On the agenda: Loudoun County meeting — Data Center (Apr 9)

Supplemental Packet
The following supplemental materials are attached:
E. Overview of the Loudoun County Fiscal Impact Model
For the Loudoun 2040 Comprehensive Plan

STAKEHOLDERS MEETING
AGENDA
Monday, April 9, 2018

6:00 PM Welcome / Administrative Items / Information Updates
•
•

Introductory Comments from Committee Chair – Jeff Salmon
Meeting Objectives – Alaina Ray

6:10 – 6:55 PM High Level Fiscal Impact Assessment Overview
Process Presentation and Discussion
•
•
•

Staff Presentation
Stakeholders Committee General Questions
Round Robin Discussion

6:55 – 7:55 PM Envision Loudoun 2040 General Plan Chapter 6:
Fiscal Management & Facilities Review
•
•
•

Staff Presentation
Stakeholders Committee General Questions
Round Robin Discussion

7:55 – 8:05 PM Break
8:05 – 9:55 PM Envision Loudoun 2040 General Plan Chapter 6:
Land Use Review
•
•
•

Staff Presentation
Stakeholders Committee general Questions
Round Robin Discussion

9:55 – 10:00 PM Next Steps
Important Documents
A.
B.
C.
D.
E.

Agenda 4-9-18
Staff Cover Memo 4-9-18
Envision Loudoun 2040 Chapter 2: Built Environment/Land Use
Envision Loudoun 2040 Chapter 6: Fiscal Management & Facilities
Overview of the Loudoun County Fiscal Impact Model

pg. 1
STAKEHOLDERS COMMITTEE MEETING | April 9, 2018

Overview of the Loudoun County Fiscal Impact Model
For the Loudoun 2040 Comprehensive Plan

April 6, 2018

Loudoun County Department of Management and Budget
Liz Weaver
Beth Hilkemeyer, AICP
TischlerBise
Julie Herlands, AICP

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INTRODUCTION
As part of the Envision Loudoun process to develop the Loudoun 2040 Comprehensive Plan, the Department of
Management and Budget (DMB) is working with the consulting firm TischlerBise to support efforts to make fiscally
informed land use decisions. Communities need analytical tools and technical support to assess and balance
multiple priorities when making land use and development decisions. As part of the Envision Loudoun process, a
fiscal impact model and corresponding analysis are currently being developed.
On January 22, 2018, TischlerBise and DMB staff presented a conceptual overview of the fiscal modeling efforts
planned for the Envision Loudoun process. In follow up meetings, members of the Stakeholders Committee
expressed a desire to gain more information and understand the technical design, methodologies, and
assumptions that will be used in the fiscal model. Additionally, Stakeholders requested more information on the
anticipated main drivers of the modeling results.

Scope of this Paper
This paper provides a discussion of the fiscal impact model. The following topics are addressed in this document:




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Overview and general importance of fiscal impact analysis;
Role of fiscal impact modeling for the Envision Loudoun process;
Model design goals and components;
Methodologies used to develop assumptions;
Assumptions that will be used as inputs in the fiscal model;
Evaluation of fiscal impact results; and
Anticipated “drivers” of fiscal impact results.

WHAT IS A FISCAL IMPACT ANALYSIS?
In general, a fiscal impact evaluation analyzes cash flow (revenue generation and operating and capital costs) to a
jurisdiction associated with the provision of public services and facilities to serve new development—residential,
commercial, industrial, or other land use. A fiscal impact analysis is different than an economic impact analysis,
which evaluates the economic benefits to a community in terms of jobs, income, and economic output. Fiscal
analysis enables local governments to estimate the difference between the costs of providing services due to
development and the taxes, user fees, and other revenues that will be collected by the government as a result of
new development.

Importance of Fiscal Impact Analysis in Local Land Use Decisions
A fiscal impact analysis (FIA) goes beyond the annual budget to clarify the longer‐term financial effects of land use
and development decisions and related public infrastructure and service costs to help ensure that local officials
understand the short‐ and long‐term fiscal effects prior to making such land use and development decisions.
A FIA projects net cash flow (revenue generation and operating and capital costs) to the public sector due to
residential and/or nonresidential (commercial, office, industrial, etc.) development. In simple terms: revenues
(generated from growth such as property taxes, sales and use taxes, charges for service) minus expenditures
(generated from growth such as cost to provide public safety services, recreation programs, library services, etc.)
equals the “net fiscal impact”. In other words, will sufficient revenues be available to cover the resulting costs to
provide services and infrastructure?
When faced with a land use or development proposal, a FIA can provide a perspective to objectively analyze
proposed changes and communicate the overall impacts. This process can help develop a compatible land use
plan, build community support for resulting land use decisions, and provide elected officials and others with

Fiscal Impact Model Overview, April 2018

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additional information to help make those decisions. FIA provides a better understanding of how land use
decisions affect a jurisdiction’s bottom line. It also helps communities understand potential trade‐offs between
short‐term revenue opportunities and long‐term outcomes.
A goal of the FIA for Envision Loudoun is to provide support to decision makers, local government staff, and
community stakeholders to identify and quantify impacts.

Use of Fiscal Impact Modeling by Loudoun County
Loudoun County has a tradition of using fiscal impact analysis to evaluate changes to the comprehensive plan.
Fiscal impact modeling was first utilized by Loudoun County in the late 1980s to evaluate the fiscal impact of the
Choices and Changes General Plan. Loudoun County also has used fiscal impact analysis to evaluate the impact
of development along the Silver Line. To understand whether a proposal is fiscally beneficial, the focus of these
studies has been on the fiscal difference between current and proposed land use patterns and policies.
In addition, Loudoun County has developed and utilized several practices to enable the County to plan and budget
for service and facility demands resulting from a consistently high level of growth. The County began
implementation of these practices in the mid‐1990s, after members of the Board of Supervisors became
concerned about the potential fiscal impact of anticipated growth. At the Board’s direction, key planning tools
were developed over a period of years to help ensure that Loudoun County remains a well‐served community
with a high quality of life and an economic balance to allow an affordable tax rate. These tools include
assumptions for growth forecasts and capital facility needs. Loudoun County’s Fiscal Impact Committee is an
advisory committee to the Board that reviews and recommends these assumptions. Fiscal impact analysis efforts
can be informed by these assumptions, and frequently also utilize additional assumptions that pertain to types of
development that will be new to the county, along with independent market demand forecasts designed to
support the evaluation of new land use patterns.

THE FISCAL IMPACT ANALYSIS MODEL
Approach and Design
The fiscal impact model and analysis are designed to evaluate the impact of future growth under the proposed
Loudoun 2040 Comprehensive Plan developed through the Envision Loudoun process and compare it to future
growth under the current plan. A fundamental question is whether forecasted revenues generated by future
growth and development in the Loudoun 2040 Comprehensive Plan are sufficient to cover forecasted expenditures
related to service and facility demands which could result from this same growth and development. Results will
be shown as the “Net Fiscal Impact” and can be fiscally positive (revenues exceed costs), fiscally neutral (revenue
equals cost), or fiscally negative (costs exceed revenues). This tool is intended to assess the fiscal direction
(positive, neutral, negative) and general magnitude (how much) of proposed land use decisions compared to what
is currently approved as part of the Revised General Plan. The model also will forecast Metrorail Tax District
revenues and forecast the tax base for the two Metrorail station districts.
The fiscal model will include four scenarios, to allow comparison between the Loudoun 2040 Plan and Revised
General Plan, and also to demonstrate how much different the Loudoun 2040 Plan results could be, based on
faster or slower development:


Revised General Plan Baseline – utilizing development forecasts based on the “medium” demand
forecasts from the Market Analysis, constrained by the development potential (supply) available under
the current Revised General Plan.

Fiscal Impact Model Overview, April 2018

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

Proposed Loudoun 2040 Plan: medium – utilizing development forecasts based on the “medium” demand
forecasts from the Market Analysis, constrained by the development potential (supply) available under
the proposed plan.



Proposed Loudoun 2040 Plan: low – utilizing development forecasts based on the “low” demand forecasts
from the Market Analysis; like the Proposed Plan medium forecast, the demand forecast will be
constrained by the development potential (supply) available under the proposed plan.



Proposed Loudoun 2040 Plan: high – utilizing development forecasts based on the “high” demand
forecasts from the Market Analysis; like with the other Proposed Plan forecasts, this will be constrained
by the development potential (supply) available under the proposed plan.

The analysis will answer questions such as:


Are the revenues generated by development enough to cover related expenditures for services and capital
facilities?



How does the net fiscal impact for the proposed plan compare to the Revised General Plan?



If development occurs more or less rapidly, how much does that change the results for the proposed
Loudoun 2040 plan?



What capital facilities could be needed to accommodate future development?



What land is needed for those capital facilities?



What revenue growth is expected for the Metrorail Tax District under each plan?



What tax base growth is expected for the Station Districts under each plan?

Results (outputs) from the fiscal impact model will include the following:
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


Loudoun County General Fund operating costs and revenues
Loudoun County Public Schools (LCPS) operating costs and revenues
Capital facility needs and costs
Land needed for capital facilities
Tax district revenues for the Metrorail Service District
Tax district real property base for the Metrorail Service District and the two smaller station districts
(Ashburn and Loudoun Gateway – Airport)

Flexible Design
Flexibility of the model has been a key goal in order to provide the ability to answer different types of questions
that could arise throughout the Envision Loudoun process. The model is also designed to accommodate other
sensitivity or “what if” tests that could evaluate changes in assumptions including (1) demographic factors such
as household size and pupil generation rates and (2) impacts of alternate real property value assumptions.

Fiscal Impact Model Overview, April 2018

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While the fiscal model is designed for flexibility, small changes in land use may not result in material differences
in fiscal results. Large differences in fiscal model results can suggest that varying an assumption can lead to actual,
material differences in practice. Smaller differences can suggest that varying the assumption is less likely to have
an impact.
Forecast Period
The fiscal impact model is designed to reflect net fiscal impacts of future growth through 2040. Results will be
reported both in five year increments and cumulatively, beginning in 2017. This allows for evaluation of the net
fiscal impact over time. This is consistent with other components of the Envision Loudoun effort.
Inflation
Inflation will not be incorporated into the model, to enhance the ability to understand the long‐term financial
forecasts and provide clearer discussion of comparable scenarios. Using constant dollars (rather than
incorporating inflation) enables the model’s results to be expressed in today’s dollar values. Accounting for
inflation would add a significant level of complexity to the modeling effort because it would involve developing
assumptions for different rates of inflation for different factors.
Residential and Nonresidential Proportionate Shares
Proportionate share factors are used to allocate some revenues and costs to residential and/or nonresidential
development. TischlerBise has relied on extensive public and private sector input to establish reasonable
“weighting factors” to account for time spent at either residential or nonresidential development. Development
of these shares is described in Attachment 1. Based on this analysis, the cost allocation for residential
development is 74 percent, while nonresidential development accounts for 26 percent of the demand. This
demand is then translated into per capita, per job, and per student figures, where applicable, for the detailed
revenue and expenditure budgetary lines included in the model.
Fiscal Analysis Zones
The model is also designed to provide results for six geographies listed, known as fiscal analysis zones, to allow for
more detailed analysis.
•
•
•
•
•

Countywide
Suburban Policy Area
Transition Policy Area
Metrorail Tax District, and
Metro Station Districts (Ashburn and Loudoun Gateway – Airport)

These geographies were selected because the focus of the plan changes are on development in new Urban Policy
Areas and in the Suburban and Transition Policy Areas, which could result in substantially different level of
development in these areas.
The Rural Policy Area, Towns, and the Leesburg Joint Land Management Area (JLMA) were not designed as their
own distinct geographies because minimal changes are expected to these areas. As a result, differences between
the Loudoun 2040 Plan and the Revised General Plan are expected to be small. However, it is possible to show
results for these areas combined as a Rural, Towns, and Leesburg JLMA geography.

