed areas are included along roadways and within required buffers to screen buildings and parking. ### Stormwater * BMPs are typically found as retention ponds that, when possible, act as an open space feature and amenity for employees. <
> # RURAL AREA <
> Rural Areas are primarily agriculture and supporting uses, and very low-density residential single family that contribute to the preservation of the agriculture industry. Agritourism and ecotourism are also appropriate here, along with some utility-scale solar energy facilities and limited commercial. ### Uses * Predominantly agricultural and supporting uses and very low-density residential single family which may include multi-generational housing opportunities that contribute to the preservation and integration of the agricultural industry. * Agritourism and ecotourism uses are appropriate with consideration for surrounding residential areas. * Some solar energy and battery storage facilities may be appropriate. * Limited commercial clusters are appropriate in locations with key roadway access to support residents. ### Activation * Activated by residences and agriculture during all hours of the day. * Activation may be increased/decreased depending on location of commercial uses or agritourism. # Character Districts ### User * Primarily experienced by local residents and agricultural employees except for agritourism/ecotourism. * Few commercial amenities draw members outside local community. ### District Compatibility * District is well-buffered from dense commercial, residential, and industrial districts. * Compatible with the Conservation Character District. ### Access and Experience * District is primarily accessed via automobile. * District is most comfortably experienced by driving, although some areas may be experienced via recreational bicycling and horseback riding as well. ### Street Network * Street network is organic with low intersection density and constructed to respect natural features and aggregated agricultural land. ### Open Space and Amenities * Open space is primarily found in the form of private yards, active private farming operations, conservation land and other natural areas. ### Travel to Other Open Space * Residents drive to most parks and open space amenities. ### Streetscape * Sidewalks may be appropriate within farming villages or cluster developments. * Multi-use trails are found along key roadways. * Ditches should be sufficiently located away from road pavement. * Consideration is given to agricultural equipment users on roadways. <
> # Character Districts ### Tree Canopy * Tree canopy is primarily maintained on private residences. * Street trees are not prioritized in order to accommodate drainage facilities. * Land conservation efforts protect large, forested areas. ### Stormwater * BMPs, when needed, are typically found as retention ponds that, when possible, are incorporated into communities and act as an open space feature and amenity. <
> # FENTRESS Fentress is a unique character district that is based on policy and zoning put in place to reduce conflicts between Naval Auxiliary Landing Field Fentress and surrounding land. Uses in this district are primarily agriculture and supporting uses, as well as very low-density residential, but can accommodate some industrial and commercial uses. ### Uses * Characterized by predominantly agricultural and supporting uses and very low-density residential that was existing prior to the Fentress Overlay District and supports agricultural uses. * Increased residential density is not supported. * Industrial and commercial uses that are compatible with rural infrastructure and aesthetic and noise levels commonly produced during Fentress operations are appropriate. * Some solar energy and battery storage facilities may be appropriate. ### Distance to other uses * District boundary conforms with adopted noise zones where not Conservation district. ### Activation * Activated by military operations, agriculture, and residences during all hours of the day including nighttime flight activity. <
> # Character Districts ### User * Experienced by both local residents and employees throughout the day and night. * Few uses draw in members outside the community. ### Access and Experience * District is primarily accessed via car. * District is most comfortably experienced by driving, although some areas may be experienced via recreational bicycling and horseback riding as well. ### Street Network * Street network is organic with low intersection density and constructed to respect natural features, aggregated agricultural land, and the Fentress Airfield. ### Open Space and Amenities * Open space is primarily found in the form of private yards, active private farming operations, conservation land and other natural areas. ### Travel to Other Open Space * Residents drive to most parks and open space amenities. ### Streetscape * Sidewalks may be appropriate within farming villages or cluster developments. * Multi-use trails are found along key roadways. * Ditches should be sufficiently located away from road pavement. * Consideration is given to agricultural equipment users on roadways. ### Tree Canopy * Tree canopy is primarily maintained on private residences. * Street trees are not prioritized in order to accommodate drainage facilities. * Land conservation efforts protect large, forested areas. ### Stormwater * BMPs, when needed, are typically found as retention ponds that, when possible, are incorporated into communities and act as an open space feature and amenity. <
> <
> # REGIONAL PARK Regional Parks are special amenities that draw visitors and users from all over. They are often located to take advantage of a natural feature, historic resource, or large acreage. Because they contain extraordinary amenities and have many users, they are programmed for easy access by automobile. ### Uses * Comprised of unique park, community and outdoor resources that draw users farther than local neighborhoods. ### Activation * Primarily activated during daylight hours, particularly on weekends or during special events. * Activation may be extended beyond daylight hours with additional lighting. <
> ### User * Experienced by residents and out-of-City visitors alike. ### District Compatibility * May be found adjacent to any district, taking advantage of unique resources, such as the waterfront, historic value, or large acreage. ### Access and Experience * District is primarily accessed via car, although some will be accessible via public transportation, biking, and walking, depending on their location within the City. ### Open Space and Amenities * Regional Parks may contain a combination of both active and passive recreation spaces, depending on need and location. ### Open Space Over Time * The number or scale of regional parks may need to increase as development occurs. <
> ### Streetscape * Sidewalks, paths, and trails are located in the parks as appropriate. ### Tree Canopy * Existing canopy should be preserved and expanded. <
> # CONSERVATION Chesapeake is home to many natural resources, including wetlands, habitat, and natural areas that buffer and protect the Northwest River, which is a primary drinking water source for Chesapeake. Conservation lands must be protected. With the notable exception of the Great Dismal Swamp National Wildlife Refuge, which has specific publicly accessible areas, most Conversation lands have little public access and are typically left alone. This character district includes lands that are already under protection (by the City, State, Federal government, non-profits, etc.) and those with very high environmental value. <
> ### Uses * Lands that protect Chesapeake’s biodiversity and ecosystem connectivity are appropriate in this district. * Includes State and Federal conservation lands, properties owned by the Nature Conservancy and other nonprofits, land zoned C-1 conservation district, wetland mitigation sites, FEMA buyout properties, backup City water supply parcels, tidal wetlands, and the Intracoastal Waterway. * This character district also includes the outstanding and very high quality Ecological Cores and Natural Land Network corridors as identified by the VA Department of Conservation and Recreation. * Only limited passive and nature-based recreation and access is appropriate on these sites. # Character Districts *Wetlands.* <
> ### Activation * With a few exceptions, district is rarely activated with people. ### User * With a few exceptions, lands are minimally experienced by residents at minor access points. ### District Compatibility * Conservation is well-buffered from Production and Processing districts as well as others that contain potentially hazardous uses. * Contiguous conservation areas are most ecologically beneficial. * District is compatible with the low-intensity uses found in Rural Areas. ### Access and Experience * Unless recreationally accessible by foot, bike, or canoe/kayak, access is primarily by car for maintenance only. ### Tree Canopy * Tree canopy is an important protected resource and considered during any provision of passive recreation. *Great Dismal Swamp Canal.* <
> --- ## Housing — Ch. 8, Housing - Source: https://www.cityofchesapeake.net/DocumentCenter/View/33169/Ch-8-Housing_LowRes - Pages: 25 - Covers: housing <
> # Housing # Introduction The state of housing in the City has implications that ripple out to many other aspects of life. If there is not sufficient workforce housing, businesses may leave because they cannot find employees who are willing to work in lower-wage jobs. If housing is not available or does not meet the standards of today’s families, they may be less attracted to the City and choose to live elsewhere. If housing deteriorates, crime may increase. These all also play into residents’ ability to move easily within the City as their housing needs change. One of the surveys conducted as part of the public engagement process for Chesapeake 2045 asked questions about residents’ ability to downsize (move into smaller housing) or upsize (move into larger housing). This reflects how easily residents can move along the housing continuum. This continuum encompasses a wide range of housing options from homeless to standard market ownership, including market rental, affordable rentals, emergency shelter, etc. Circumstances may move a person up the continuum, such as increased income, completed education, or recovery from addiction. Circumstances may also move a person down the continuum, such as loss of a job or partner, retirement, or illness. Each piece of the continuum has different goals and strategies associated with it. For example, once residents own a market-rate home, strategies should be in place to help ensure homes <
> Housing # DOWNSIZING Respondents were confident that they could downsize to a house somewhere... <
> 15.1% in their neighborhood <
> 43.2% in the entire City of Chesapeake <
> 27.1% in their planning area <
> 69.9% outside of the City of Chesapeake # UPSIZING Respondents were confident that they could upsize to a house somewhere... <
> 35.8% in their neighborhood <
> 63.8% in the entire City of Chesapeake <
> 54% in their planning area <