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Fiscal Model Assumptions
Development and Economic Assumptions
Assumptions about development characteristics (real property valuations, vacancy rates, household sizes, square
feet per employee) will be drawn primarily from the 2017 Fiscal Impact Committee Guidelines. The Guidelines
data will be supplemented in the following cases:
Differing characteristics within ¼ mile of Metrorail (Ashburn and Loudoun Gateway) stations ‐ Consistent with past
modeling of the impact of Metrorail, adjustments will be made to assumptions for new office, retail, and
multifamily development located near Metrorail stations. Valuation premium percentages will be applied to the
assessed values expected for development elsewhere to reflect expected higher values for development near
these stations. Adjustments to other characteristics also will be made to reflect differences in household sizes,
student generation rates, the square feet per employee, and vacancy rates.
Table 1. Assumptions for Development Located Within ¼ Mile of Metrorail Stations
Square Feet
Household
Student
Vacancy
per
Sizes
Generation
Rates
Employee
Rates
Urban – within ¼ mile of the Ashburn and Loudoun Gateway Stations
Office
175
n/a
n/a
7.5%
Retail
450
n/a
n/a
7.0%
Multifamily Attached
n/a
1.85
0.12
5.0%
Elsewhere in the County
High Density Office
235
n/a
n/a
10.0%
Retail
350
n/a
n/a
7.0%
Multifamily Attached
n/a
1.97
0.21
6.5%

Valuation
Premium

10%
5%
10%
n/a
n/a
n/a

Note: the student generation rates shown for multifamily attached units located elsewhere is 90% of the rates used for the
Capital Intensity Factor and shown in the 2017 Fiscal Impact Committee Guidelines, as described below.

Rental vs. Owned MF Units ‐ Differences in valuations are anticipated to be significant between rental and owned
multi‐family units. County staff will be working with TischlerBise to develop this assumption.
Hotel Product Type ‐ Hotels will be separated out as a development type to allow the demand for hotels to be
forecast separately and for the fiscal differences for this unique product type to be reflected. One fiscal difference
is that hotels generate Transient Occupancy Taxes (TOT). Examples of other differences include basing forecasts
of development and employees on room demand, and the ability to attribute BPOL Hotels and Motels revenue
directly to this development.
Affordable Dwelling Units – The model will incorporate differences in valuation for affordable dwelling units
(ADUs). A portion of most residential product types (single‐family detached rural is the exception) will be modeled
as affordable dwelling units (ADUs). Designating some units as ADUs within the model allows fiscal impact
calculations to reflect that 1) proffers do not offset the capital costs for these units and 2) these units have a lower
assessed value than market rate units.
Age Restricted ‐ A portion of multi‐family attached units will be modeled as age‐restricted. Designating some units
as age‐restricted within the model allows fiscal impact calculations to reflect 1) that these units do not create
demand for school facilities and 2) any differences in assessed values compared to non‐age‐restricted units.

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LCPS Enrollment Forecasts ‐ Forecasts of LCPS enrollment will be developed assuming 90% of the student
generation rates developed for Loudoun County’s Capital Intensity Factor (CIF). The student generation rates
developed for the CIF are shown in the Fiscal Impact Committee Guidelines. These rates represent all children in
school (whether in LCPS or otherwise). Applying 90% to the rates ensures that only the students that would have
an impact on LCPS operating expenditures are counted.
Product Types
Modeling will be done using a detailed set of product types, which are based on the land use place types
recommended by the Stakeholder’s Committee. The table provides a list of the residential and nonresidential
product types used for this process. Attachment 2 provides the development characteristic assumptions for each.
Table 2. Product Types for the Fiscal Model
Residential
Single‐Family Detached
 Suburban
 Rural
Single‐Family Attached

Nonresidential
Office
 High Density
 Urban (within ¼ mile of a Metrorail
station1)
 Low Density

Multi‐Family
Industrial
 Attached
 Light Industrial
 Urban Attached (within ¼ mile of a
 Heavy Industrial
Metrorail station1)
 Stacked
Data Centers
Retail
 Retail
 Urban (within ¼ mile of a Metrorail
station1)
Other
 Non‐Public
 Public
Hotel1
Base Year
The financial data used to construct the model will reflect 2016 as the base year. This year was selected when
work on the fiscal model started because it represented (1) the last full year of audited actuals; and (2) most recent
available final year‐end development data. The model will be based on actuals as shown in Loudoun’s
Comprehensive Annual Financial Reports (CAFRs) and all results will be in 2016 constant dollars.

Capital Needs and Cost Assumptions
Future growth typically results in the need for additional public facilities (e.g., schools, parks). Capital needs,
including the number and types of facilities, will primarily be generated utilizing the 2016 Capital Facility
1 These product types are not included in the 2017 Fiscal Impact Committee Guidelines as they have been developed for the Envision

Loudoun fiscal modeling effort.

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Standards. Using population forecasts, these standards will generate the incremental amount of demand for new
facilities each year.
The fiscal model also will incorporate these adjustments, to better reflect capital facility needs:


In some cases, increased jobs in the County will generate a need for capital facilities. Examples include
public safety facilities and space to support general government functions.



Transportation facilities (such as roads) are not currently covered by the Capital Facility Standards. DMB
is working with the Department of Transportation and Infrastructure to obtain their estimates of capital
needs. This approach allows the County’s costs associated with road and other transportation
improvements to be incorporated.



While Capital Facility Standards exist for school facilities, DMB also is working with LCPS to obtain their
estimates of capital needs. This allows LCPS to directly evaluate needs based on planned land use and
development forecasts.

Capital Costs
Capital costs will be calculated based on facility and land cost assumptions used for the 2017 CIF, adjusted to the
2016 base year.
Facility costs are based on those shown in the CIF, reduced by 4.7% to account for inflation from 2016 to 2017.
A per acre land cost of $610,000 was determined using the weighted average of land costs in the Ashburn, Dulles,
and Leesburg planning subareas. This weighted average reflects the remaining vacant developable land in each
planning subarea.
Allocating Costs to Nonresidential as well as Residential Development
For facilities that serve both nonresidential and residential development, a portion of the costs will be allocated
to nonresidential development. To do this, the current residential standard will be used as the starting point, with
the allocation of costs to the nonresidential and residential sectors based on the proportion of total population
and total jobs in the County.
Table 3. Facilities with Capital Costs Allocated to Nonresidential and Residential Development
Public Safety Facilities and Equipment
 Sheriff station
 Fire station
 Fire engine
 ALS ambulance
 Ladder truck
 Heavy rescue squad
 Fire tanker truck
 Brush truck






Other Facilities
General government support
Transit bus maintenance facility
Transit buses
Roads (lane miles)

The methodology is described in further detail and accompanied by tables showing the resulting standards, in
Attachment 3.

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Proffers and Other Offsetting Revenues
Proffers, provided as part of rezonings, are one source of revenue to offset capital costs. The fiscal impact model
will include proffers for capital facilities (including cash, and in‐kind provision of land and/or structures), road
improvements, and transit. Conversely, since all County capital costs will be modeled, costs not offset by proffers,
for example, those resulting from by‐right development and from Affordable Dwelling Units (ADUs), also will be
included in the fiscal model.
Proffers that do not offset costs incurred by County government will not be included in the model. Table 4 below
shows the proffers that will and will not be included in the fiscal impact model. For example, proffers can be
provided to volunteer fire and rescue stations. These stations are independent entities with their own budgets.
The fire and rescue proffers do not offset expenses appearing in the county budget, so they will not be included
in the fiscal model.
More generally, any targeted revenues or other means to pay for capital facilities will be considered in the model.
This is particularly important for transportation costs, where other revenues are available (Northern Virginia
Transportation Authority, NVTA) and the responsibility to develop infrastructure is shared with the state.
Table 4: Proffers Included in the Fiscal Model
Proffer Type
Capital facility
Road improvements
Transit Proffers
Fire/rescue

Included in the
fiscal model?
Yes
Yes
Yes
No

Unmet housing needs

No

Open space easements

No

Regional road
contribution

No

Offsets cost incurred by county government?
Yes
Yes
Yes
No, payments go directly to volunteer stations and do not
offset County capital costs.
No, the County manages a program and receives
proffered funds that go into a trust that is used to fund
construction of housing units.
No, provision of cash or easements is intended to ensure
the adequate provision of active, passive and natural
open space in the County. Participation is anticipated for
residential developments with densities of 3.5 to 4.0
du/ac and high density residential developments above
4.0 du/ac.
No, the general regional road contribution offsets the
costs of a development project’s impacts to the road
network. Policy allows the Board to consider accepting
regional road cash contributions in lieu of capital facility
contributions only if such regional road contribution is
above and beyond a project’s impacts upon the regional
road network.

Capital Facility and Infrastructure Deficits
As noted above, the fiscal modeling and analysis will focus on the impact of future development, comparing the
fiscal impacts under the proposed Loudoun 2040 Plan scenarios and current Revised General Plan. Because any

Fiscal Impact Model Overview, April 2018

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current deficits will be present regardless of how development occurs in the future, the costs to address these
deficits are the same regardless of changes to the Plan.
Existing capital needs are accounted for during the process to develop the Capital Intensity Factor (CIF) The CIF is
based on the per‐capita costs of providing various capital facilities resulting from additional residential density. To
determine which facilities are needed for each CIF region, staff conducts a facility deficit analysis as follows:
1. Forecasts of the County’s population growth are generated for each planning subarea based on anticipated
residential growth;
2. The Capital Facility Standards (CFS) establish population standards for each type of capital facility in the County;
3. The number of facilities needed in each planning subarea is calculated by dividing the forecasted population in
a given year by the population standards for the facility; and
4. Existing and planned (in the Adopted Capital Improvements Program, the CIP) facilities are subtracted from the
total numbers of required facilities to calculate a deficit (or surplus).

Operating Expenditures
Operating expenditures will be forecast using 2016 actual costs, and attributing those costs to residential
development, nonresidential development, or a mix of the two. General Fund Operating Expenditures are either
allocated 100 percent to residential development (and projected on a per capita basis) or allocated between
residential and nonresidential land uses and allocated based on proportionate share factors (74 percent
residential; 26 percent nonresidential). School Operating Expenditures are allocated 100 percent to residential
development and modeled on a per student basis.
Figure 1 on the following page shows the different major expenditure categories in Loudoun County’s General
Fund, along with a single row for the School General Fund at the bottom. This figure indicates

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Figure 1. Summary of Operating Expenditure Methodologies

Fiscal Impact Model Overview, April 2018

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assumptions for which expenditures are allocated to residential development only and those which are also
allocated to nonresidential development for the purposes of the modeling effort. There is a third “fixed” column
which would indicate any expenditure that is not expected to increase based on future development. In the case
of operating expenditures, all are expected to increase with development, so there is no “X” in this column for
any expenditure category.

Revenues
Similar to operating expenditures, some revenues will be forecast based on attributing 2016 actual revenues to
residential development, nonresidential development, or a mix of the two. Revenues derived from taxation will
be forecast based on applying tax rates to property values, or in some cases by attributing revenues related to
specific types of development. For many of the other revenues, the proportionate share factors (74 percent
residential; 26 percent nonresidential) will be used. Where possible (for example, for certain Business &
Professional License tax categories), the revenue methodology will be tailored to specific product types.
Figure 2 shows different major revenue categories in Loudoun County’s General Fund, along with a single row for
the School General Fund at the bottom. This figure indicates how revenues are related to residential and
nonresidential development in the model. There is a third “fixed” column which indicates revenues that not
expected to increase based on future development.
In addition to General Fund revenues, which are used in the calculation of net fiscal impact, the fiscal model will
also forecast revenues to the Metrorail tax districts.
While many of the revenue lines will be modeled using proportionate share factors (74 percent residential; 26
percent nonresidential), some of the largest sources of revenue will not. By far the largest two revenue sources
are real property and personal property, which combined provide over 70 percent of the revenues in Loudoun
County’s General Fund. The methodology for each is described below. The calculation of Metrorail tax district
revenues is also described.
Real property revenues ‐ Real property revenues will be calculated based on average assessed values by product
type, from the 2017 Fiscal Impact Committee Guidelines, when available. The revenue generated by vacant land
also will be included.
Because 2016 is the base year, 2016 tax rates will be used as assumptions in the model. Using 2016 rates ensures
that financial assumptions are consistent throughout the model: tax rates, actual revenues, and actual
expenditures. The 2016 real property tax rates are listed below.


2016 real property tax rate = $1.145 per $100 in assessed value



Metrorail Tax District = $0.20 per $100 in assessed value



Metrorail station districts = $0.00 per $100 in assessed value

In addition to the real property tax rate generating revenues for the General Fund, two additional taxes used to
generate revenue for Metrorail also apply to real property. These revenues are not used for other purposes, and
are not included in the General Fund. The Metrorail Tax District generates funds to pay the debt service on debt
issued by Loudoun County for the construction of the Silver Line. This tax is on assessed real property within the
district. The tax rate can be set up to $0.20, its current level.
Like for the Metrorail Tax District, the station districts also are subject to a tax on real property. The tax rate can
go up to $0.20. The tax rate on both of the Metrorail station districts (Ashburn and Loudoun

Fiscal Impact Model Overview, April 2018

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Figure 2. Summary of Revenue Methodologies

GENERAL FUND REVENUES
From local sources:
General Property Taxes:
Real Property Taxes
Real and Personal Public Service Corp. Prop. Taxes
Personal Property Taxes
Machinery and Tools Taxes
Penalties and Interest
Other Local Taxes
Local Sales and Use Taxes
Business License Taxes
BPOL CLASSIFIED
Consumer Utility Taxes
Taxes on Recordation and Wills
Motor Vehicle Licenses
Bank Franchise Taxes
Hotel and Motel Room Taxes

RESIDENTIAL

NONRESIDENTIAL

X
X
X

X
X
X
X
X

X

X
X
X
X

X
X
X
X
X
X
X

Permits, Privilege Fees and Regulatory Licenses:
Animal Licenses
Permits and Other Licenses

X
X

X

Fines and forfeitures:
Fines and Forfeitures

X

X

Revenue from Use of Money and Property:
Revenue from Use of Money
Revenue from Use of Property

X
X

X
X

Charges for Services:

X

X

Miscellaneous Revenue:
Recovered Costs:
Recovered Costs
From the Commonwealth:
Non‐categorical Aid:
State Property Tax Reimbursement
Auto Daily Rental Tax
Taxes on Deeds
State Revenue Reductions
Mobile Home Titling Taxes
Motor Vehicle Carrier's Taxes

X
X

X
X
X

X
X
X
X

Shared Expenses:

X

X

Categorical Aid:
From the Federal Government:
Payments in Lieu of Taxes:

X

X

Categorical Aid:

FIXED

X
X

X

SCHOOL FUND (NON‐TAX REVENUES)
School Non‐Tax Revenues

Fiscal Impact Model Overview, April 2018

X

Page 12

Gateway – Airport) currently is zero. The Board of Supervisors can raise this rate when needed to generate funds
to help fulfill ongoing payments to the Washington Metropolitan Area Transit Authority (WMATA) for provision
of Metrorail transit services to these stations.
Figure 3 Metrorail Tax Districts

Personal property revenues – Personal property falls into two general types: vehicles and other property. For the
residential sector, personal property taxes apply to the value of vehicles. The County average personal property
value per residential unit will be scaled (increased/decreased) in proportion to the real property values of the
different unit types compared to the County average.
For nonresidential development, personal property taxes also apply to vehicles, along with computer equipment,
furniture and fixtures, and for some types of development, heavy equipment and machinery and tools taxes.
Wherever possible, these taxes will be attributed to the relevant type of development. For example, most
computer equipment revenues will be attributed to data centers (84%).

Fiscal Impact Model Overview, April 2018

Page 13

EVALUATING FISCAL RESULTS
Fiscal Impact Analysis Report
A report will document the assumptions (including development forecasts) entered into the fiscal model and the
model’s resulting forecasts (model outputs). This report will include tables and graphs designed to answer the
questions presented on page 3 of this paper.
The fiscal model will provide forecasts of the impact of future development, whether based on the proposed
Loudoun 2040 Plan or the Revised General Plan Baseline. Results can be grouped into these three categories:


Net Fiscal Impact (revenues minus expenditures)



Capital Facility and Land Needs
o Capital Facility Needs
o Land Needs



Metrorail Revenues/Tax Base
o Metrorail Tax District Revenue and Tax Base
o Metrorail Station District Tax Base

Two examples of tables which will be included in the report are shown in Attachment 4. These tables are high‐
level summaries, the first of the model’s development inputs, and the second of model forecasts. Both examples
present cumulative, countywide data. Both also include data from the different scenarios included in the model.
Key features of the data to be provided by the fiscal model and described in the report are:


Comparisons of results between the proposed Loudoun 2040 Plan – medium scenario and the Revised
General Plan Baseline: this comparison will show whether fiscal results from the two plans are largely
similar or different, if different – whether the proposed Loudoun 2040 Plan has a better outlook for net
fiscal impacts and Metrorail revenues, and whether any differences between the plans are small or large



Presentation of results by the policy areas that are the focus of this plan: the Suburban Policy Area and
the Transition Policy Area, as well as countywide



Presentation of results by the three Metrorail tax districts: the larger Metrorail Tax District and the two
smaller station districts



Provision of results in both five‐year increments, and also cumulatively over the 2017‐40 forecast period:
providing results over time can highlight how fiscal results vary over time, while cumulatively results
provide a high‐level view of plan outcomes



Comparisons of results between the proposed Loudoun 2040 Plan – medium scenario and both high and
low scenarios for the proposed Loudoun Plan: the high and low scenarios demonstrate how results could
vary, if development occurs more quickly or slowly than forecast under the medium scenario

Fiscal Impact Model Overview, April 2018

Page 14

Major Drivers of Fiscal Impact Results
For any fiscal impact analysis, numerous factors can influence the fiscal results. The following factors vary
between different communities:
Budgetary
 Local revenue structure
 Services provided
 Local service levels (e.g., the ratio of sheriff’s deputies to population)
Development
 Demographic and market characteristics of new growth
 Mix of future residential and nonresidential growth
Capital Facilities
 Capacity of existing infrastructure
 Capital needs
 Capital costs
 Proffers or impact fees available to offset capital costs
The most important of these in Loudoun County’s context are the local revenue structure, the demographic and
market characteristics of new growth, the mix of future residential and nonresidential growth, and proffers
available to offset capital costs.
Local Revenue Structure ‐ Every community has at least one major revenue source, and in some cases, several on
which it is reliant. For Virginia jurisdictions, real property tax revenue is the single largest revenue source, with
personal property taxes, sales taxes, and business and professional occupation license (BPOL) taxes also as
significant contributors. For the fiscal model, attention has been given to the development of a robust set of
product types reflective of development that can occur under the proposed Loudoun 2040 Land Use Place Types,
along with development of real property assessed values and demographic and economic characteristics for these
product types.
Demographic and Market Characteristics of New Growth ‐ Next to a community’s revenue structure, no other
factor has as great an impact on the net fiscal results as the demographic and market characteristics of different
land uses. Examples of demographic and market variables for residential development include average household
sizes, pupil generation rates, and the assessed value of housing units. Square feet per employee and assessed
values per square foot are important characteristics for nonresidential development.
Mix of Residential and Nonresidential Development ‐ One reason communities seek to attract nonresidential
development is to boost tax generation. In general, nonresidential development results in a net positive fiscal
impact (local revenues exceed expenditures) and residential development results in a negative fiscal impact.
However, this result can vary for different uses and in different jurisdictions, based on differences in the revenue
structure and the characteristics of new growth.
Proffers Available to Offset Capital Costs – The capital costs resulting from new development are substantial.
Loudoun County’s proffer policies call for 100% of the costs to be offset, excepting the capital costs for affordable
Fiscal Impact Model Overview, April 2018

Page 15

dwelling units (ADUs) and currently, units that could be developed by‐right on the property (“base density units”).
The fiscal model will reflect that capital costs are largely offset, based on this policy. Any change to reduce proffers
available to offset capital costs would negatively affect fiscal results.

Using Fiscal Forecasts as Part of the Envision Loudoun Planning Process
The fiscal forecasts provided by this process will reflect the land use policies established by the proposed Loudoun
2040 Plan as compared to the Revised General Plan. Differences in results will reflect differences in the
development trajectory over time under either plan. To the extent that the proposed Loudoun 2040 Plan allows
for additional development beyond that allowed under the Revised General Plan, and there is demand for that
development, development trajectories and resulting fiscal results will vary.
Fiscal information is being provided to support the development of the Loudoun 2040 Plan, as one of several
different factors to consider. Since fiscal results rely on forecasted development, along with the other
assumptions presented in this paper, it is important to consider that these forecasts are not precise and definitive
predictions of what will occur in the future. Rather, comparing the results under the proposed Loudoun 2040 Plan
to the Revised General Plan Baseline is a means to understand whether there appears to be differences between
fiscal results under the two plans. Fiscal results can be used to assess:


the fiscal direction (positive, negative, neutral) and



general magnitude (how much) of any differences.

Similarly, Metrorail Tax District revenues and tax base results can be compared between the two plans.

Fiscal Impact Model Overview, April 2018

Page 16

ATTACHMENT 1 – Calculation of Residential and Nonresidential Proportionate Share Factors
Proportionate share factors are used to allocate some revenues and costs (e.g., Fire/EMS and Sheriff) to
residential and/or nonresidential development. TischlerBise has relied on extensive public and private
sector input to establish reasonable “weighting factors” to account for time spent at either residential or
nonresidential development. These factors have been developed through a functional population
analysis. Functional population is similar to what the U.S. Census Bureau calls "daytime population," and
accounts for people living and working in a jurisdiction. These weighting factors are shown below with
yellow shading (default values).
Figure 1‐1. Proportionate Share
FUNCTIONAL POPULATION/PROPORTIONATE SHARE
Loudoun County
Residential
Population

Loudoun County

Residents Not Working
Workers Living in

Loudoun County

Demand
Hours/Day

Demand Units in 2015

Loudoun County

Residents Working in
Non‐Resident Workers

Loudoun County
Loudoun County

Proportionate
Share

368,669
178,476
190,193

Residents Working in
Loudoun County
Residents Working outside Loudoun County

Nonresidential
Residents Not Working
Jobs Located in

Person
Hours

20

3,569,520

59,186
14
131,007
14
Residential Subtotal

828,604
1,834,098
6,232,222

4

713,904

10
10

591,860
933,030

Nonresidential Subtotal

2,238,794

26.4%

TOTAL

8,471,016

100%

178,476
152,489
59,186
93,303

73.6%

Sources: Loudoun County, 2017 FIC Guidelines for 2015 Population; US Census, OnTheMap Application and LEHD Origin‐Destination Empl. Statistics

The functional population analysis starts with 2015 estimates of jobs and population in Loudoun County
(see green highlighting) from Loudoun County (population estimate) and the U.S. Census, OnTheMap
Application and LEHD Origin‐Destination Employer Statistics (employment and commuter estimates).
Residents who work in Loudoun County are assigned 10 hours to nonresidential development and 14
hours to residential development. Residents who work outside Loudoun County are assigned 14 hours to
residential development. Jobs held by non‐residents are assigned 10 hours to nonresidential
development. Residents who do not work are assigned 20 hours per day to residential development and
four hours per day to nonresidential development (annualized averages) to account for time spent
shopping, eating out, and other social/recreational activities.
Based on Loudoun County’s 2015 (most current data available) functional population analysis, the cost
allocation for residential development is 73.6 percent, while nonresidential development accounts for
26.4 percent of the demand.

Fiscal Impact Model Overview, April 2018

Attachments, page 1

ATTACHMENT 2 – Development Characteristic Assumptions by Product Type
Data shown are from Table 1 of the 2017 Fiscal Impact Committee Guidelines, except where otherwise
noted. For household sizes, vacancy rates, and the square feet per employee, long‐run rates are shown
here. The Envision Loudoun fiscal model will incorporate the annual rates shown on tables A‐7a, A‐7b,
B‐3 and B‐7 of the Guidelines for years prior to stabilization at long‐term rates.
Table 2‐1. Residential Product Types

Product Type
Sources
Market Rate
Single‐Family
Detached‐
1
Suburban
Single‐Family
1
Detached‐ Rural
Single‐Family
1
Attached
Multi‐Family
1, 4
Attached, Renter
Multi‐Family
1, 4
Attached, Owner
Multi‐Family
Attached Urban
2, 6
(within 1/4 mile
from Metrorail
Station), Renter
Multi‐Family
Attached Urban
(within 1/4 mile
2, 6
from Metrorail
Station), Owner
Multi‐Family
1
Stacked
Market Rate Age Restricted
Multi‐Family
1, 6
Attached, Renter
Multi‐Family
1, 3
Attached, Owner
Multi‐Family
Attached Urban
(within 1/4 mile
2, 6
from Metrorail
Station), Renter
Multi‐Family
2, 6
Attached Urban