> 69.9% outside of the City of Chesapeake are maintained in the long run, particularly as residents age. For supportive housing, strategies help provide residents with the structure and treatment they need so that they can eventually move out and support themselves in permanent housing. When one piece of the continuum is invested in, it can free up resources in other parts of the continuum. For instance, increasing market rental availability can facilitate retired homeowners in finding satisfactory rental properties, thereby freeing up the housing market. When affordable home ownership is supported, it creates room for more residents to come off waitlists for affordable rental assistance. The responses to the survey were informative and shown above. Residents are more confident in their ability to upsize in Chesapeake than to downsize if the need arose, especially within their existing neighborhood. However, 69.9% were confident they could downsize outside of the City. This indicates both a lack of diverse, available, affordable housing in neighborhoods, and that # — AFFORDABILITY CONCERNS — “Yes, we wanted to “downsize”, could not find a nice affordable smaller home!” “The cost of housing is out of control for all ages and life stages.” “Affordable housing for working families is a MUST!!!” “The cost of housing is nearly unaffordable for the working class.” “With age comes the need for one story (ranch style) housing. I don’t see that in Chesapeake.” “I’m a disabled veteran working with a fixed income so I’m any truly uncertain about my future.” “Rent is high. Single mom of three just back to work after heart surgery recovery need a 3 bedroom but cannot afford.” “Affordable housing for downsizing families is difficult.” “As a widow I cannot find a simple small home with a small fenced yard. Everything is old and outdated or too expensive.” “I am stuck here. I like my home, but I could not afford to upsize or downsize. Housing choices have become too expensive for me.” residents are not simply without the means to relocate, since the majority believe they could find housing outside of Chesapeake. When asked these same questions about upsizing, there was significant increased confidence across all possible responses in the ability to find upsized housing, with more people asserting that they could find upsized housing more easily than downsized housing in all categories. Open-ended comments further clarify respondent’s feelings on the topic. The City must do more to provide housing options for all residents of Chesapeake. **HOU 1:** *Support a balanced inventory of housing across the housing continuum, reflecting Chesapeake’s differing demographics, where all communities include housing options that are responsive to the needs and desires of residents.* **HOU 2:** *Support efforts to increase homeownership across the City.* # New Housing New housing is the most typical development that occurs in Chesapeake. Chesapeake’s housing stock is primarily made up of: <
> <
> <
> 67.9% of housing is single-family detached homes, 12.2% is townhomes, and 12.9% is 5+ unit multifamily **This is much lower than the regional average for multifamily, which is 18.8%.** The remaining housing is 1.7% mobile homes, and 5.3% multifamily housing with fewer than five units. ### Homeownership Chesapeake has a high homeownership rate at 68.2% (in 2022), particularly compared to the region. Given the City’s high quality of life, there is a demand for housing here. This, coupled with the national housing shortage (read more in the Affordable Housing section), means that new housing often commands a premium price. ### Housing Prices In early 2023, the median sales price of all housing types (single-family detached, townhome, condominium) reached $370,000. Single-family detached houses specifically reached a median price of $400,000 and a mean price of $515,000 city-wide. Prices have escalated quickly in the past few years: in March of 2020 the median sales price of a townhome was $255,000. In March 2023, the median sales price was $399,000. That is an approximate increase of 56.7% in three years. The rental market has a low vacancy rate (4.7% in 2023, just below the ideal rate of 5.0% which allows for easy tenant movement), and the average rent is $1,427 per month. Chesapeake does not produce enough rental units, particularly multifamily, to meet the need. Because there is such a low supply of studio housing, average rent for studio apartments is higher than the overall rental average at $1,718 per month. Similar to the for-sale market, rents have risen significantly, increasing nearly 24% between 2018 and 2023. Low vacancy rates allowed landlords to raise rents; at the same time Chesapeake did not construct enough multifamily to meet increasing demand. ### Housing Size and Type The type of housing being built matters, too. Average home size has increased over one thousand square feet since the 1960s, even as households shrink. What is being built may not be accommodating current or future needs. The average size of a single-family detached house varies in the City; in South Norfolk the average is about 1,500 square feet. In Southern Chesapeake, the average is closer to 2,511. In order to meet the housing demand, Chesapeake will need to both preserve existing housing (see Supporting Existing Housing) and build new housing. However, as Chesapeake’s demographics shift, housing must be built that suits our community. The number of households with only one or two members <
> is growing, as is the senior population. This means there is an increasing demand for smaller housing. These facts beg the question as to why large single-family detached homes continue to dominate the City’s housing stock. Townhouses, multifamily apartments, and condominiums should grow as a share of the **Average Size of Single Family Detached Housing** **By Decade in Chesapeake (Square Feet)** <
> overall housing market. Per the City’s housing report, “Failure to moderate the housing inventory shortfalls and the resulting rent/price escalations may undercut the City’s ability to recruit and retain workers for current and future businesses.” Although the market is the driving force for home building and prices, there is still quite a bit the City can do to promote different types of new housing. ### Lot Size The City should review its Zoning Ordinance for necessary changes to allow for smaller lots sizes in some parts of the City. This will reduce the cost of building, making it easier for developers to build smaller houses and still make a profit. It also provides a desired product that was mentioned several times in community engagement: smaller, detached homes with little yard to maintain. ### Quality As the City promotes smaller and other types of housing, it’s important that it be clear this does not mean poor housing quality. The City should define standards of quality and associated design guidelines that serve as a minimum threshold for quality housing. Note that this does not mean dictating specific designs or architectural styles, or that all material choices are the highest grade. These standards are about ensuring well-built, long-lasting, safe housing for all, regardless of price point. In this same vein, the City should advocate for more energy efficient new construction to maintain housing and affordability in the long-term. ### Accessory Dwelling Units Accessory dwelling units (ADUs) are a proven way to increase housing in a City without taking up large swaths of land. These secondary residential units may be independent dwellings for family members or rented to a tenant. Since they are located on the same property as an existing single-family home, they do not require the construction of new roads or infrastructure, and they add smaller housing that meets an unfilled need. <
> # – ACCESSORY DWELLING UNIT, DEFINED – An independent dwelling unit located on the same property as a single-family home. They may be attached to the single-family home with a separate entrance, or a separate structure. Localities can regulate the location, size, and other characteristics of an ADU. ADUs have the added benefit of supporting intergenerational family living, which may be particularly important to some cultures, as well as families that need to share expenses. According to Pew Research Center, multigenerational living (where the household has two or more adult generations) is rising among all age groups; in 2021, a quarter of U.S. adults aged 25-34 lived in a multigenerational household. ADUs should be allowed in parts of the City where they are compatible and will not generate major traffic or infrastructure impacts. The Zoning Ordinance should be amended to facilitate them. ### Missing Middle Another housing type that the City can facilitate is “missing middle” housing. **Missing middle fills a gap between single-family low-density housing and dense multifamily housing.** It includes duplexes, triplexes, quadplexes, and other medium-density buildings. The City should support this type of housing, <
> particularly as a way to increase variety in individual neighborhoods during redevelopment, and the Zoning Ordinance should be examined for any changes that would facilitate this type of housing. ### Innovation There are innovative ways that other localities have used to promote the production of specific housing types. These “fast track” programs help get housing built and shorten the development review process. For example, pattern books can be adopted by the City for certain housing (e.g., ADUs); if the developer uses a pattern from the book, building plan reviews may be eliminated or shortened. The City should research these programs and consider implementing them to increase housing. Similarly, the City should remain open to innovative solutions from developers that provide housing in a cost-efficient way. As demographics continue to shift and the City takes on new initiatives to support housing construction, it’s important that staff continually assesses production, availability, and affordability and whether it is lining up with residents’ needs so that goals can be adjusted if needed. *HOU 3: Continue to build new housing that will close the gap between housing need and housing availability. New housing must reflect the changing characteristics of the Chesapeake household, particularly in regard to household size, our aging population, affordability concerns, and lifestyle preferences.* *HOU 4: Support housing projects that reflect a shrinking household size and specifically housing designed for 1-2 person households.* *HOU 5: Define flexible standards of quality design and design guidelines as a means of evaluating proposed projects that can be applied to all project types and price points.* *HOU 6: Encourage energy efficient building practices to assist with long-term affordability of housing.* *HOU 7: Review the Zoning Ordinance for amendments that allow for smaller unit and lot size in appropriate zoning districts.* *HOU 8: Support the development of multifamily housing that includes five or more units.* *HOU 9: Amend the Zoning Ordinance to allow accessory dwelling units in appropriate districts.* *HOU 10: Support the development of missing middle housing, and consider Zoning Ordinance amendments that are needed to allow for these housing types.* *HOU 11: Identify and implement tools such as “fast track” programs, including the creation of pattern books, to facilitate the development of missing middle housing, accessory dwelling units, and other housing solutions.* *HOU 12:* Support innovative solutions that provide new housing in a cost-efficient manner. *HOU 13:* Review and report on housing production, affordability, and availability on an annual basis to reassess housing goals over time. *HOU 14:* Implement a process whereby the City reviews properties that may be appropriate for multifamily use and works with property owners for potential rezonings to increase housing opportunities. ## Infill Development “Infill” is the term used to describe development that is located among existing communities, where there are established streets and infrastructure. Infill may be redevelopment (replacing an aging or underperforming building with something new) or greenfield development, where a property is being utilized for the first time. Greenfield development is appealing for — GREENFIELD DEVELOPMENT — Development on land that was previously undeveloped, with no buildings or infrastructure. several reasons. There are typically no known environmental contaminants, minimal under- or above-ground infrastructure to work around, and no existing structures to demolish and haul away. In short, it’s often cheaper and faster to develop on a greenfield. Because of land availability in Chesapeake, greenfield development is often appropriate for certain projects, such as new single-family detached neighborhoods. That said, greenfield development is more likely to lead to sprawl and makes less efficient use of the finite land in the City. On the other hand, **infill development keeps older areas of the City vibrant as housing, retail, and commercial evolve, making sure that residents in established parts of the City have access to the same amenities.** This includes the adaptive reuse of non-residential buildings for residences. Such development should still be sited appropriately and have features that support residences. Brownfields, contaminated or potentially contaminated sites, are another option for redevelopment. These properties, which may currently be a liability, can ultimately be repurposed into a productive use. Although greenfield development may be cheaper from a developer’s perspective, infill development is often more cost-effective for the City. This is because the City is ultimately responsible for maintaining most — WHAT IS THE CHESAPEAKE LAND BANK AUTHORITY? — The Authority was established to help address vacant, abandoned, or tax delinquent properties in the City. It may purchase such properties if it sees a City use for them, if there is a blighted use the City would like to facilitate the removal of, or to make them available to private developers. It also administers grants and works with property owners to help prevent properties from falling into such disrepair that they may become vacant or delinquent. infrastructure, even if a developer pays for the initial installation. A developer may lay pipes or build roads, but doesn't have to maintain them and fix leaks or repair potholes. Development that makes use of existing infrastructure, or requires smaller amounts of it, will usually be fiscally preferable for the City (note that <
> if a redevelopment significantly shifts the type of uses or density it is likely to require infrastructure improvements: a warehouse converting to a residential building will require upgrades to water and sewer, for example). While infill is an important tool for development, and is supported by the City, infill development must be well-planned. Infill may be single parcels, such as a home fitting into the fabric of an existing neighborhood, but the City can also actively advance larger housing projects. This can be facilitated by working with the Land Bank Authority to assemble land that is sufficiently sized for successful, attractive housing developments that include a variety of housing. Most importantly, infill must be compatible with surrounding properties and the character of the neighborhood or area it is located in. Infill should match or complement existing development in design, including size, setbacks, and architectural style. *HOU 15: Support infill development as a key tool for revitalizing distressed and underserved areas across the City, both for residential and commercial.* *HOU 16: Work with developers and the community to design infill projects that are compatible with surrounding properties in terms of size, setbacks, stormwater, utilities, massing, architectural style, etc.* *HOU 17: Encourage the adaptive reuse of existing non-residential buildings for residential use where appropriate.* *HOU 18:* Use land banking and land assemblage as tools to create large enough tracts that thoughtful, attractive, efficient projects can be created. *HOU 19:* Review the Zoning Ordinance for amendments that can be made to support infill development. ### Supporting Existing Housing Maintaining a safe, sanitary, and attractive housing stock is important for protecting existing residents and keeping housing affordable. New housing is often at the forefront of officials’ minds because of the new impacts (good and bad) it creates, but existing housing requires investment and care to help it thrive and keep it from falling into disrepair. This is particularly true for middle neighborhoods. A middle neighborhood typically has older housing stock, and is not declining, but is also not growing and thriving. Chesapeake has many “middle neighborhoods.” They are stable and often hit a sweet spot in terms of building density – individual homes have yards, but neighborhoods are more compact than some of the more modern sprawling suburbs. Changes to the way we live, such as decreased importance on walkable amenities and community needs (e.g., schools), and desire for certain house amenities (such as multiple bathrooms) can make some of these neighborhoods vulnerable to decline. Zoning may not support these neighborhoods, as many were built on lot sizes that are no longer allowed. Strategies must be in place to allow these neighborhoods to survive and evolve as necessary. This may mean reconsidering the <
> proximity of shopping, institutions, parks, and other amenities to those neighborhoods. It also may mean allowing flexibility in the Zoning Ordinance to allow for more home upgrades (such as by reducing setback requirements). Neighborhoods typically have individualized needs and strategies may need to be targeted. While some concerns increase the older homeowners become, and the longer a single owner occupies a home (discussed in more detail in the Senior Housing section), all property owners benefit from these considerations. Many solutions are those that require funding, both through City and non-City resources, to help homeowners, particularly low-income homeowners, maintain their homes. ### Historic Home Maintenance In the South Norfolk Historic District (SNHD), and future districts that may be established, costs to maintain homes can be even higher as homeowners may be required to use certain <
> materials or level of craftsmanship to meet historic design guidelines. For example, some homes in SNHD currently have metal roofs. To replace a metal roof with another metal roof can cost $30-$40 thousand dollars, which may be triple (or more) the cost to replace it with standard asphalt shingles. This issue is a particular one that the City has taken steps to address by establishing a South Norfolk Residential Rehabilitation Grant Program, administered by the Chesapeake Land Bank. This program can be replicated, and other incentives can be explored as well. ### Energy Efficiency Programs One common program that many localities implement is for energy efficiency improvements. As homes age, the structure can deteriorate and become less protective from the elements. For example, aging windows may warp or pull away from their seal, creating gaps for cold or hot air. Additionally, over time new materials and building techniques are discovered that are cheaper, more efficient, and less likely to deteriorate as time passes. There are existing programs that address these in Virginia, such as the Weatherization Assistance Program. The City can help connect residents to these resources and establish a program of its own to make sure resources are available for Chesapeake residents. ### Improved Relationship with the City When it comes to home maintenance, all parties benefit from strong relationships between property owners and City inspectors. Rather than simply being a punitive force that hands out violations, inspectors can help maintain and improve the condition of homes by working with homeowners to identify issues and connect them to resources to help resolve violations. When inspectors can be proactive and a regular face in the community, homeowners also have a connection to the City and can more easily navigate the system when code issues arise. **HOU 20:** *Foster and participate in the preservation of Chesapeake’s established neighborhoods and revitalization where needed.* **HOU 21:** *Identify and conduct an assessment on needs and strategies to support the vitality of middle neighborhoods.* **HOU 22:** *Expand and promote the real estate tax abatement and grant programs to provide additional incentives for low-income homeowners to improve their homes, and encourage adaptive rehabilitation/reuse of historic structures.* **HOU 23:** *Implement an energy efficiency improvement program for existing housing.* **HOU 24:** *Maintain and improve the condition of the existing housing inventory by proactively enforcing zoning and building codes, and if necessary, connect homeowners with available resources to remedy violations.* # Affordable Housing The United States is experiencing an affordability crisis. According to the American Planning Association, between 2008-2018, the nation experienced its lowest construction numbers since 1960, resulting in a national shortage of about 4 million housing units. The effects of this shortage are felt across the country, and Chesapeake is no exception (see the comments in the highlight in this chapter’s introduction). **While Chesapeake has the highest median income in Hampton Roads, 18.1% of the population earns less than $35K, a significant proportion that must be recognized.** ### Income definitions There is a lot of data that breaks down who exactly in the City is struggling, and this data enables us to make targeted changes so that housing is attainable for all. To analyze housing, households are grouped based on their relative Area Median Family Income (AMI), which for Hampton Roads is $106,500 (FY 2025) for a family of four. “Low income” in Hampton Roads for a family of four is $82,500. Often, when residents hear the term “low income” they envision someone who may not be working regularly, or who is a “burden” on other taxpayers through their use of services. In fact, according to the Bureau of Labor Statistics (BLS), the average wage for firefighters in Virgina Beach-Chesapeake- Norfolk-North Carolina statistical area is $57,520; an individual making $59,650 is considered low income. Preschool teachers, making an average of $38,660, hover close to “very low income.” ### Cost-Burdened Residents This plan uses the U.S. Department of Housing and Urban Development (HUD) definition of affordable, which is housing that requires the occupant to spend no more than 30% of their income on housing costs, including utilities. Those spending more than 30% are considered “cost burdened” as they are spending so much on their housing that it undercuts their ability to pay for food, childcare, transportation, and other essentials. Those spending 50% of their income or more are “severely cost burdened.” In 2022, 12,360 out of approximately 93,480 Chesapeake households making the area median income or less were cost burdened; an additional 11,970 were severely cost burdened. These numbers are projected to increase by 2045 to 16,140 cost burdened and 15,990 severely cost burdened households. In — DEFINITION OF AFFORDABLE HOUSING — Housing for which the occupant is paying no more than 30 percent of gross income for housing costs, including utilities. short, many households in Chesapeake are struggling to pay for housing, and if we do not act, the problem will only get worse. ### Existing City Support The City does serve some of those in need. HUD identifies 43 Chesapeake developments with Federal financing for a total of 5,135 units. This includes five public housing developments that have a total of 467 units. Additionally, Chesapeake Redevelopment and Housing Authority (CRHA) operates 228 non-HUD apartments at below-market rents. The waitlist for placement in these developments was opened in early 2025 for the first time ### Income Range Descriptions <
> # Housing <
> since 2021, resulting in over 4,000 applications received in one day. This indicates a continued unmet demand for income-based and below-market rate units. CRHA also provides project-based rental assistance for 90 permanent supportive housing apartments, which combines affordable housing with onsite or nearby support services such as workforce and employment services, independent living skills training, and counseling. Statistics on rental assistance are even more striking. At the end of 2024, CRHA was serving 1,480 households through the Housing Choice Voucher (HCV) program, and an additional 243 households through specialized tenant-based rental assistance programs. The HCV operates by providing direct payments to landlords for the difference between the market rent of a unit and 30% of a voucher holder’s income. Vouchers can be used anywhere that meets safety and sanitary conditions. The need for this program vastly outstrips the available assistance. The waitlist for this program in 2024 was 9,229 households. The waitlist has not been opened since January 2020, except for one special circumstance for those experiencing homelessness. Two of the groups with the greatest need are those who are renting and making less than 50% of AMI that cannot find affordable housing without rental assistance, and those making between 50%-80% of AMI. These groups fall into the “Affordable Housing Rental Gap.” For those making less than 50% of AMI, there is simply not enough rental assistance for all who need it. On the other hand, households earning 50%-80% of AMI make too much money to be eligible for public housing, HCVs, or other financial subsidies, yet they continue to struggle to find affordable housing because of high market rates. This group is often severely cost burdened. They could afford housing produced by Low Income Housing Tax Credit (LIHTC) developments, but currently these are extremely limited. The City must support more LIHTC projects in Chesapeake in order to make sure our residents’ needs are met. Ultimately, creating more attainable housing for Chesapeake residents will likely require more support from the state and federal governments, in the form of rental assistance and incentives for local developments to support affordable housing projects like LIHTC. Affordability is not just an issue of income – there are those with relatively high incomes still struggling to find appropriate housing because the stock is not adequate. According to HUD's Comprehensive Housing Affordability Strategy (CHAS) data, nearly 3,500 households making above AMI are cost burdened or severely cost burdened. Several constraints reduce the availability of affordable housing, including high land and construction costs and high interest rates. While the City cannot directly impact these particular barriers, other factors can be managed. ### Zoning Ordinance Current zoning regulations constrain density (read more about Chesapeake 2045's position on density in the Growth Management and Rural Areas chapter) and limit the housing types allowed in each zoning district. While affordable housing can be built anywhere in the City, restrictions on multifamily, duplexes and other housing types that may be more affordable effectively create the same results (see the New Housing section for more). ### Manufactured Homes Manufactured homes, single-family homes built in a factory and transportable in one or more sections and installed on a permanent <