Household Size

Student
Generation
Rate

Vacancy Rate

Assessed
Value

3.78

0.96

2.0%

$683,000

3.39

0.83

5.0%

$827,600

3.09

0.62

2.5%

$473,100

1.97

0.21

6.5%

$176,300

1.97

0.21

6.5%

$331,300

1.85

0.12

5.0%

$193,900

1.85

0.12

5.0%

$364,400

2.42

0.44

5.6%

$332,600

1.97

0.0

6.5%

$141,000

1.97

0.0

6.5%

$264,800

1.85

0.0

5.0%

$155,000

1.85

0.0

5.0%

$291,300

Fiscal Impact Model Overview, April 2018

Attachments, page 2

Product Type
Sources Household Size
(within 1/4 mile
from Metrorail
Station), Owner
Affordable Dwelling Units
Single‐Family
Detached‐
1, 3
3.78
Suburban
Single‐Family
1, 3
3.09
Attached
Multi‐Family
1, 5
1.97
Attached, Renter
Multi‐Family
1, 4
1.97
Attached, Owner
Multi‐Family
Attached Urban
2
1.85
(within 1/4 mile
from Metrorail
Station), Renter
Multi‐Family
Attached Urban
2
1.85
(within 1/4 mile
from Metrorail
Station), Owner
Multi‐Family
1, 4
2.42
Stacked
Affordable Dwelling Units, Age Restricted
Multi‐Family
1, 6
1.97
Attached, Renter
Multi‐Family
1, 5
1.97
Attached, Owner
Notes:

Student
Generation
Rate

Vacancy Rate

Assessed
Value

0.96

2.0%

$210,400

0.62

2.5%

$157,000

0.21

6.5%

$104,200

0.21

6.5%

$107,700

0.12

5.0%

$104,200

0.12

5.0%

$107,700

0.44

5.6%

$137,100

0.0

6.5%

$83,300

0.0

6.5%

$92,200

1) Student generation rates for urban multi‐family are derived from Clarion Associates, November
30, 2017. All other student generation rates are set at 90 percent of the value shown in the 2017
Fiscal Impact Committee Guidelines.
2) Valuation premiums do not apply to affordable dwelling units within ¼ mile of Metrorail stations.
Sources:
1)
2)
3)
4)
5)
6)

Loudoun County Fiscal Impact Committee, 2017 Fiscal Impact Committee Guidelines
Clarion Associates, November 30, 2017
Loudoun County Commissioner of the Revenue
Loudoun County Commissioner of the Revenue and Department of Management and Budget
Loudoun County Department of Family Services and Department of Management and Budget
Loudoun County Department of Management and Budget

Fiscal Impact Model Overview, April 2018

Attachments, page 3

Table 2‐2. Nonresidential Product Types

Product Type
Office‐High
Density
Office‐Urban
(within 1/4 mile
from Metrorail
Station)
Office‐Low
Density
Light Industrial
Heavy Industrial
Data Centers
Retail
Retail‐Urban
(within 1/4 mile
from Metrorail
Station)
Other‐Non Public
Other‐Public
Hotel

Sources

Gross Square Feet per
Employee

Vacancy Rate

Assessed Value
per Gross Square
Foot

1

235

10.0%

$160

2, 5

175

7.5%

$176

1

251

10.0%

$160

1
1, 5
1
1

600
700
3,704
350

10.0%
10.0%
6.0%

$99
$99
$214
$221

2, 5

450

7.0%

$232

1, 4
1
2, 3

840
840
1,000

5.7%
1.0%
n/a

$250
n/a
$116

Sources:
1)
2)
3)
4)
5)

Loudoun County Fiscal Impact Committee, 2017 Fiscal Impact Committee Guidelines
Clarion Associates, November 30, 2017
Loudoun County Commissioner of the Revenue
Loudoun County Commissioner of the Revenue and Department of Management and Budget
Loudoun County Department of Management and Budget

Fiscal Impact Model Overview, April 2018

Attachments, page 4

ATTACHMENT 3 – Capital Facility Methodology
Capital needs including the number and types of facilities and resulting land needs primarily will be
generated utilizing the 2016 Capital Facility Standards.
Table 3‐1. 2016 County Government Capital Facility Standards
Building Square Footage

Capital Facility

Up To Acres

Standard
1 Shelter for the County;
Maintain
the
existing
western Animal Shelter for
livestock, large animal
housing, seizures, or other
special needs.

Animal Shelter

25,000 square feet

5

Sheriff Station

18,000

4.00‐5.00

Library

40,000

7

0.6 square feet per capita

General Government
Support Facilities

N/A

N/A

4 square feet per capita

Recycling Drop‐off Centers

3,000 sq.ft. container
pad

0.25

6,050 sq. ft. parking
area

1 Station per 100,000
population

Maximum of 9 sites; reduce
number of sites when
warranted
based
on
increase curbside
recycling rates

600 sq. ft. pavilion
1,600 sq.ft. container
pad
6,050 sq. ft. parking area

1

Fire Station ‐East

18,000 ‐ 20,000

5

Fire Station ‐ West

18,000 ‐ 20,000

5

1500‐gpm Engine

N/A

N/A

ALS Ambulance

N/A

N/A

1 Ambulance per 10,000
population

Ladder Truck

N/A

N/A

1 Ladder Truck per 25,000
population

Heavy Rescue Squad

N/A

N/A

1 Heavy Rescue Truck per
50,000 population

Tanker

N/A

N/A

1 Tanker
population

Special Waste
Centers

Drop‐off

Fiscal Impact Model Overview, April 2018

1 Center for the County

1 Station
population
1 Station
population
1 Engine
population

per

25,000

per

10,000

per

10,000

per

10,000

Attachments, page 5

Capital Facility

Building Square Footage

Up To Acres

Standard

Brush Truck ‐ west

N/A

N/A

1 Brush Truck per 10,000
population

Transit Buses

N/A

N/A

Park and Ride Lots

N/A

4.00 – 13.00

28,000 square feet

10

Transit Bus Maintenance
Facility
MH Residential Facility
DS Residential Facility

3,400 (SFD)
1,000 (Condo)
3,400 (SFD)
1,000 (Condo)

1 Bus per 3,370 population
1.15 spaces per 100
residents 200 ‐700 spaces
per lot
4‐ 13 acres
70 spaces per acre
1 Facility per 247,500
population

0.25 (SFD)

1 bed per 5,900 population

0.50 (SFD)

1 bed per 5,900 population

Juvenile Detention Center

40,000

6

1 Center for the County

Youth Shelter

8,000

2

1 Shelter for the County

Emergency Homeless
Shelter

9,000

2

1 Shelter for the County

Adolescent Independent
Living Residence

9,000

2

1 Residence for the County

Recreation Center

83,000

15

6 Recreation Centers for
the County

Adult Day Center

7,000

4

1 Center per 15,000
population aged 55+ years

Teen Center

20,000

5

1 Center per 10,000
residents aged 12‐14 years

Senior Center

15,000

5

Community Centers

20,000

6

Satellite Maintenance
Facility

5,000

3

3 Facilities for the County

Regional Park

10,000

200+

5 Regional Parks for the
County

Community Park

800

30‐74

1 Community Park per
25,000 population

Neighborhood Park

400

1‐29

1 Neighborhood Park per
10,000 population

Fiscal Impact Model Overview, April 2018

1 Center per 10,000
population aged 55+ years
1 Center per 45,000
population

Attachments, page 6

Capital Facility

Building Square Footage

Up To Acres

District Park

5,000

75‐199

Group Home

8,000

2

Standard
8 Parks for the County
1 Group Home for the
County

TischlerBise is incorporating Loudoun County’s 2016 Capital Facility Standards into the fiscal model. Using
population forecasts, these standards will generate the incremental amount of demand for new facilities
each year. In some cases, increased jobs in the County will also generate a need for capital facilities.
Examples include public safety facilities and space to support general government functions. In addition
to the facilities included in the Capital Facility Standards, transportation facilities such as roads (expressed
as lane miles) will be included in the fiscal model to reflect costs associated with changes to the
Countywide Transportation Plan. Finally, Loudoun County Public Schools will provide input on the number
of future schools needed, based on each scenario.
Allocation of Costs to both Nonresidential and Residential Development
For facilities that serve both residential and nonresidential development, costs are allocated to both types
of development. The methodology to do this uses the current residential standard and determines the
proportional employment base served, given the relationship between population and employment in
the County today.
For example, the Capital Facility Standard for Sheriff Stations is 1 station per 100,000 persons. Currently,
the jobs to population ratio is 0.45 jobs per capita. Therefore, the model assumes the sheriff station
serves 45,000 jobs (i.e., 0.45 x 100,000 population). Facility square footage and costs for the facility and
land are first allocated to residential and nonresidential development using the proportionate share
factor (73.6%/26.4%) and then are divided by the applicable demand factor—namely population and
jobs.
An example of the calculation is as follows:
Residential Share



Facility Square Footage: (18,000 square feet Sheriff Station] x 73.6% [residential share]) / 100,000
persons = 0.1325 sq. ft. per capita.
Total Costs (Facility and Land): ($14,083,601 x 73.6%) / 100,000 persons = $103.66 per capita

Nonresidential Share



Facility Square Footage: (18,000 square feet Sheriff Station] x 26.4% [nonresidential share])/
45,000 jobs = 0.1056 sq. ft. per job.
Total Costs (Facility and Land): ($14,083,601 x 26.4%) / 45,000 jobs = $82.62 per job

The fiscal model will combine the resulting residential and nonresidential square footage demand, and
resulting costs, to calculate the total for the Sheriff Station.

Fiscal Impact Model Overview, April 2018

Attachments, page 7

ATTACHMENT 4 – Model Output Examples
The fiscal model will be designed to both:



document the inputs used in each model run, and
provide fiscal results, organized to provide answers to the types of questions detailed in the body
of the white paper.

Figure 4‐1 on the following page, is a table that will be used to summarize the inputs into the model for
each of the four scenarios.
Figure 4‐2 on the last page of this attachment, is a table that demonstrates how the fiscal results from
the Proposed Plan can be compared to the Revised General Plan baseline.
While both of these tables present cumulative data, data also will be presented in five‐year increments
to communicate forecast fiscal impact trends over time.

Fiscal Impact Model Overview, April 2018

Attachments, page 8

Figure 4‐1. Scenario Summary
Cumulative Growth Projection Detail
ENVISION LOUDOUN PRODUCT TYPE FISCAL MODEL

CUMULATIVE (Years 2017‐2040)

Scenario 1: RGP
Trend

Scenario 2:
Proposed Plan Low

Scenario 3:
Proposed Plan
Medium

Scenario 4:
Proposed Plan
High

RESIDENTIAL UNITS
Single Family Detached Suburban
Single Family Detached Rural
Single Family Attached
Multi‐family Attached
Multi‐family Attached: Urban
Multi‐family Stacked
Group Quarters
TOTAL RESIDENTIAL UNITS
Total Market Rate Residential Units
Total Affordable Residential Units
TOTAL RESIDENTIAL UNITS
TOTAL POPULATION
TOTAL SCHOOL ENROLLMENT
NONRESIDENTIAL GROSS SQUARE FEET
High Density Office
Office: Urban
Low Density Office
Heavy Industrial
Flex/Industrial
Data Center
Retail
Retail: Urban
Other Non‐Public
Other Public
Hotel
TOTAL GROSS SQUARE FEET
TOTAL EMPLOYMENT

MODEL VERSION:

Filename: Envision Loudoun Product Type Fiscal Model_forWhitePaper_03.28.18.xlsm

RUN DATE:

3/28/2018

Fiscal Impact Model Overview, April 2018

Attachments, page 9

Figure 4‐2. Comparison of Fiscal Results, Proposed Plan to Revised General Plan Baseline: cumulative,
2017‐40
DIFFERENCE BETWEEN PROPOSED PLAN MEDIUM (Scenario 3) and REVISED GENERAL PLAN (RGP) (Scenario 1)
ENVISION LOUDOUN PRODUCT TYPE FISCAL MODEL
Scenario 1: RGP
Trend
CUMULATIVE (Years 2017‐2040)

Scenario 3:
Proposed Plan
Medium

Difference between
Proposed Plan
Medium and RGP

Residential Units
Single Family Detached
Single Family Attached
Multi‐family
Group Quarters
Total Residential Units
Total Households
Total Population
Total School Enrollment
Nonresidential Gross Square Footage
Office
Industrial
Data Center
Retail
Other
Hotel
Total Nonresidential Gross Square Footage
Total Employment

Total Revenues
Total Expenditures
Total Net Fiscal Impacts
MODEL VERSION:

Filename: Envision Loudoun Product Type Fiscal Model_forWhitePaper_03.28.18.xlsm

RUN DATE:

3/28/2018

Fiscal Impact Model Overview, April 2018

Attachments, page 10

STAKEHOLDERS MEETING
AGENDA
Monday, April 9, 2018

6:00 PM Welcome / Administrative Items / Information Updates
•
•

Introductory Comments from Committee Chair – Jeff Salmon
Meeting Objectives – Alaina Ray

6:10 – 6:55 PM High Level Fiscal Impact Assessment Overview
Process Presentation and Discussion
•
•
•

Staff Presentation
Stakeholders Committee General Questions
Round Robin Discussion

6:55 – 7:55 PM Envision Loudoun 2040 General Plan Chapter 6:
Fiscal Management & Facilities Review
•
•
•

Staff Presentation
Stakeholders Committee General Questions
Round Robin Discussion

7:55 – 8:05 PM Break
8:05 – 9:55 PM Envision Loudoun 2040 General Plan Chapter 2:
Land Use Review
•
•
•

Staff Presentation
Stakeholders Committee General Questions
Round Robin Discussion

9:55 – 10:00 PM Next Steps
Important Documents
A.
B.
C.
D.