> chassis, are another housing type that is challenging to build in the City, despite the Commonwealth's recognition that it can be an affordable housing option and should be supported. Manufactured housing has seen significant advances. Many people think of the mobile homes of the 1960s which often had poor construction quality and safety concerns. Today, manufactured homes have improved design and aesthetics, energy efficient systems, and structural integrity that can surpass that of traditional homes. ### Development Review Process Other notable concerns include a lack of incentives for building affordable housing and a development approval process that may include significant uncertainty for affordable projects – these both decrease developer interest in such projects. Part of that uncertainty stems from neighborhood opposition to new development, particularly for certain types of housing. Here, the City will continue to promote education around housing attainment, and the facts and benefits of affordable housing. Residents need to understand what affordable housing is and is not and who the people are who need it. They are our firefighters and preschool teachers. They are the college graduates and vocational workers who are just starting out, that our economy needs so that <
> it can flourish. They are seniors who are on a fixed income, and are looking to downsize. They are people moving along the housing continuum, just like all of us. ### Create Opportunity For Affordable Units The City can encourage affordable housing by working with developers to proffer affordable units; more work needs to be done on incentives that can support this. Additionally, the City can be a leader in providing affordable housing by evaluating City-owned surplus land that may be ideal for such housing projects and proactively rezone it and make it available for developers. Similarly, the City can work with private landowners to determine if there is private land available for affordable housing projects and help them rezone it to the appropriate zoning district to remove one barrier to development. ### Innovative Solutions Affordable housing requires changing the way we currently operate in the residential industry. There are many innovative methods today that help maintain the affordability of units and help homeowners build wealth. For example, Community Land Trusts (CLT) allow homeowners to own a home while the CLT owns the land it sits on. The fact that a homeowner is only paying for the house (and not the land) makes it more affordable. Additionally, the CLT holds it in perpetuity, so when the homeowner sells, they agree to sell the home at a restricted price to keep it affordable. Other tools are financial, such as creating revolving loans and accelerator housing funds. The City should begin exploring these methods, starting with those that have been successful in other localities. ### Transient Leasing Transient leasing, such as with Airbnb, can impact the overall availability of housing stock for permanent residents. In 2023, Chesapeake had approximately 207 units available for transient leasing. They were evenly dispersed across the City. Currently, the City does not allow for short-term rentals where the length of stay is fewer than 30 days other than permitted bed and breakfast establishments. This restriction is generally enforced on a complaint basis due to staffing and logistics required for enforcement. ### Partners All of this work does not happen without partners. Housing is a unique resource that is touched by all levels of government; private <
> developers, realtors, financing agencies; and non-profit organizations. Chesapeake Thrives is a leading partnership of individuals from both public and private sectors that connects residents to resources related to health, housing, poverty, workforce development, and more. The City must continue to encourage and bring these partners together to solve one of today’s most pervasive challenges. The City can support affordable housing in all parts of the Chesapeake, particularly to make sure that low-income populations are not concentrated in one place, but rather dispersed across the City. **HOU 25:** Encourage the construction of affordable housing throughout the City that is consistent with Smart Growth principles and compatible with the surrounding area. **HOU 26:** Allow affordable housing to be built across the entirety of the City, with a special focus on those areas in close proximity to transportation, education, employment, and other services. Affordable housing in the Suburban and Urban Overlay may include a variety of housing types with additional density in key areas and a focus on connections to transit hubs, while accessory dwelling units are the most likely affordable housing type in the Rural Overlay. **HOU 27:** The City will establish and implement initiatives to educate the public, realtors, the housing industry, the financial community and others on the facts and benefits of affordable housing. Housing *HOU 28:* New manufactured housing should be considered as an option for affordable housing. The City shall support new manufactured housing where appropriate. When possible, existing manufactured housing communities should be enhanced and maintained. *HOU 29:* Support the development of housing funded through the Low-Income Housing Tax Credit (LIHTC) Program, which provides long-term, quality, affordable housing. *HOU 30:* Encourage developers of residential and mixed-use projects to provide affordable housing through reductions in cash proffer amounts and other incentives. *HOU 31:* Evaluate City-owned surplus land for any that may be appropriate for affordable housing development. *HOU 32:* Support existing programs and explore additional innovative avenues for funding affordable housing, including housing accelerator funds and revolving loans. *HOU 33:* Explore the use of Community Land Trusts or similar mechanisms to ensure that newly-created for-sale and rental affordable housing units developed with City financial assistance remain affordable for more than 20 years. *HOU 34:* Identify community partners to assist in the development of affordable housing (non-profits, faith-based, local government, real estate professionals, builders, laborers, financial institutions, state and federal agencies, etc.). *HOU 35:* Support the work of Chesapeake Thrives in strengthening linkages and coordination among public and nonprofit agencies that provide affordable housing and supportive services. *HOU 36:* Continue to enforce the prohibition of short-term rentals to reduce housing being diverted to this purpose. *HOU 37:* Ensure housing options are dispersed so that households of all income levels have the opportunity to reside anywhere within the City. # Senior Housing The average age in Chesapeake is 39.0 years old; this is slightly higher than the Hampton Roads average of 37.9. As across the United States, the population is aging (the average age in Chesapeake in 2010 was only 36.9). Residents 55 and over currently make up 29.3% of Chesapeake’s population. In 2045, this group is projected to account for just over a third of the City’s population. The 75-84 and 85+ age brackets in particular are expected to see large increases in population, with the number of residents 75-84 increasing 90.4% and the number of residents 85+ increasing 231.9% between 2022 and 2045. ### Shifting Housing Needs This will significantly shift the housing needs of the City, with an increase in the need for supportive housing, smaller housing with reduced maintenance requirements, and more accessible features such as step-free entries, wider doorways, and single-level houses (known as universal design features). There will also be a need for more long-term care facilities, skilled nursing facilities, and other housing and medical solutions for seniors and those with disabilities. This is an area where there continue to be innovations; unique housing, such as homesharing, where unrelated individuals share a home to reduce housing costs and provide benefits like companionship, is one example. The City should encourage the continual evolution of housing. ### Housing Repair Programs Property, and specifically one’s house, is often the largest investment a resident will have <
> in their life. It may be part their of retirement plan, and a key to living comfortably after they stop working. One of the biggest concerns for property owners is being able to maintain a home in a safe and clean condition, both for property value and financial reasons as well as comfortable everyday living. Properties that have been owned by the same household for many years may have fewer upgrades in terms of energy efficiency, modern building amenities, or universal design features that help residents age in place. Home maintenance becomes increasingly challenging as homeowners age. This is partly due to the physical nature of maintenance. It is also in part due to the cost of replacing and maintaining appliances, roofs, HVAC systems, etc. Data shows that senior households (those with one or more persons age 62 or older) are disproportionately cost burdened compared to other households. <
> Between 2015-2019, 16,390 senior-owner households made below the Area Median Income (AMI), and nearly a quarter of them were severely cost burdened (spending 50% of more on housing). The City can support these property owners by establishing and funding housing programs specifically geared towards assisting senior owners with repairing, modernizing, and improving energy efficiency in their homes. This helps keep the house current, maintain its value, and remove barriers to aging in place so residents can stay there longer. ### Housing Variety Outside of supporting individual homes and owners, the City must think about the location of senior housing relative to needed services, amenities, and community. Housing built in proximity to services reduces the reliance on vehicles or caregivers, and allows seniors to remain independent for longer. Perhaps more importantly, building housing that is suitable for seniors among other homes is critical to creating diverse neighborhoods that allow residents to age in place. Most residents, as they age out of their homes, would prefer to remain close to the community network they have built over time. **When neighborhoods don’t include housing appropriate for seniors, residents may have to move far away and lose the valuable connections that support their mental health and sense of community.** *HOU 38:* Increase the amount of available housing that is designed to address the needs of seniors. *HOU 39:* Encourage the production of a range of housing types for seniors and people with disabilities, such as residential care facilities, independent living, long-term care facilities, and skilled nursing facilities. *HOU 40:* Provide and fund housing rehabilitation programs that assist senior homeowners to repair, modernize, and improve the energy efficiency of their homes, and remove barriers to aging in place. *HOU 41:* Support housing opportunities for seniors and those with disabilities that include universal design features and are in proximity to important services and facilities, which allow residents to remain in their chosen housing into their senior years. *HOU 42:* Support a mix of housing types, including accessory dwelling units, duplexes, townhomes, and single-story detached homes, in neighborhoods to facilitate residents aging in place. # Homelessness and Displacement While Chesapeake is regularly recognized for its high median income and excellent quality of life, there are residents living in extreme opposite circumstances. Every year in the same 24-hour period, a thorough count is undertaken to understand the scope of those living in emergency shelters, transitional housing, and on the streets. It’s important <
> to note that this number cannot account for those living with friends and family in congested housing conditions, or those on the verge of homelessness. The number of homeless people in the City fluctuates every year, though has not substantially increased since 2021, when circumstances began to stabilize from Covid-19. In 2024, there were 162 known homeless persons, 43 of whom were unsheltered. 30 individuals and 2 families were categorized as chronically homeless, meaning they have been homeless with a disabling condition for at least a year, or had four episodes of homelessness in three years (for families, at least one adult member must have a disabling condition). ### Address Root Causes The most important thing is to address the root causes of homelessness by increasing resources and access to things that are important for low-income residents such as transportation, childcare, and workforce development. Creating the circumstances for individuals to afford housing is key. Many of these are addressed in Chesapeake 2045, including affordable housing, access to transportation, and workforce training. ### Supportive Housing It is important to recognize that some percentage of residents need supportive housing, which provides both affordable housing and onsite or nearby services (see more in the Affordable Housing section) and those residents may need it for a long time. The City should support this housing need, as well as emergency housing and other permanent housing. When selecting sites, the City must also consider other needs residents may have, such as proximity to public transportation or City services. ### Evaluate the Need To ensure residents are being served, CRHA will stay in touch with organizations such as CIBH, Human Services, and other non-profit entities to continually evaluate the need for housing for homeless individuals and families. Although federal and state funding exists for supportive and emergency housing, the City may also need to support such projects. ### Displacement Finally, the City and developers must acknowledge that displacement can occur due to redevelopment, which may directly or indirectly lead to homelessness or insufficient housing. Redevelopment typically occurs of low-performing or low-revenue-generating properties, which may mean affordable housing. As redevelopment occurs, developers should work closely with residents to find alternative housing arrangements, either within the new development or elsewhere. *** HOU 43: Address the root causes of homelessness resulting from re-entry, deinstitutionalization, and poverty by supporting workforce training, counseling, access to transportation and affordable childcare, and other strategies to help low-income residents reach self-sufficiency and afford housing. HOU 44: Through Chesapeake Integrated Behavior Healthcare and similar agencies, increase awareness of the housing needs of those requiring community-based settings. Additional consideration should be given to service needs such as proximity to public transportation. HOU 45: Continue to evaluate the need for and increase the supply of emergency housing, permanent housing, and permanent supportive housing for homeless individuals and families. HOU 46: Encourage efforts to support residents facing displacement due to redevelopment initiatives in finding appropriate alternative housing arrangements. Housing --- ## Conservation — Ch. 6, Environment and Resilience - Source: https://www.cityofchesapeake.net/DocumentCenter/View/33173/Ch-6-Environment-and-Resilience_LowRes - Pages: 25 - Covers: conservation <
> # Environment and Resilience Photo Credit: Michele Thompson # Environment and Resilience ## — GREEN SPACE SURVEY — Respondents were asked to select up to three images that best represent the green or open space they are most interested in protecting or creating in the City. The following three images were the top selections. <
> 72.6% <
> 64.5% <
> 56.7% ## Introduction Chesapeake’s natural environment is a point of pride for residents and frequently listed as one of the primary reasons residents moved to and stay in the city. In engagement for the comprehensive plan update, residents stated over and over the need to protect “green space” or “open space”. To get a better understanding of what this meant, staff prepared a survey on the topic. It is clear from the responses, and other community feedback, that most residents prioritize highly natural settings where there are forests, wetlands, and water. 92.0% of respondents also believe that green space should have either full or limited public access, indicating residents also value being able to be in natural settings. This chapter focuses on protecting all the natural things that residents value, such as trees, wildlife, open space, and clean water, while also recognizing that natural hazards must be managed as well. Rivers and creeks that offer opportunities for kayaking and fishing may also flood nearby homes. Residents feel impacts from flooding, sea level rise, and other natural hazards that can be mitigated with appropriate action from the City and property owners. **ENV 1:** Protect, maintain, and improve the quality of the natural environment and increase the opportunities for green infrastructure and nature-based solutions, while also protecting residents and structures from natural hazards. Environment and Resilience # Wetlands and Riparian Buffers Wetlands are perhaps the most important natural ecosystem in this part of the world, particularly in cities. They provide a myriad of ecosystem services. Wetlands provide a home to an incredible variety of plant and animal species. They protect and improve water quality (discussed further in the Water Quality section), and reduce soil and shoreline erosion. Wetlands even act as a carbon “sink,” holding carbon within the soil and plants, and preventing it from being released into the atmosphere, thus helping to mitigate climate change. Many have tried to quantify in dollars the value of the work wetlands do. According to the National Oceanic & Atmospheric Administration (NOAA), coastal wetlands in the United States provide an estimated $23.2 billion just in storm protection. For these reasons, wetlands should be protected to the greatest extent possible. Projects should start from the standpoint that wetlands will not be impacted, and if that is not possible, then project managers must provide sufficient reasoning why the impact is required, and how it will be minimized. The City can also proactively work with environmental organizations to restore or protect wetlands in parts of the City where they are at risk or have been damaged. Riparian vegetation, which grows along the edges of water bodies such as rivers and streams, is often part of the City’s wetlands (though not always), and plays a specific role in shoreline protection and stabilization. This is a particular concern for coastal communities. <
> While there are many engineered solutions for shoreline protection, including riprap and bulkheads (also sometimes called "hardened shorelines"), these solutions can actually harm coastal vegetation. As sea levels rise, wetlands must be able to migrate to higher land and hardened shorelines can create barriers to that natural migration, effectively causing the wetlands to "drown." The Commonwealth considers living shorelines to be the preferred approach for shoreline stabilization and has codified this position through legislation. The City also manages some riparian vegetation through the Commonwealth's Chesapeake Bay Preservation Act (Act). The City established a Chesapeake Bay Preservation Area (CBPA), which includes land close to bodies of water that drain into the Chesapeake Bay. In Chesapeake, this is land primarily along the Southern and Western Branches of the Elizabeth River. The City regulates the impervious surfaces (learn more in the Stormwater Management and Green Infrastructure section) near wetlands or tidal water in the CBPA. The Act also recognizes that some land has seen such concentrated development that little of the natural environment is left in <
> <
> Vegetation in an Intensely Developed Area is regulated differently than other CBPA areas. place to protect; this land is called Intensely Developed Areas and is regulated differently. In Chesapeake, that is primarily land along the industrial waterfront of the Elizabeth River and at the Great Bridge Lock. **ENV 2:** *Protect wetlands in all future development to the maximum extent practicable; developers should provide information on the purpose and need of wetlands impacts, avoidance and minimization measures taken during design to avoid wetland impacts, and what wetland mitigation options are being considered to provide no net loss of wetlands function and value.* **ENV 3:** *Living shorelines are the preferred method for stabilizing eroding shorelines and must be the first design alternative considered for shoreline projects. Project managers should refer to the Comprehensive Coastal Resource Management Guide prepared by the Virginia Institute of Marine Science for further direction on preferred shoreline design.* **ENV 4:** *Protect riparian vegetation, particularly where continuous stretches can be maintained, and preserve natural topography, providing opportunities for vegetation to migrate and adapt landward as sea levels rise.* **ENV 5:** *Partner with non-profit and academic organizations to identify sites where wetlands rehabilitation and restoration are possible.* ## Water Quality and Water Supply Protection Providing clean water is one of the City’s most important responsibilities. The City receives water from several sources, including the Northwest River in Southern Chesapeake. While water is treated prior to dispersal to Chesapeake customers, **protecting the water at the source reduces the need for potentially more complex treatment, and is a more efficient way to provide clean water.** This is in addition to the many environmental benefits of having a clean river. Currently, much of the Northwest River is surrounded by a thick wetlands buffer, which is an excellent filtration system, slowing water to reduce erosion and removing pollutants and debris before it reaches the river. And much of that buffer is zoned for conservation, meaning little to no development can occur there (see map on following page). Further, several large tracts of land are owned by The Nature Conservancy or the Commonwealth of Virginia for the explicit purpose of conserving that land. A water source protection plan is maintained by the Department of Public Utilities, and the City has adopted the Northwest River Watershed Protection District ordinance to regulate uses and activities that may cause contamination. These actions put the City in an excellent position to protect source water, and all speak Environment and Resilience to the importance of protecting the Northwest River. These practices must be maintained and updated as necessary to continue protecting our water supply. Another big concern, particularly for rural residents using well water, is the safety of Chesapeake’s groundwater. While the City operates two treatment plants that ensure water safety across other parts of the City, those on well water pay close attention to the level and quality of their drinking water, particularly as the City continues to develop. Development may change groundwater usage patterns and can limit the ability of runoff to filter into the soil and recharge the — WHAT IS A SOURCE WATER? — Source water is either surface or groundwater that provides water to a public water system for drinking and other purposes. groundwater. Additionally, as sea levels rise, salt water intrusion has the potential to create negative impacts. From a quality standpoint, we are constantly learning and understanding more about potential pollutants. In the past decade, contaminants that were not historically concerning or known to residents have become more widely recognized. For example, perfluoroalkyl and polyfluoroalkyl substances (PFAS) have been shown to have harmful effects on humans and are known to persist in the air, water, groundwater, soil, and more. As we learn about any new contaminants, the City must be proactive to inform residents and work with the Virginia Department of Health to address any future concerns. <