Agenda 4-9-18
Staff Cover Memo 4-9-18
Envision Loudoun 2040 Chapter 2: Built Environment/Land Use
Envision Loudoun 2040 Chapter 6: Fiscal Management & Facilities

pg. 1
STAKEHOLDERS COMMITTEE MEETING | April 9, 2018

Attachment B

County of Loudoun
Department of Planning & Zoning
MEMORANDUM

DATE:

April 4, 2018

TO:

Stakeholders Committee

FROM:

Ricky Barker, Director of Planning & Zoning

SUBJECT:

April 9, 2018 Stakeholders Committee Meeting

General Plan Chapters
At the April 9 Stakeholders Committee meeting, staff will provide presentations regarding the
following Loudoun 2040 General Plan documents:
•
•

Chapter 2: Built Environment/Land Use (Attachment C); and
Chapter 6: Fiscal Management & Facilities (Attachment D).

Most maps and graphics have not yet been embedded into these draft General Plan Chapters;
however, some of the maps will be available at the April 9 meeting. Also, significant work is still
underway on Chapter 2, particularly related to the Introduction Section and the Place Types.
These sections are are still in progress and will be completed and provided prior to the April 30
Stakeholders Committee Meeting.
Discussion regarding the draft chapters will be conducted in the “round robin” format used to
review the previous chapters. If changes to the chapter language is preferred, please feel free to
provide the specific alternate language during the meeting so that those changes can be
incorporated into the chapters if the Stakeholders Committee agrees to the revisions.
As previously promised, Staff Positions will be provided if staff does not support certain
Stakeholders Committee recommendations. These Staff Positions will be carried forward for
consideration by the Planning Commission and Board, if the Positions are still applicable at that
time.
Staff is still evaluating the Stakeholders Committee’s recommendations for the Transition Policy
Area and has not yet reached a position as to increased density in this policy area. Staff will
continue to evaluate the impacts of allowing additional potential residential development in the
Transition Policy Area and will provide a Staff Position as soon as feasible.

2|Page

Regarding the Stakeholders Committee’s recommendation to reclassify certain Rural Policy Area
land bays to Transition Policy Area, staff has previously indicated that it does not support this
recommendation. As such, below is a Staff Position related to Chapter 2: Built Environment/Land
use.
Chapter
2

Stakeholders Committee
Recommendation

Staff Position

Reclassify Land Bays P1, P2, and Q1 from Staff does not support reclassifying any
Rural Policy Area to Transition Policy Area land within the existing Rural Policy
Area

High Level Fiscal Impact Overview Process
Also at the April 9 Stakeholders Committee meeting, staff will provide a presentation regarding
the High Level Fiscal Impact Overview Process. A white paper is being developed to accompany
this presentation and will be distributed to the Stakeholders Committee by Friday, April 6. As a
reminder, the full fiscal impact and transportation modeling results will be provided to the
Stakeholders Committee at the July 9 meeting. Any final recommendations from the
Stakeholders Committee as a result of the fiscal and transportation model results will be
forwarded to the Board of Supervisors and Planning Commission.

Loudoun 2040 General Plan Draft Version: April 9, 2018

Chapter 2 –
Land Use
Vision
Loudoun will carry forth our successful land use and growth management policy while promoting
well-planned, high quality development including new development opportunities that fulfill our
goal of providing a full spectrum of housing and employment options linked to supporting
commercial, entertainment, educational, agricultural, and recreational activity.

What is New
The County has accommodated a high rate of growth over the past decades by concentrating new
development in the Suburban Policy Area where utilities and roadways can serve the population
more efficiently. Accommodating the planned growth while maintaining a rural landscape and
agricultural economy in the West is one of the reasons that Loudoun is recognized as one of the
best counties in the United States to live, work, and play. Much of Loudoun’s success is due to it
previous land use planning that has guided, managed, and directed growth in appropriate locations.
Loudoun County’s growth management strategy has comprised an approach that 1) focuses the
location and intensity of development in eastern Loudoun and around towns, which maintains the
agricultural character, pastoral landscapes, and natural resources of the County’s rural areas; 2)
uses service standards and development forecasting to plan the location and timing of investments
in infrastructure, facilities and services; and 3) calculates a fair share contribution by new
development towards associated capital facility impacts. This approach recognizes that more
concentrated population centers better facilitate the provision of emergency response services,
roads, utilities, and public facilities. Further, the location of such services and facilities often
guides subsequent development patterns. By concentrating these services in the urban and
suburban areas of the county and appropriately scaling their availability and levels of service in
the rural areas, the county can facilitate growth patterns that help achieve long term land use and
fiscal goals.
Loudoun will continue to be an attractive place for development given its geographic location in
the region, school system performance, and notable quality of life measures. However, new land
use policies and approaches are needed to address a limited land supply, the County’s connection
to the regional Metrorail network through the Silver Line extension in 2020, and the growing
demand for new development options.

Priority Receiving Areas for New Growth and Development
Loudoun 2040 has established priority receiving areas for new growth and development to assist
in guiding future growth and development. This was based in general on availability of
infrastructure and the degree of difficulty associated with redevelopment and revitalization
projects.
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Loudoun 2040 General Plan Draft Version: April 9, 2018

1.
2.
3.
4.
5.

Areas Near Silver Line Stations
Suburban Infill Areas
Mixed Employment
Redevelopment/Revitalization Areas
Transition Policy Area

The highest ranked priority area was proposed around the future Silver Line metro station areas,
followed by vacant Suburban Policy Area (SPA) infill properties, mixed employment areas
(formerly Keynote), and targeted redevelopment/revitalization areas. Staff recommended these
areas because the County already has existing or planned public facilities to serve future growth
and development; therefore, additional development in these areas is more fiscally sound. The
lowest ranked receiving area was proposed for the Transition Policy Area (TPA) because of the
limited existing and future facilities planned in this area and the significant transportation capacity
needed to serve new growth and development. Loudoun 2040 does not call for any increasing in
density or new land uses in the TPA with the exception of several areas adjacent to the boundary
of the TPA which will be discussed later in this chapter.

Changes to the Suburban Policy Area
•

Providing more flexibility in land use planning – Although many of the designated land
use categories (Place Types) have a predominate use, there is flexibility to consider other
uses provided they are compatible and provide appropriate transitions to adjacent existing
uses.

•

Allowing a mix of uses (including residential) in areas previously designated for Keynote
Employment – Suburban office development has seen little to no growth or demand in a
number of years. The Committee has generally designated the Keynote Employment areas
of the current Revised General Plan as a Mixed Employment Place Type that maintains a
predominately non-residential designation, but also allows for residential development of
compatible scale to encourage future development in these areas.

•

Allowing for appropriate infill residential development for undeveloped/underdeveloped
parcels – With less than 1,200 acres of developable land left in the SPA and the potential
high demand for new housing units, the Committee is recommending that the overall
planned density of a number of undeveloped/underdeveloped infill parcels be changed
from 4 dwelling units per acre to 6 dwelling units per acre. In addition, a number of larger
infill parcels have been designated for a mixture of housing types with up to 24 units per
acre.

Creating an Urban Policy Area
•

Designating urban mixed use areas – The Committee has also addressed the need for
designating Urban Areas, which also include the Silver Line planning area. The new Urban
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Policy Areas have been divided, generally, into two mixed use types: 1) Silver Line Metro
Stations with highest intensity/transit-oriented uses, and, 2) walkable places that are not
Metro-related with lesser intensity of use along Route 7. The intent of these areas is to
provide for walkable mixed-use and transit-oriented development that will support
anticipated growth, offer a diversity of housing to meet changing housing needs, and offer
flexible land use policies to allow for innovation and changing market demands over time.
•

Designating Transit Station Mixed Use – The land area around the proposed Silver Line
Metro Stations has been designated as a Transit Station Mixed Use Place Type. This
designation will not denote where residential is appropriate or inappropriate. Instead, the
plan will reference the 65 Ldn Airport Overlay District and state that residential uses are
not supported within this area. This approach would provide flexibility so the
Comprehensive Plan would not have to be amended should the boundaries of the Overlay
District be changed as a result of the new airport noise study. These Transit Station Mixed
Use areas are recommended for a mix of uses in an urban environment. This land use
recommendation specifies vertical development providing for multi-family, commercial,
entertainment, cultural, civic, and recreational uses to support denser urban living. The land
area within ¼ mile of the transit stations will be planned for up to 125 dwelling units per
acre and no height limit. Land area outside of the ¼ mile of the transit station would be
planned for up to 48 dwelling units per acre and up to 8 stories.

•

Designating redevelopment/revitalization areas – The Committee addressed the need to
identify and designate areas for redevelopment of aging and underperforming properties
and corridors, such as older auto-centric shopping centers, older areas around Old Sterling,
which are ideal locations for introducing new mixed use projects to re-invigorate and reactivate the community activity in those areas. Policy recommendations include providing
incentives, promoting public-private partnerships, investing in public infrastructure
improvements and providing land use flexibility to encourage redevelopment,
revitalization, and adaptive reuse of these areas.

•

The Stakeholders Committee has stated support for a general recommendation to allow
increases in density beyond those listed for the underlying land use category based upon
the provision of affordable/workforce housing above the minimum requirement. The
details related to such a policy are currently being developed by staff and will be presented
to the Stakeholders Committee as part of their review of the draft General Plan chapters.

Changes to the Transition Policy Area:
•
•

Establishment of new land use place types that promote the guiding principles, provide for
better plans for the use of open space, and create an opportunity for increase density based
upon meeting certain performance standards.
Identify specific areas acceptable for increase residential development based upon specific
evaluation criteria (i.e., transportation, environmental, compatibility, and proximity to
services).
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Loudoun 2040 General Plan Draft Version: April 9, 2018

•

Land use recommendation for light industrial along Sycolin Road and the Greenway and
expansion of commercial areas at certain intersections along Braddock Road and Route
50.

Introduction
As the Suburban Policy Area approaches buildout and as new urban centers are developed near
Metrorail transit stations, the county’s growth management policies require further refinement to
ensure that they align with the public’s expectations about growth as they relate to where it should
occur, how fast it should occur, and how impacts can be mitigated. Consequently, this plan
introduces new Policy Areas – the Urban Policy Areas – to help meet the ends of the growing
county and its increasingly diverse citizenry. The Urban Policy Areas are envisioned as a collection
of dense, mixed use, transit-oriented communities that will more efficiently absorb much of the
County’s anticipated growth while taking advantage of the Metro Silver Line rail transit extension.
The five Policy Areas described in this chapter provide the geographic foundation for the county’s
growth management and land use strategies. In keeping with the current strategies, the majority of
the county’s growth is envisioned to occur in the Urban and Suburban Policy Areas in the eastern
part of the county. Rural Policy Area policies continue to promote the current low-density,
agricultural character of western Loudoun to support a robust rural economy. The Transition
Policy Area will continue to provide a visual and spatial transition between rural and higher density
areas of the county while allow for strategic land use changes.

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Loudoun 2040 General Plan Draft Version: April 9, 2018

Infill and Redevelopment
Vision
A community where careful investment in services, facilities, and growth management maintain
the vitality and quality of our neighborhoods, revitalize underused areas, and redevelop those
parcels that can help create and maintain complete communities where people feel connected to
each other and to places that are expressions of community character.

Introduction
Loudoun County is a maturing community. For the last several decades, the approach to planning
and zoning focused on managing and directing rapid suburban growth on primarily undeveloped
land, or greenfield development, in eastern Loudoun County designated for growth in the Revised
General Plan. Today, much of eastern Loudoun County, known as the Suburban Policy Area, has
been developed and there is a limited supply of land remaining for new greenfield development.
With the period of greenfield development ending in the Suburban Policy Area, Loudoun County
has reached a critical juncture in its planning and development history. Additionally, some existing
neighborhoods and commercial and employment centers are aging, underutilized, and at risk for
disinvestment and decline. Development efforts will begin shifting to a greater focus on
redevelopment in aging areas, infill development on the few remaining vacant parcels, and
adaptive reuse of existing buildings, complimented with revitalization initiatives as needed. These
types of development bring unique challenges and opportunities that are inherently different from
greenfield development. Since some future development will come in the form of redevelopment,
infill, or adaptive reuse, and some areas of the County would benefit from revitalization, the
following policies and implementation steps establish a supportive environment for these
development types.