> Comprehensive Plan 2045 | 137 Environment and Resilience <
> **ENV 6:** Protect water bodies that are sources of drinking water from potential contamination. **ENV 7:** Establish and maintain an adequate vegetated buffer around all source waters. **ENV 8:** Maintain a water source protection plan. **ENV 9:** Avoid land uses that can potentially contaminate the City’s source waters. When necessary, these land uses should be placed away from bodies of water and have significant vegetated buffers and other protections. **ENV 10:** Work with the Virginia Department of Health and the Department of Environmental Quality to proactively monitor groundwater and to develop strategies to address concerns. ## Stormwater Management and Green Infrastructure Stormwater is generally defined as rainfall that flows across the ground, picking up dirt, debris, and pollutants, before it runs off into a body of water, or in many cases, a storm drain or ditch that also ultimately leads to a body of water. Many people do not realize that this water receives no treatment before it encounters a river, stream, etc. Water that runs across impervious surfaces (and is not easily absorbed) is more likely to flow quickly and pick up more pollutants than water that hits pervious surfaces (and is easily absorbed). Fast-moving water can also erode land along water bodies, damaging the shoreline and destabilizing the ground around it. When water lands on pervious surfaces, it is absorbed into the ground where it can be filtered and cleaned of pollutants, or if there is too much stormwater to be absorbed, it is slowed and some pollutants are removed as it travels across the soil and vegetation. According to Environment and Resilience the Chesapeake Bay Program, stormwater is the fastest growing source of pollution in the Chesapeake Bay. ### Design Requirements Regulations on stormwater have increased over the years. However, stormwater management is a complex process, and there are many factors that go into designing such facilities. Today, new developments must manage both the quantity (volume of water) and quality (amount of pollutants) of their stormwater, typically on site, using “best management practices” or BMPs. Requirements for removing certain amounts of pollutants are passed on to localities by the Commonwealth and Environmental Protection Agency (EPA). **However, many localities are seeing that rainfall today exceeds the expected amounts set in federal design standards.** <
> — STORMWATER DEFINITIONS — * Impervious Surfaces: Surfaces that water cannot readily soak into, such as asphalt, concrete, roof shingles, and other pavements. * Pervious Surfaces: Surfaces that absorb water quickly, such as wetlands, soil, and vegetated ground cover. For example, stormwater management systems that were designed to accommodate 10-year storms (a storm producing an amount of water statistically seen every ten years) may now be strained as those 10-year storms are occurring every five or two years in some places. This means the stormwater system may not be successfully conveying water more frequently than in the past. Residents often complain that drainage systems are not working as intended, and this may be part of the cause. Federal standards are typically slow to change given the bureaucracy required for adoption. While Chesapeake is participating in conversations with the region and the Virginia Department of Environmental Quality to update standards, like other localities Chesapeake should proactively update local design criteria to reflect the reality of storms we are seeing here today. ### Reduce Impervious Surfaces One of the easiest ways to manage stormwater is to reduce the amount of impervious surface in a development, and replace it with vegetation (or turf, at a minimum). Developers should consider exactly what surfaces are needed to make a project successful during the design process. Even with reduced impervious surfaces, there will always be some stormwater to be managed. Today most stormwater is handled in the form of large retention ponds. While these ponds meet the criteria for stormwater management, they often take up a lot of space and provide no benefits other than holding stormwater, providing water views, and occasionally adding a recreational walking path. Environment and Resilience <
> A bioswale that will catch and treat stormwater in a rain event. ### Green Infrastructure Today, "green infrastructure", a term often used to mean using natural systems to manage stormwater, is gaining in popularity. Green infrastructure, also sometimes called "nature-based solutions", includes treating stormwater with wetlands, rain gardens (plantings specifically engineered to capture stormwater and thrive in various conditions), tree canopy, permeable pavement (pavement which lets water through to the soil for absorption), green roofs, and more. While these methods treat stormwater, they also provide additional benefits, whether it be wildlife and pollinator habitat, cleaner air, or cooler buildings and paved surfaces (depending on the type of green infrastructure). "Treatment trains", where water moves through a system of various stormwater treatment mechanisms, (e.g., water falls onto a green roof, where it runs off in a rain garden, being treated twice) are a more complex, but effective way to manage stormwater, particularly in a smaller space or for more added benefits. It's important to note that green infrastructure and treatment trains can be more expensive and complicated to design and typically require additional maintenance, and all aspects of the system should be considered so that stormwater is effectively cleaned and conveyed. Environment and Resilience <
> ### Regional BMPs In addition to individual on-site stormwater management, many localities also support regional BMPs; these are facilities built with a large capacity to manage stormwater in a defined watershed, rather than requiring individual developments to manage their stormwater needs on site. **Regional BMPs are particularly beneficial in areas where the City promotes denser development and walkable, mixed-use areas, where there is no excess land to devote to BMPs** (although some green infrastructure measures, such as green roofs, may still be effective). This is a strategic decision the City can make, creating the circumstances for specific development patterns to occur. ENV 11: Adopt and follow design standards for drainage facilities that reflect best available science and data, which indicate a need for more stringent requirements based on the impacts of storm events as they presently occur and are expected to occur in the future. ENV 12: During the development review process, limit pavement and other impervious surface that does not serve a necessary purpose in the development. ENV 13: Promote green infrastructure other than stormwater retention ponds as a means of managing stormwater. The larger and more complex a project, the more consideration should be given to treatment trains, wetlands bioretention, and other creative stormwater solutions. ENV 14: Design stormwater management facilities to provide additional benefits beyond stormwater treatment and retention, such as wetlands ecosystems, wildlife habitat and recreation. ENV 15: Encourage piped stormwater management over ditches when reasonable to reduce stormwater maintenance requirements for the City. ENV 16: Identify locations where regional stormwater management facilities are necessary or beneficial and proactively construct those facilities in coordination with developers as feasible. Environment and Resilience # Sea Level Rise and Flooding The City must pay more attention to flooding and sea level rise. Partly due to its vast size, large portions of Chesapeake are located outside of the 100-year floodplain. However, for those who are in the floodplain (and even some who are not, but their daily commute or other activities are), flooding is a recurring nuisance and worry. Flood risk can occur in many forms: tidal flooding, storm surge, excessive rainfall events, nor’easters, and hurricanes all can bring damaging amounts of water to roads, structures, and personal property. The City should incorporate the Hampton Roads Planning District Commission-recommended sea level rise scenarios for planning (see more about how this recommendation was made here). These scenarios use 1992 as the baseline year. <
> *** # — THE 100-YEAR FLOODPLAIN — The area that will be inundated by a flood event having a 1 percent chance of being equaled or exceeded in any given year. It is also known as the Special Flood Hazard Area. Climate change also causes more intense storms, meaning impacts may be greater (and more likely to occur outside of the floodplain). The three highest recorded water levels in the City also correlate to the most insurance claims (see graph on page 144). Those not currently in the floodplain must also pay attention to future sea level rise. Sea level rise is a tidal impact, so any water that is tidally influenced (such as the Northwest and Elizabeth Rivers) will rise. The Virginia Coastal Resilience Master Plan projects that between 2020 and 2080 the number of Hampton Roads buildings exposed to high tide will go from approximately 450 to 24,300 – that is a 5,337% increase around the region. <
> Comprehensive Plan 2045 | 142 Environment and Resilience <
> ### Sea Level Rise Existing and predicted future sea level rise will impact riverine and low-lying properties. Strategies need to be in place to support residents and businesses in these vulnerable areas. * 2018-2050 Sea Level Rise (+1.5 ft) * 2050-2080 Sea Level Rise (+3 ft) * 2080-2100 Sea Level Rise (+4.5 ft) * Major Roads * Great Dismal Swamp * Water Bodies Comprehensive Plan 2045 | 143 Environment and Resilience # FLOOD INSURANCE CLAIMS & MAXIMUM WATER LEVELS *Chesapeake, Virginia* <
> *NAVD stands for North American Vertical Datum. It provides a consistent basis for measuring elevations. Specifically in Chesapeake, the Virginia Department of Conservation and Recreation projects that while approximately 2,700 acres of land were in the 100-year floodplain in 2020, by 2080 that number will triple to 8,100 acres. As sea levels rise, the floodplain will naturally expand. Most flooding and sea level rise impacts will be along bodies of water: on the eastern side of Western Branch, in Southern Chesapeake near the Northwest River, and in South Norfolk, Great Bridge, and Rivercrest along the Southern Branch of the Elizabeth River. It’s important that the City take steps today to mitigate flooding and future sea level rise. The first and easiest step is to prevent new flood exposure by keeping development out of the 100-year floodplain, and to plan with future sea level rise in mind. Staff can consider the projected sea level rise and make decisions about future facilities based on the lifespan and use of the facility. For example, a warehouse that is expected to last twenty years may be safely built in an area where sea level rise is projected by 2050 as it will come to the end of its life cycle before sea level is expected to impact it; however, a hospital, which is critical to the City, that will last over one hundred years should likely stay away from any currently projected sea level rise. The City should be particularly conservative in locating critical infrastructure outside of existing and future floodplain based on projected sea level rise, unless the nature of the infrastructure requires water access or proximity. The City does work around recurrent flooding today, particularly through the Office of Emergency Management (OEM). OEM offers education and assistance to help residents understand their flood risks and how to obtain flood insurance through the National Flood Insurance Program (NFIP). The City, through OEM, also has put in a large amount of work to achieve a Community Rating System Comprehensive Plan 2045 | 144 Class 7 designation, and is currently working towards an even higher rating. The Community Rating System is a tool used by the Federal Emergency Management Agency (FEMA) to reduce flood insurance premiums in a locality based on actions taken by the locality to reduce their flood risk. The programs considers the City's efforts for community engagement and education, regulations, reduction in actual damages, and flood warning and response among other things. **While the City can prevent new flooding problems, we also must mitigate issues in those communities that are already impacted by flooding and sea level rise today.** The Industrial Waterfront Study recommends the creation of Resilient Area Plans – small, neighborhood scale planning efforts that describe localized conditions; where, how, and why impacts occur; community engagement and involvement; and solutions. This should include helping homeowners make their homes more flood-resistant. It also includes participating in buyout programs. Properties purchased this way cannot be developed, but may serve as natural features and provide a place for wetlands to migrate as sea levels rise. “No adverse impact” is a concept that will be critical going forward; that is, making sure that new projects and solutions don't create flooding problems for the property and rights of others. For example, raising a frequently-flooded road is good, but a raised road may create the functions of a levee, and send floodwaters towards homes that were previously not flood-prone. Projects require holistic thinking to make sure potential consequences are fully considered. **ENV 17:** Plan for the following anticipated future sea level rise scenarios as recommended by the Hampton Roads Planning District Commission: • 1.5 feet of SLR for near-term planning, occurring by 2050 • 3.0 feet of SLR for medium-term planning, represented by the timeframe 2050–2080 • 4.5 feet of SLR for long-term planning relevant to timeframes beyond year 2080 **ENV 18:** Direct development towards higher ground to the greatest extent practicable while discouraging development in Special Flood Hazard Areas. No new critical infrastructure should be built where there is an anticipated sea level rise impact that would occur in the lifespan of the facility unless required by the nature of the infrastructure. **ENV 19:** Consider flood risk when reviewing new developments and work with developers to minimize risk. **ENV 20:** Achieve Class 5 in the Community Rating System (CRS), particularly through preserving open space in the floodplain, preserving wetlands, maintaining drainage systems and completing mitigation activities for buildings within the floodplains. **ENV 21:** Work with communities anticipated to be affected by sea level rise to proactively adapt to future conditions through implementation of Resilient Area Plans. **ENV 22:** Develop a program to assist homeowners in flood-prone areas in making their homes more resilient to flooding. **ENV 23:** Utilize a variety of flooding adaptation strategies that are both structural and non-structural and meet the definition of “no adverse impacts”. **ENV 24:** Review and revise as necessary the Floodplain Management section of the City Code to appropriately mitigate flooding risk to citizens. **ENV 25:** Plan future landscaping and other vegetation to reflect anticipated future conditions, particularly in the Special Flood Hazard Area. — **PREPAREDNESS RESOURCES** — Looking to learn more about how to be prepared in the event of a disaster? The City has a webpage full of resources here. Find information on flood insurance, Chesapeake’s alert system, household emergency supply kits, and more. Don’t know your evacuation zone? Find it here. <
> ### Natural and Other Hazards While sea level rise will increase the level of everyday, nuisance flooding, the City also expects to see more intense storms in the future due to climate change. As with flooding and sea level rise, the City must make sure to appropriately plan for that future condition. This means keeping critical infrastructure and facilities out of areas with anticipated storm surge (an abnormal rise in water levels associated with a storm), and designing them to withstand various weather, such as high winds. Chesapeake’s Office of Emergency Management is the primary division responsible for educating and preparing residents for natural disasters and hazardous events. Their work helps residents understand evacuation zones and make disaster supply kits, among other things. Disaster preparedness and recovery does not just include hurricanes and nor’easters. The City participates in a regional hazard mitigation plan (see more here) which covers everything from wildfires to hazardous materials incidents. The City must continue building a Environment and Resilience <
> *A flooded street.* culture of awareness around these potential disasters. Even as Chesapeake 2045 makes the case for increased understanding, planning, and implementation around flooding, sea level rise, and natural disasters, residents must understand that there will be events that the City cannot prevent impacts from. A major hurricane is going to cause flooding and damage, no matter how prepared the City is. Part of the City’s responsibility is being able to respond during and after these events in a way that keeps residents safe, informed, and confident in the future. The City maintains a disaster response and recovery plan for these events, and it’s important the City train to it so that when a disaster occurs, we are prepared. **ENV 26:** New City facilities located outside of storm surge and flood zones should be considered and, if appropriate, designed to serve the community as emergency shelters. **ENV 27:** Protect new and existing public and private infrastructure and facilities from hazards by prioritizing site selection, followed by construction and other protective or mitigation techniques. **ENV 28:** Implement hazard awareness and risk reduction principles into the City’s daily activities and processes to promote life safety during hazardous events, and to enhance community-wide understanding and awareness of community hazards. **ENV 29:** Maintain a disaster response and recovery plan that describes recovery efforts during, immediately following, and post-event. # Tree Canopy Trees are unquestionably one of the most important parts of any City's natural environment. Study after study shows trees provide benefits in a myriad of ways. Trees: * Clean the air * Prevent soil erosion and reduce stormwater runoff * Provide habitat for vital wildlife and pollinators * Improve water quality * Reduce flooding * Provide shade and reduce ambient temperatures * Relieve stress and reduce blood pressure * Boost the economy: shoppers will walk farther, stay longer, and spend more money in treed commercial areas * Increase home property values A great thing about Chesapeake is that residents value trees, whether for the above benefits, or just because they are beautiful and create a pleasant outdoor experience. *** ## – FOR THE TREES – When residents were asked “what are the special parts of your Planning Area that should be maintained,” one of the responses we got the most was... * “I wish the large amount of trees and native plant areas would be retained to keep the area beautiful and full of natural life.” * “Trees and nature” * “Tree lined streets” * “Green Space, trees, fields and farms” * “lots of trees” * “Greenery - the trees and coverage is wonderful” * “Mature trees” * “The trees are nice” * “The trees and greenery” * “Large old trees” * “The trees!” * “The land and trees” * “trees and open space” It is important to understand how much tree canopy the City has in order to define goals for the future, and this should be calculated to establish a baseline for future work. However, this number cannot be taken on its own. The City must also understand how trees are distributed, and whether there are environmental justice populations (those that have disproportionately borne the impacts # Environment and Resilience of environmental hazards, such as flooding and heat) that are missing the benefits of tree canopy today. These populations are more likely to experience the urban heat island effect, the phenomenon where urban areas are significantly warmer than less-developed areas. According to the EPA, shaded surfaces can be 11-25 degrees cooler than their unshaded counterparts. Trees not only provide that shade, but also release moisture into the air, further cooling it. Also important to understanding the overall urban forest is the health and age of the canopy, two factors that will impact tree canopy in the long run. Given the size of the City, the importance residents place on trees, and the multitude of factors that go into maintaining a large urban forest, it is critical that the City adopt and maintain an Urban Forestry Plan (UFP). A UFP could calculate existing tree canopy; set goals for the future; and provide guidance on long term forest management, including consideration of climate change; best practices for development; proactively monitoring and working to remove pests (particularly those that have far-reaching impacts that can devastate the canopy); and maintaining diversity in tree species and age for a robust canopy. Even dead trees have a place in our canopy system; they are known to provide habitat for both birds and mammals as <
> Environment and Resilience <
> Volunteers and staff at a tree planting event. <
> Volunteers at an invasive species removal event. well as nutrients as they decompose. While the UFP will help guide the City’s efforts, to truly be successful development practices must become streamlined and consider trees a valuable community amenity. For the City, this looks like clarifying and marrying our guidelines regarding what is appropriate and not appropriate. For developers, this means protecting more trees at the outset of design, planting more trees to enhance a community, and providing the appropriate environment for urban trees. The City can help provide guidance to developers to accomplish this goal. Additionally, in 2025 the Commonwealth Comprehensive Plan 2045 | 150 passed legislation allowing localities to adopt an ordinance establishing a tree canopy fund that essentially allows the City to work with developers to plant required trees off-site when they cannot be adequately provided on-site. Adopting such an ordinance would give the City flexibility to work with developers and make sure trees are going in the most beneficial location. **The activities suggested in Chesapeake 2045 will require expanding the scope of work currently being performed by the City.** This may mean added staff or funding, and clear expectations about who is in charge of this work. However, caring for Chesapeake’s tree canopy cannot just be the City’s responsibility. While residents note when many trees are taken down for development, a large percentage of the City’s trees live individually on private property. It is less noticeable when these trees are removed because improper planting or neglect make them a liability, or they simply age and are not replaced. If Chesapeake wants to be a truly greener city, property owners, including businesses, must take responsibility for caring for their trees, particularly because while planting new trees is important for maintaining a diversity of tree ages, mature trees are much more valuable than fresh saplings. The City can undertake efforts to educate property owners and connect them to resources to help make sure everyone in Chesapeake is doing their part to protect and plant trees. *** **ENV 30:** *Identify environmental justice populations that are underserved by tree canopy and prioritize them for future plantings. Encourage new developments and redevelopments in these areas to go above and beyond ordinance-required landscaping requirements.* **ENV 31:** *Identify areas experiencing the Urban Heat Island effect and develop strategies to mitigate impacts.