Opportunities
With redevelopment, infill development, and adaptive reuse comes opportunities. Redevelopment
offers communities the opportunity to reimagine underutilized or underperforming sites, create
unique places, and include amenities desired by residents. Infill development maximizes the use
of public investments and existing infrastructure, offers an opportunity to develop a more cohesive
development pattern, encourage reinvestment, and can create meaningful connections between
neighboring developments. Adaptive reuse projects can support historic preservation goals,
generate activity within vacant buildings and underutilized areas, and preserve iconic or prominent
buildings exemplifying community character while maintaining compatibility with the
surrounding neighborhood. Each can also provide opportunities to diversify housing stock. These
projects result in upgrading or retrofitting older or substandard infrastructure for the site and
surrounding area and generally increase the value of a property and contributions to the tax base.
Projects within the County’s developed areas should result in efficient extensions or connections
of utilities between developed sites, improved levels of service and potential reduced user costs,

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Loudoun 2040 General Plan Draft Version: April 9, 2018

and alleviated development pressure in areas planned for limited growth and not adequately served
by infrastructure.

Revitalization Need Emerging
Suburban development in Loudoun County is relatively new and is just beginning to experience
decline that can occur in aging suburbs. As Loudoun’s communities continue to age, the need for
revitalization to support and enhance these neighborhoods and commercial centers will emerge.

Revitalization in Potomac and Sterling
The Potomac & Sterling communities are two of the oldest and most diverse communities in
Loudoun County. With neighborhood development beginning in the 1960s, the communities are
mostly built-out. Housing stock has been in place for approximately 50 years and a need for
revitalization has emerged. The 2007 recession also significantly affected Potomac and Sterling,
with the largest concentration of foreclosures and subsequent vacancies in the County occurring
in these communities and compounding the decline of the area.
Recognizing the need for revitalization in Potomac and Sterling, the Loudoun County Department
of Planning and Zoning undertook a community outreach project in 2008. During the outreach,
residents identified needs and desires to improve community vitality through redevelopment, infill
development, and adaptive reuse. They asked for revitalization efforts that would stem decline in
the community. Community members expressed concerns that poor neighborhood maintenance
created blight conditions and caused an increase in crime. Furthermore, residents worried their
neighborhoods lacked law enforcement personnel, neighborhood volunteer watch groups, and teen
programming.

Progress since Community Outreach
In recent years, the County undertook certain recommendations born from the Potomac and
Sterling Outreach. To address the foreclosure issue and the deterioration of housing, the County
made considerable investment of Community Development Block Grants (CDBG), tax dollars,
and Neighborhood Stabilization funds; provided grants to non-profit housing providers to purchase
and renovate homes to sell to low and moderate income families; and provides loans and grants
directly to qualified residents through several programs. The County also revised the Zoning
Ordinance to address community appearance issues and began proactive code enforcement, as well
as established a full service Eastern Loudoun Sherriff’s Substation in Sterling Park.

Challenges
Redevelopment, infill development, and adaptive reuse projects also face particular challenges
which are different from the challenges of greenfield development. Common challenges include:
•

The County’s land development regulations generally address greenfield development
and lack the flexibility needed to address site constraints and facilitate redevelopment or
infill development projects.

•

Redevelopment sites and adaptive reuse projects are often in need of infrastructure
improvements and experience other fiscal challenges that result in projects that are more
costly than greenfield development.
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Loudoun 2040 General Plan Draft Version: April 9, 2018

•

Redevelopment sites are often owned or leased by multiple entities, making it difficult to
craft a unified vision and project.

•

Redevelopment projects may displace populations because market-provided affordable
housing is demolished or rents and property taxes increase due to the new development.

•

Potential opposition from the community is often one of the biggest challenges for
redevelopment, infill development, and adaptive reuse projects.

Considering the complexity of challenges related to these projects, developing a community vision
for redevelopment, infill development, and adaptive reuse projects in anticipation of such projects
is critical but often missing. The County should take a leading role in developing this community
vision by identifying and prioritizing areas that would benefit from redevelopment and
revitalization, and conducting proactive planning efforts to establish this vision. In addition, the
County should require developers to consider and include community input for infill projects. A
community vision endorsed by the locality provides assurances to developers and the community.
It also identifies the locality’s role in advancing such projects.

Public Input
Loudoun County citizens provided input on redevelopment, infill development, and adaptive
reuse topics during the Envision Loudoun process. The prevalent public comments, summarized
below, on these important planning topics informed development of the Infill and
Redevelopment policies.
•

The creation of more mixed-use, walkable communities as part of redevelopment projects
is important to the community.

•

Residents envision revitalized or redeveloped older shopping centers in the Suburban
Policy Area, such as Cascades Plaza and Sterling Plaza.

•

Members of the community support redevelopment and infill projects that offer housing
choices.

•

The community expects redevelopment and infill projects to protect environmental and
natural resources and provide open space.

•

County residents recognized redevelopment or infill development projects should occur
only where the transportation network and public services are available to support them.

•

Citizens seek the addition of amenities such as bus stops, sidewalks, and crosswalks in
older residential neighborhoods and commercial centers in the Suburban Policy Area.

Principles
The following principles guide the redevelopment, infill, adaptive reuse and revitalization policies,
strategies, and actions of Loudoun 2040 for:

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Loudoun 2040 General Plan Draft Version: April 9, 2018

•

Make a great place through quality redevelopment of aging areas, infill development, and
adaptive reuse that complements, strengthens, and benefits surrounding communities.

•

Support an enhanced quality of life and a strong sense of community where people feel
connected to each other and to places that are expressions of community character.

•

Encourage efficient use of land and maximize the use of existing infrastructure, public
facilities, and community amenities.

•

Foster redevelopment and revitalization of aging or underutilized commercial and
employment areas.

•

Foster infill development that is compatible with existing neighborhoods.

Addison McDonald residential development is
an example of infill development in
Brambleton. Two parcels, each with a
residence, and totaling approximately 7 acres
will be developed with 39 townhouses
surrounding a village green and will be
annexed into the neighboring HOA.

Lucketts Community Center. The County
has adaptively reused several historic
schools for community centers in rural
villages, providing gathering places while
protecting
iconic
buildings
and
community character.

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Loudoun 2040 General Plan Draft Version: April 9, 2018

Policies, Actions, and Strategies
Policy 1: Redevelopment, infill development, and adaptive reuse projects and
revitalization initiatives will enhance quality of life and neighborhood character, fulfill
community needs, and improve economic opportunities.
Strategy

1.1. Facilitate community engagement for redevelopment, infill development, adaptive reuse,
and revitalization initiatives to build County and community support for future projects.
Actions
A. Identify and prioritize areas for redevelopment, infill development, adaptive reuse,

and revitalization, and create a common vision and objectives for these areas through
a public process.
B. Address redevelopment, infill development, adaptive reuse, and revitalization as part

of community and small area plans.
C. Identify methods for ensuring developers will follow through on commitments to

communities that are products of a facilitated engagement process between the
developer and the surrounding neighborhoods and developments.
D. Evaluate the creation of overlay districts to encourage revitalization and convey

community support and buy-in for investment in priority/targeted areas.
Strategy

1.2.

Support projects that provide community amenities, fulfill community needs, and
benefit the surrounding communities.

Actions

A. Conduct analysis of local market demands to determine what is needed to foster
successful redevelopment.
B. Evaluate the appropriateness of mixed use
Redevelopment Guidelines
development for projects through the small
area plan process.
1. Require redevelopment projects
C. Ensure projects increase and diversify
replace, at a minimum, markethousing opportunities when in conformance
provided affordable units lost
with other Plan policies.
through
a
redevelopment
D. Develop strategies to address displacement
process.
and housing affordability when
redevelopment occurs.
2. Require the provision of
E. Encourage annexation of residential projects
comparable
community
into adjoining HOAs to make the provision
amenities
lost
through
of amenities more economical.
redevelopment.
F. Develop criteria, such as site constraints,
important resources, and community amenity
gaps, to identify infill sites appropriate for use as park, civic, and open space rather
than private development.
G. Endorse the development of interim uses on underutilized properties that are
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Loudoun 2040 General Plan Draft Version: April 9, 2018

compatible with the surrounding development pattern.
Strategy 3
Enhance established residential communities specifically in need of revitalization and will not
involve a redevelopment project.
Actions
1. Identify and prioritize neighborhoods with an emerging need for revitalization and
reinvestment, and work with these communities to identify needs and desires and
build support for revitalization.
2. Identify strategies to preserve and enhance a community’s sense of place and social

fabric.
3. Identify, and include in the Capital Budget, capital facilities improvements necessary

to support revitalization in targeted areas.
4. Identify and utilize funding sources for community revitalization strategies.
5. Educate the community about funding sources for home improvement and repair.
6. Provide incentives and resources for the provision of community amenities, such as

pedestrian/bicycle facilities, sidewalks, traffic calming, street lighting, and bus stops,
as well as cultural centers and community gathering places.
7. Develop incentives that encourage the private sector to improve retail and commercial

establishments in targeted areas.
8. Provide resources for community-based initiatives, such as neighborhood volunteer

watch groups and teen programming.
Strategy 4
Facilitate redevelopment, infill development, and adaptive reuse projects through technical
assistance, an improved regulatory framework, and streamlined review processes.
Actions
1. Provide general project guidance, such as best practices, tool kits, examples of
“approvable” development types, and profiles of successful projects.
2. Provide development process and planning and zoning support services and technical

assistance for specific projects.
3. Develop and maintain a redevelopment webpage with information and resources for

residents and developers.
4. Develop zoning regulations and design standards that acknowledge the need for

flexibility, existing conditions and constraints, and previous development standards;
allow for innovative design and emerging development types; and provide certainty and
clear direction for developers.
5. Develop incentive programs for qualifying projects such as an increase in permitted

density where infrastructure is available, reduce fees, or expedite review processes.

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Loudoun 2040 General Plan Draft Version: April 9, 2018

Strategy 5
Incentivize redevelopment, infill, and adaptive reuse projects, and revitalization efforts in priority
areas to be established by the County.
Actions
1. Evaluate and implement the use of fiscal tools to incentivize redevelopment, such as
tax increment financing (TIF), public improvement districts (PID), or utility upgrade
financing.
2. Evaluate entering into public-private-partnerships to initiate redevelopment and

adaptive reuse efforts and reduce development risks in priority areas.
3. Direct public investment and resources to priority areas to facilitate redevelopment.

Strategy 6
Achieve unified site design, efficient use of existing infrastructure, and maximum land development
potential through the consolidation of small, adjacent, underutilized properties.
Actions
1. Facilitate redevelopment of multi-ownership sites through a planning process that
engages owners and the larger community in the creation of a shared vision for the area.
2. Create incentives for parcel assembly and funding opportunities for infrastructure
improvements associated with redevelopment projects to alleviate private sector risk and
costs.

POLICY 2
Recognize adaptive reuse of existing unused or underutilized buildings as an
opportunity to establish or reinforce a community’s identity and sense of place.
Strategy 1
Support adaptive reuse projects that provide cultural activities and community gathering places.
Actions
1. Use the Heritage Preservation Plan to guide the adaptive reuse of historic resources.
2. Establish a collaborative program for adaptive reuse projects to foster entrepreneurship

and encourage innovative ways to reuse buildings and sites.
Strategy 2
Prioritize adaptive reuse of existing buildings with historic significance or importance to a
community over demolition.

POLICY 3
Promote redevelopment and infill projects that balance compatibility and
integration with new housing choices and innovative designs.
Strategy 1
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Loudoun 2040 General Plan Draft Version: April 9, 2018

Redevelopment and infill projects will be evaluated based on compatibility and the integration of
the development within the context of the surrounding development patterns. (RGP-C)
Action
1. Ensure redevelopment and infill development that is consistent with the Place Types land
use structure and further the goals and objectives of the Loudoun County Comprehensive
Plan. (WP)
2. Ensure residential development on infill sites that is designed to fit into the surrounding
context. (Developed by Stakeholders Housing Subcommittee)

Guideline
Evaluate redevelopment and infill projects using the following criteria:
a. Place type designation;
b. Size of the subject parcel relative to surrounding parcels;
c. Relationship to established development pattern;
d. Compatibility of site design with or without buffering from adjoining properties;
e. Transition to adjoining properties;
f. Residential densities on adjacent parcels, projects, or landbays;
g. Range of proposed housing types and choices;
h. Intensity of proposed uses;
i. Mix of uses provided;
j. Building form and scale;
k. Vehicle, bicycle, and pedestrian connectivity;
l. Provision of community green spaces and other amenities;
m. Protection of environmental resources and restoration of degraded resources on the site;
n. Amount and location of open space and impervious surface;
o. Adequate public facilities and services, transportation facilities, and infrastructure; and
p. Effect of noise, light, and traffic generated on the site.