* **ENV 32:** *Develop and adopt an Urban Forestry Plan that includes inventorying existing trees and sets guidance on enhancing and restoring urban forest quality through age and species diversification, among other tasks and policies.* **ENV 33:** *When verges are included in development, they should be of sufficient width for healthy tree planting and future tree growth.* **ENV 34:** *Proactively monitor and remove tree pests, particularly those that are likely to have wide-ranging impacts on the entire tree canopy.* **ENV 35:** *Preserve and maintain existing healthy mature trees, while also supplementing with public and private reforestation efforts to promote a healthy and diverse tree canopy across the City.* **ENV 36:** Update the City’s landscaping and buffering ordinance to include additional invasive species on the “Undesirable Tree Species” list, and clarify the planting of which cannot contribute to required landscaping. **ENV 37:** Encourage opportunities for additional tree plantings in appropriate natural environments as part of the development review process. **ENV 38:** Adopt an ordinance establishing a tree canopy fund for the purposes of collecting fees from developers that cannot provide their canopy requirements on site and using them to plant trees elsewhere in the City. **ENV 39:** Educate residents and officials about the negative impacts of invasive species, and implement programs for their strategic, targeted removal. **ENV 40:** Connect residents and businesses to existing resources on tree care and maintenance, and work with neighborhood groups to support their local tree canopy goals. **ENV 41:** Identify and highlight historic, champion, and significant trees within local communities to increase likelihood of protection and maintenance. # Wildlife In Chesapeake, wildlife is not just the bears tucked away in large natural spaces, but also the birds, pollinators, turtles, and other small creatures residents interact with in their daily lives. Protecting wildlife came up frequently during Chesapeake 2045 community engagement. This is another example of Chesapeake residents identifying as part of a naturally beautiful City, full of wilderness, attractive natural views, and opportunities to get outside. As one survey respondent said: “I moved to Chesapeake for the country and nature. Preserve natural resources and areas for wildlife. Wildlife is being displaced into populated areas. After trees and nature are gone, you can’t get them back.” <
> Environment and Resilience <
> Even black bears can be spotted on the Dismal Swamp Trail. Chesapeake is home to many important species of flora and fauna, with many opportunities for seeing them in the wild. The Great Dismal Swamp National Wildlife Refuge (Great Dismal Swamp or GDS), which spans Suffolk, Chesapeake, and North Carolina, is an extremely important habitat. According to a 2010 Virginia Department of Transportation research report, the Great Dismal Swamp contains “40 species of mammal, 59 species of reptiles and amphibians, and more than 200 species of birds, many of which are uncommon or rare in Virginia.” The Great Dismal Swamp also has one of largest populations of black bear on the East Coast. There are other species of interest in Chesapeake, the most prominent of which is likely the protected canebrake rattlesnake, which has a habitat range within Chesapeake. Savvy canoers and kayakers can explore the Great Dismal Swamp Canal, and pedestrians and cyclists the Dismal Swamp Canal Trail that runs alongside it to view wildlife. Birding is a particularly popular activity, and birdwatchers seek out Chesapeake. Some of the special birds one might find: the Green Heron, the Swainson’s Warbler (birders have been known to come from all over to see this secretive bird in Chesapeake, where it is more vocal and visible), and the Wayne’s Warbler. While some of the wildlife in Chesapeake is protected in perpetuity (such as in the Great Dismal Swamp), other animal habitat may be at risk of development. Even animals in protected habitats may be negatively impacted by development if their migratory patterns are blocked or development comes close enough that it creates noise, light, or other impacts that harm animals’ natural patterns. It’s important that the City work closely with developers to minimize these impacts, and recognize that one may need to look outside of direct project boundaries to see impacts. The City does not just have to react to incoming projects. Chesapeake can proactively support the acquisition of properties that expand habitat and safeguard migration patterns, giving wildlife additional protections. **ENV 42:** *Work with developers to protect green space that could serve as habitat or part of a contiguous wildlife corridor during the development process, prioritizing this land to satisfy landscaping and tree canopy requirements.* **ENV 43:** *Partner with environmental organizations to fund water quality and aquatic habitat projects, particularly in conjunction with industrial users.* **ENV 44:** *Support the acquisition of properties that expand wildlife habitat and protect migration patterns.* Comprehensive Plan 2045 | 153 # Solid Waste and Recycling Recycling is a complicated topic in Chesapeake. When the City discontinued curbside recycling in 2022, many residents were disappointed and frustrated about the lack of options for continuing their recycling collection. Some residents called for the return of curbside recycling, which the City expressed it could only do if a fee was included to help fund the service, which most localities do. In a 2024 local referendum, 62.2% of voters said they would not support bringing back recycling with the inclusion of a fee. Here, Chesapeake differs from its neighbors, which have appeared, based on surveys, to be willing to pay for increases in fees for these services. When service was offered, Chesapeake was the only Hampton Roads locality to offer curbside recycling at no cost to residents, and today Chesapeake is still the only one not to charge for trash removal. In the absence of the curbside pickup program, Chesapeake has supported central recycling drop-off sites. It’s important that the City continue working with residents towards sustainable options for recycling that allow those who wish to participate to do so and increase the overall recycling rate, particularly while the City focuses on long-term solutions. The City is currently working with the Southeastern Public Service Authority (SPSA) to construct and implement an Alternative Waste Disposal facility that would reduce the waste stream going to the regional landfill by at least 60.0%. Such a facility would sort recyclables from the waste stream, increasing recycling rates and eliminating the need for separate recycling bins and separate handling and transporting of recycled materials. This represents a huge step forward for waste management in the City and region. # While enhancing recycling is one part of Chesapeake’s waste management program, reducing waste pre-consumption is perhaps even more important. If the waste is not generated in the first place, it does not need to be managed through recycling, reusing, or disposing. This is especially important for conversations about regional landfill capacity; Hampton Roads is reaching landfill capacity more quickly than originally projected. Although the Alternative Waste Disposal facility will significantly help this issue, there is an opportunity to for the City to be a leader in education, best practices, and programs that help its residents reduce waste before it is generated or compost it. **ENV 45:** *Work with regional partners to ensure long-term solutions for safe, sustainable, efficient solid waste disposal.* **ENV 46:** *Continue to implement strategic solutions that allow for residents and businesses to continue recycling.* **ENV 47:** *Develop and implement a waste reduction strategy with education and pilot programs to help reduce waste going to the landfill.* Environment and Resilience # Renewable Energy Greenhouse gas (GHG) emissions have become a greater concern to the general public, and steps to reduce GHGs in everyday life have become common. The Hampton Roads Planning District Commission is leading the regional effort with the first Comprehensive Climate Action Plan for the Hampton Roads region. The City can take steps as well. One of the ways in which the City can reduce its carbon footprint, and thus slow the effects of sea level rise and recurrent flooding, is to increase its use of renewable energy. While the City has implemented certain measures, such as adding electric vehicles (EVs) to its fleet, there is room for growth in this area. The City does not have a standing renewable energy goal or policy, and creating one is the first step to incorporating renewable energy into its energy portfolio. This is increasingly common across localities, and many report metrics that residents can easily access to understand their government's renewable energy production. — THE POWER OF SOLAR — 1 megawatt of solar power can power approximately 112 Virginia homes. There is also a role for the City in encouraging energy-efficient construction practices in residential development. Design, construction, and operating practices continue to evolve in order to reduce energy consumption, and can often be done in ways that don't increase the cost of construction. The City has an adopted Solar Energy policy that provides guidance most specifically for “utility solar energy facilities”, those that are the principle use of the property, and that are providing energy off-site. Historically, these are most often proposed in rural parts of the City that have large, flat expanses of land. These facilities generate much debate and emotion. There are concerns that siting a solar facility <
> in the rural part of Chesapeake removes farmland from production, permanently alters the aeration of the soil, impacts rural viewsheds, and destroys rural roads during construction. On the other hand, the City supports landowners' property rights to use their land how they see fit and understands solar facilities can be an important source of income, particularly for those who are retired. This is an ongoing conversation with no easy resolution. While this specific facility type is under scrutiny, Chesapeake 2045 pushes for solar panels located in more discreet locations such as on top of buildings. The City also supports innovative projects: across the country, projects have shown that solar panels can be used in unique ways to provide additional benefits. For example, parking lots can share space with raised solar panels that provide shade for the cars underneath them. As of 2025, Chesapeake has approved approximately 278 megawatts of solar energy production through utility solar facilities. This energy is all fed back into the larger electric grid. There is a small amount of additional production from individual residences and buildings that also have permitted solar panels. However, the City itself has not adopted significant renewable energy infrastructure. Chesapeake has an opportunity to be a leader in rooftop and innovative solar infrastructure, thereby showcasing solutions and generating interest in these other ways to harness solar energy. As mentioned, the City does include EVs in its own vehicle fleet. EVs are becoming more popular, and federal funding recently impacted the deployment of the infrastructure needed to support EVs. In order to prepare for this growing technology, the City must be proactive in understanding how current codes and ordinances affect the success of EVs in Chesapeake. This will also make Chesapeake well-positioned to capitalize on any new and forthcoming funds. *** **ENV 48:** *Develop a City energy policy that includes renewable energy and energy efficiency goals and a mechanism for publicly reporting energy use.* **ENV 49:** *Encourage the use of solar panels on top of buildings and in other unused or underutilized spaces such as parking lots.* **ENV 50:** *Model renewable energy usage in the City by proactively installing renewable energy throughout public areas, such as solar panels in City parking lots.* **ENV 51:** *Support Electric Vehicle technology and review City codes and ordinances that may need to be amended to allow the implementation of EV infrastructure.*