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Loudoun 2040 General Plan Draft Version: April 9, 2018

Quality Development
Introduction
Loudoun County has consistently focused on promoting a high quality of life for its residents by
establishing standards that encourage high
quality developments. Quality Development is
Community Input
the term that this Plan will use to refer to a broad
area of topics related to the visual and physical The context and appearance of the
qualities that new development should possess, built environment was the second
such as sensitive integration of the natural and largest theme from the Listening and
built
environments,
sustainable
energy
Learning workshops. Comments from
technology, pedestrian and bike friendly
mainly
concerned
environments that promote activity and participants
connectivity in spaces between buildings and preservation and maintenance of
developments, accessible and connected parks natural landscapes and open space,
and open spaces, context sensitive site and
high quality development where it is
building design that promotes compatibility
between adjacent developments and land uses, approved, and the protection of
and well-designed architecture that promotes environmental corridors. As existing
visual appeal and interest throughout the County. developments age, redevelopment
By encouraging quality development, distinctive
will increase and, therefore, policies
identities can be realized for certain areas
through the use of high quality design, siting, are needed to ensure this is done well.
landscaping, architecture, signage, sustainability Lastly, the community expressed a
and other design elements. Loudoun County desire to ensure that a high priority is
intends to encourage a return to historic patterns
placed on the character of new
with an emphasis on high quality design,
compact walkability, and public spaces that can development, especially in terms of
be integrated into the evolution of existing places how it contributes to the county’s
and in the design of new developments.
overall identity and on environmental
Quality Development is a complex topic and practices in the county.
touches upon many aspects of daily life. It
defines where and how one lives, works, and plays in the County. The vision for the 2040 General
Plan identifies quality of life and sustainability as key pieces of Loudoun County’s future. Loudoun
County has consistently focused on promoting a mix of complementary land uses and project
designs that ensure the long-term sustainability, or environmental and economic health, of both
the individual development and the broader community. To maintain and improve the quality of
life in Loudoun County, countywide policies are presented that will allow the County to address
future growth and change. More specific information on multimodal transportation, complete
streets, infill development, and conservation will be provided in the 2040 Transportation Plan,
Infill and Redevelopment section of this chapter, and the Natural and Heritage Resources chapter.

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Loudoun 2040 General Plan Draft Version: April 9, 2018

The Revised General Plan held over 70 pages of design guidelines in order to stream line the
process you will find design guidelines in each policy area as its own section as well as in each
chapter as call out boxes. Loudoun County’s zoning regulations support quality development
through a variety of inter-related provisions. Fundamentally, the lot and building standards
applicable in each zoning district are intended to ensure the proportionality of new development
to the surrounding community, with the integration of open space as a design component in all
geographic settings. The County’s zoning regulations also enhance the quality of new development
through requirements for minimum tree canopy, buffer landscaping and screening, and increased
setbacks from major road corridors. In addition to the Zoning Ordinance, Loudoun County has a
history of accepting proffered design guidelines as a component of the rezoning or legislative
application process to help ensure quality design of buildings, development sites and civic/public
spaces.

SUSTAINABILITY
Sustainability seeks to achieve, in a balanced manner, economic development, social development,
and environmental protection. Many have defined sustainability as development that meets the
needs of the present without compromising the ability of future generations to meet their own
needs. Over the last several decades, Loudoun County has infused sustainability into the
community fabric in order to foster a high quality of life.
Sustainable development calls for practices that are economically cost-effective, enhance human
health and well-being, and protect and restore the environment. Several programs have been
implemented in the County that work towards a more sustainable County. Green Loudoun
(Loudoun County General Services) entails Clean Waters Initiative, Energy Management (Energy
Strategy 2009), Environmental Policy, Stormwater Management (Plan 2013-2018), and Solid
Waste Management (Plan). From FY2010 to FY2018, Energy Use has shifted from using 56%
Electric, 40% Natural Gas, 1% Oil, 2% Propane to 75% Electric, 24% Natural Gas, 1% Oil.
Energy use is the major human cause of greenhouse gases. The electricity sector is currently the
largest emitter of greenhouse gases, followed by the transportation sector; industry, commercial,
and residential fuel use; and agriculture. In 2007, the CES identified if Loudoun County remained
on a business-as-usual track, by 2040 the County would require 46% more energy to manage the
expected growth, while accounting for some expected improvements in the efficiency of both
existing structures and new construction. Over the same period, total greenhouse gas emissions
would increase by 50%.
The County enforces the 2012 IECC (International Energy Conservation Code), the most current
model code establishing the minimum design and construction requirements for energy efficiency.
County policies call for all county-constructed facilities to be constructed to a minimum of LEED
Silver, or equivalent standards. Green building rating systems allow a consistent metric with which
to measure site development and building performance. Also, rating systems raise the awareness
of the environmental impacts of site development and buildings and help determine measures to
minimize those impacts.

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Loudoun 2040 General Plan Draft Version: April 9, 2018

Principles
The following principles guide the Quality Development policies, strategies, and actions of
Envision Loudoun 2040:
•

Make a great place through quality development that complements, strengthens, and
benefits surrounding communities.

•

Encourage a mix of complementary land uses and project designs that ensure the long-term
sustainability, or environmental and economic health, of both the individual development
and the broader community.

•

Foster distinctive identities through the use of high quality design, siting, landscaping,
architecture, signage, sustainability and other design elements.

Policies, Strategies, Actions

Policy 1: Provide flexible design guidelines in all policy areas in the County and
create more specific design guidelines in priority areas of the County that
encourage innovation.
Strategy

1.1.Identify and prioritize areas in the County for more specific design guidelines.
Actions

A. Develop a user-friendly, illustrative design handbook(s). Promotes an overall sense of
place through design elements that relate to block size, circulation and connectivity,
streetscape and street sections, building form, placement (setbacks), orientation,
articulation, Parks and Open Spaces, Public and Civic uses, landscaping, and
sustainability.
B. Create incentives that provide the opportunity to implement all design guidelines.

Policy 2: Development must create a walkable pattern of compact development
implemented by smaller blocks, shorter distances, inter-parcel connectivity, greater
diversity of uses on the same street, and connected open spaces that facilitate
interaction of people and offers a more affordable and convenient lifestyle.
Strategy

2.1. Ensure related County guidelines and regulations encourage this development pattern.
Actions

A. Update County regulations to support this development pattern.

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Loudoun 2040 General Plan Draft Version: April 9, 2018

Policy 3: Development must provide diverse environments and experiences.
Strategy

3.1. Ensure development considers its context and development potential by integrating
uses and the natural environmental features from site to site.
Actions

A. Develop flexible guidelines and regulations that supports this policy.
B. Create incentives to ensure a mix of environments and experiences within a
development.

Policy 4: Space is designed to maximize pedestrian and bicyclist activity, comfort
and convenience.
Strategy

4.1. Development must ensure pedestrian and bicyclist connectivity and safety while
pursuing high quality design.
Actions

A. Create guidelines and regulations that ensure bike lanes, shared spaces and paths
of travel.
B. Create guidelines and regulations that ensure innovative traffic calming designs.

Policy 5: Development should encourage greater interaction between activity inside
buildings and the public realm.
Strategy

5.1. Design guidelines that emphasize the quality of experience in public spaces.
Actions

A. Develop eye-level design guidelines, regulatory features, and additional design
elements that contribute to the quality of the human experience of space and the
built environment.

Policy 6: Development with high quality design and mix of uses encourage longer
stays in spaces and activity in order to create vibrant areas and create a sense of
place.
Strategy
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6.1. Inviting areas will have high quality design elements that imply the ability to stay for
increasing vibrancy, which may in include public/civic gathering spaces, outdoor rooms,
public art spaces and passive / active recreation spaces.
Actions

A. Create guidelines that ensures the siting of public seating, art, landscaping,
outdoor rooms, safety, and other innovative elements maximizes public life
opportunities.

Policy 7: Encourage high quality architectural, site, and landscape design in all
development.
Strategy

7.1. General nonresidential/commercial design guidelines will encourage architectural
creativity and diversity within the framework of the community’s scale and massing.
Actions

A. Develop a user-friendly, illustrative design guideline handbook for
nonresidential/commercial development in priority areas.
Strategy

7.2. Encouragement of the submission of site development and architectural guidelines for
new developments, where applicable.

Policy 8: Encourage sustainability efforts throughout the County.
Strategy

8.1. Support sustainability practices within the Loudoun County Government.
Actions

Strategy

A. Continue to evaluate the energy demands of government buildings as well as
transportation needs and develop plans for energy efficiency.
B. All county-constructed facilities shall be constructed to a minimum of LEED
Silver, or equivalent standards.
C. Continue to evaluate all sustainability efforts.
D. Support Loudoun Water in the expansion of the reclaimed water network.

8.2. Support environmental practices.
Actions

A. Update and implement the County Energy Strategy (CES) to reduce the impacts
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Loudoun 2040 General Plan Draft Version: April 9, 2018

Strategy

of climate change.
B. Evaluate the energy demands of residential and non-residential buildings,
including data centers as well as transportation needs and develop plans for
energy efficiency.
C. Encourage benchmarking the energy use of existing and planned buildings to
establish a baseline for energy demand estimates.
D. Research opportunities for micro-grid energy.

8.3. Support sustainable economic practices.
Actions

A. Promote the Loudoun Sustainable Business Certification with the Chamber of
Commerce.

Policy 9: Encourage sustainable development practices, including long-term water
conservation, green building principles, sustainable site design, renewable energy,
adaptive re-use of historic structures, and integrated energy management planning.
Strategy

9.1. Promotion of water conservation through innovative, cost effective reuse systems,
domestic water saving devices, and low impact development techniques, which integrate
hydrologically functional designs with methods for preventing pollution and educational
programs.
Actions

Strategy

A. Educate and encourage the harvesting of rainwater for non-potable use, such as
landscape irrigation.
B. Establish incentives for sustainable development.

9.2. Promotion of the use of salvaged, recycled, or locally produced materials whenever
possible.
Strategy

9.3. Evaluation of the establishment of Eco-districts within the County.
Strategy

9.4. Promotion of green building standards and green building.

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Urban Policy Areas
Vision
The Urban Policy Areas are complete communities that accommodates living, working, shopping,
learning, and playing in close proximity to each other and in a few areas with access to the
Metrorail. These areas are a high-quality public environment with accessible and connected
spaces, and a rich mix of uses that give a sense of place and distinctiveness. Communities with
development types, patterns, and densities that will create jobs, grow the tax base, and be fiscally
sustainable.

Introduction
The new Urban Policy Areas (UPA) are planned and designed to be strong, diverse regional
activity centers and economic drivers that will be leaders in innovation in the Washington D.C.
Metropolitan Area providing economy-driving employment
uses and urban living opportunities while balancing new Community Input
development with the needs of Washington Dulles Throughout the Envision
International Airport. The UPA entails areas around Route
comprehensive
7 as well as three MetroRail Stations; Innovation Center, Loudoun
process,
Loudoun Gateway, and Ashburn. Route 7 area will focus on planning
making a more walkable community that is connected from participating
residents
One Loudoun Development Route 28 and then Dulles Town indicated higher density in
Center. The three MetroRail Stations is transit oriented
Eastern Loudoun especially
development where the core has the highest density in the
County. These areas are the top priority growth areas in the along major transportation
county where mixed use is emphasized in all in routes
and
MetroRail
development. The process of getting these areas to walkable Stations was desireable.
communities may involve partial infill and redevelopment
These residents were also
due to the current suburban nature. More information about
infill and redevelopment can be found in the Infill and very interested in providing
Redevelopment section of this chapter.
interconnected
sidewalks
The communities will provide a variety of housing choices and trails, and balancing
that offer innovative options for families, empty-nesters, development with green
singles, and seniors across socio-economic groups. They open
space and the
will be communities that are rich in amenities, offering
established
communities
dense mixed-use environments, with a balanced community
of businesses, commercial development, and residential surrounding the areas.
uses. Densities below those envisioned in the land uses
discussed may have an adverse impact on the County’s long-term tax revenue generation potential
and should be avoided unless they are demonstrated to be interim uses that can evolve to an
ultimate desired use that aligns with the long term vision of the Plan.

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The UPA communities has a network of green
spaces that are an amenity for residents while
providing protection of valuable environmental
resources. Characterized by the highest quality
of design, the UPA is known for its livability,
vibrant,
active
neighborhoods,
and
transportation systems.

Urban design characteristics of the
areas will include:

Transportation hubs offering a wide array of
transportation mode choices including walking,
biking, driving, and transit found in all the
communities. The UPA is a place where
walking and bicycling can be convenient travel
modes, diversity of use is nurtured, and public
spaces are beautiful, safe, and accessible. A
grid-form street network is not only necessary
for new development but is convenient, active,
and attractive. This network prevents traffic
congestion, maximize travel choices, and safely
and efficiently move people throughout the area.

• building façades set at the

The UPA is an amenity-rich area with a vibrant
sense of place that appeals to multiple
generations of residents, workers and visitors.
Aiming to be the region’s best places for living,
working, playing, and visiting.

Policies, Strategies, Actions

• small blocks,
• tree-lined grid pattern of
streets,
back of the sidewalk,

• ground floor retail uses with
transparent façades,

• distinctive public spaces,
• streetscapes and street
furniture including public art,
water features, and
landscaping,

• public plaza gathering places
and spaces that promote
culture and the arts,

• and network of green space
that accommodates passive
and active recreational
opportunities.

Policy 1: Ensure walkable development
and connectivity to the community
throughout the UPA as it is important to foster the urban character.
Strategy

1.1. Development designed to provide for a walkable mixed-use environment that
supports multi-modal transportation choices and fosters substantial pedestrian
activity within the ½-mile area and to surrounding areas.
Strategy

1.2. Emphasize walkability in the ½-mile buffer area by providing pedestrian and
bicycle commuter connectivity to the core of the Metrorail stations and surrounding
neighborhoods as well as enabling future connections from undeveloped parcels.
Strategy

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Loudoun 2040 General Plan Draft Version: April 9, 2018

1.3. Support a high level of pedestrian connectivity including connected street grid
patterns with sidewalks, short block lengths, connected trails and pathways
providing connections to surrounding neighborhoods.
Strategy

1.4.The Ashburn and Loudoun Gateway Metrorail Stations will serve as transit and
commuter hubs while providing an urban walkable environment. Development
proposals provide a balance the needs of commuters with the desire to create a
walkable urban environment.
Strategy

1.5. Accommodate a long-term vision with an appropriate mix of residential and nonresidential uses that fulfill daily and convenience needs of its residents and
employees.
Actions

A. Mixed-use neighborhoods accommodate infrastructure plans for near-term and
long-term transit circulator service.
B. Community facilities like schools, community centers, and libraries are located to
allow as many residents as possible to be within a short walking distance.

Policy 2: Key element of the Urban Policy Area is a public realm that is multilayered
within the development.
Strategy

2.1. Densities in the area are expected to sustain an urban development pattern with
pedestrian activity.
Strategy

2.2. The County promotes concepts like outdoor dining, event space, street fairs, and public
art within Compact, Walkable Non-Residential areas.
Actions

A. Accommodate walkable features and amenities like centralized activity areas such as
shopping and dining areas with wide sidewalks, more narrow pedestrian-oriented
streets, transit stops, and community gathering places (e.g. parks and plazas).

Policy 3: Provide a diverse mix of choices in all development.
Strategy

3.1. Accommodate office developments and/or high-employment generating uses
that conform to the overall vision for a walkable urban development pattern.
Actions

A. Create partnerships with universities and private sector companies to foster growth of
an Innovation District at the Loudoun Gateway Station that supports workers and
students in the advanced technology and science industries.
Strategy
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3.2. Development within ½-mile of the Loudoun Gateway Station should reflect the
station area’s long-term vision of a global destination, activity center, and leader in
innovation and entrepreneurship.

Design Guidelines
The Design Guidelines are to build upon our current
high quality development in a manner that allows
innovative design and new responses to the market.
While the Design Guidelines are not regulatory
requirements, the County’s prefers that all future
developments comply with these guidelines. The
Design Guidelines do not supersede or otherwise
limit the application of adopted zoning regulations,
ordinances, building codes, or any other design
standards or regulations administered by Loudoun
County.
All applications for development in the UPA are
expected to include project specific design
guidelines, site plans, illustrative, landscape plans,
building elevations, and other similar graphics that
demonstrate consistency with the UPA Design
Guidelines and planning principles in this
document.

The goals of the UPA Design
Guidelines are to:
• Promote accessibility and
establish links to transit
• Promote walkability
• Encourage human activity
between buildings and streets
• Establish human scale of
buildings at street level (first floor
of a multi-story building)
• Create visually interesting and
compatible buildings and site
designs that use building forms,
materials, fenestration, repetition,
rhythm, color and architectural
variety resulting in delightful
blends of form, volumes, textures
and colors in the various
neighborhoods
• Create inviting spaces for varied
activity
• Create a sense of place and
uniqueness

When using the guidelines make sure to analyze the
impact a potential development may have on the
landscape, considering not only appearance, but
practical considerations such as proximity to
utilities, community amenities, jobs, and housing to
maximize the use of existing infrastructure and limit
travel distances. Development should contribute to
creating unique places within the Urban Policy Area
by working with existing topography and site
features, responding to the local context, and
reinforcing the compact walkable character, rather
than simply attempting to place suburban design onto the urban landscape.

Building Orientation and Setbacks
Buildings, particularly along urban-type streets and “main streets” should have common design
strategies which promote walkability, accessibility and activity in the ‘outdoor room’ or ‘outdoor
hallway’ between streets and buildings.

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1. Locate buildings at the front property line or at the minimum required setback to create a
strong pedestrian pathway framed by adequate spaces for sidewalks, plantings, street
furnishings, and lighting along buildings. Where additional setback is necessary, that area
can be used to create a plaza, pocket parks or public gathering spaces adjacent to the street,
incorporating activity space, outdoor seating, landscape features or water features for
example.
2. Design grade level entrances providing direct access to building entrances from sidewalks
and streets.
3. Make primary entrances to buildings visible from the street and sidewalk.
4. Create primary entrances for pedestrians that are easily identified and accessible with as
direct a path as possible to transit amenities.
5. Maintain at least one entrance from the public way at retail and restaurant establishments.
6. Incorporate transitions from the sidewalk to the front door such as landscaping, overhead
cover (canopies, awnings or trellises) and/or porches at individual entrances to businesses
and residences.
7. Comply with Americans with Disabilities Act (ADA), Universal Design and/or
International WELL Building Institute guidelines at primary pedestrian entrances.
Alternate approaches for persons with mobility limitations (such as a ramp next to the main
path to the primary entry) should not be necessary.
8. Incorporate passageways or alleys into mid-block developments, particularly on long
blocks, that facilitate safe pedestrian movement through the depth of the block to the front
of the next parallel block. Pedestrians should not have to walk the circumference of a block
in order to access the middle of the next parallel block or alley or parking behind the block.
9. Activate use of mid-block passageways or alleys so that they are visually interesting,
functional, well-lit, and safe spaces.

Building Design and Façades
Addressing architectural features of buildings is an important component of creating the ‘sense of
place’ that is desired for the planning area, particularly with respect to the denser and more
intensely used areas.
1. Incorporate different façade treatments such as forms, textures, colors, materials, and
distinctive architectural features that add visual distinctiveness throughout the policy area
while building consistency in their application within individual developments to create
uniqueness and identifiable character of each new development.
2. Add scale and interest to the building façade by articulated massing. Blank or long
expansive walls with no detail or variation in form, color, texture, openings or material are
undesirable, particularly in activity centers and along pedestrian pathways or linkages.
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3. Use of architectural features, enhanced materials, fenestration, planting, lighting, and
signage should contribute to a more pedestrian friendly streetscape.
4. Reinforce the existing façade rhythm along the street with architectural elements,
landscaping, signage, street lighting and street furnishings.
5. Include overhead architectural features, such as awnings, canopies, trellises or cornice
treatments that provide identifiable entries shade and reduce heat gain.
6. Contribute to visual interest, human activity along streets and neighborhood safety by
providing pedestrian scaled windows and fenestrations at the street level that act as
pathways to activity inside buildings and “eyes on the street”.
7. Devote 65% to 75% (minimum) of façade for ground floor retail, restaurants, and
professional office uses to pedestrian entrances and pedestrian-level display windows in
mixed-use environments, along main streets, and other activity centers.

Sidewalks, Streets Trees, and Plantings
Sidewalks, in conjunction with street design and building placement, support ease of pedestrian
movement and link people from their homes to community amenities such as parks, public spaces,
retail and commercial areas, transit stops, nodes, landmarks and the Metrorail stations. Sidewalks
also enrich the quality of the public realm by providing appropriate connections and street
furnishings in the public right of way. Sidewalks create the basis for the concept of the ‘outdoor
rooms’ and ‘outdoor hallways’ which support human activity at planned centers and along
linkages.
Planting street trees and ground cover plantings has proven over time and across urban
development to improve the human experience between building and streets. Along with creating
inviting spaces, comfort for human activity, and positive impacts to the natural environment, street
trees and ground level plantings contribute greatly to the visual appeal of building façades and
outdoor spaces.
1. Create a continuous and predominantly straight sidewalk to support two-way pedestrian
traffic with enough space for streetscape amenities such as street furnishings, street trees,
ground cover plantings areas, street lighting, signage, and utilities.
2. Create amenities that act as a buffer between pedestrians and moving vehicles by the use
of landscape and street furniture (benches, newspaper racks, pedestrian information kiosks,
bicycle racks, bus shelters, and pedestrian lighting, etc.).
3. Use street furnishings to create a consistent rhythm (i.e., consistent height of light standards
or consistent shade pattern of trees) and encourage the activity and use of the sidewalk area
between buildings and streets as an outdoor room.
4. Incorporate closely planted shade-producing street trees to encourage pedestrian activity
along streets and promote comfort in the outdoor activity spaces. They may be interspersed
with existing or proposed street trees. Select native trees and plantings with low
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Loudoun 2040 General Plan Draft Version: April 9, 2018

maintenance requirements. Plant outdoor spaces with ground cover, low-growing
vegetation or permeable materials that accommodate both pedestrian movement and car
door swings where on street parking is designed and planned.

Street Furnishings and Lighting
Street furnishings and lighting should be designed to strengthen the pedestrian experience and
encourage outdoor use and activity in activity centers and spaces between buildings and streets.
These amenities that are located in the ‘outdoor room’ should also serve to create neighborhood
identity and visual coherence with the use of building and street lighting.
1. Provide usable space in the sidewalk areas which should include street furnishings such as
benches, trash cans, kiosks, street gardens, bike racks, outdoor sitting spaces, and public
art.
2. Provide adequate lighting levels to safely light the pedestrian path.
3. Use adequate, uniform, human-scaled and glare-free lighting to avoid uneven light
distribution, harsh shadows, and light spillage.
4. Use poles, standards, fixtures and lighting types that achieve “dark sky” compliant goals
and objectives such as lighting when necessary, reducing glare, use of energy efficient
lighting systems, lighting enough to promote safety and security, and considers ecological
impacts to the natural environment and humans.

On-street Parking
On-street parking provides numerous benefits in urban environments such as reducing the need
for parking decks and parking lots, buffering pedestrians and moving vehicle traffic, vehicle traffic
calming and providing parking near community amenities, businesses and retail uses shaping the
outdoor “rooms”.
1. Provide parallel or angled on-street parking wherever possible.
2. Eliminate street parking within pedestrian crossings.
3. Create traffic calming along streets designed for low speeds.

Public Spaces
Public spaces are areas that serve as centers for human activity which could be a destination, a
space to pass through, or a linkage. These spaces should provide a focal point for gathering,
communicate community or neighborhood identity, and help make for complete neighborhoods.
These spaces could include plazas, promenades, courtyards, park spaces that are landscaped and/or
hardscaped, and should include trees and ground cover vegetation to create inviting spaces for
activity and gathering.
1. Orient buildings so that public spaces receive sunlight as well as provision for high quality,
safe, night lighting.
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Loudoun 2040 General Plan Draft Version: April 9, 2018

2. Balance sunlight accessibility with shade producing trees and overhead cover.
3. Provide a variety of on-site features to maximize use and enjoyment of public spaces,
including but not limited to:
•

Water features / public art

•

Outdoor furnishings

•

Vegetative ground cover, gardens and shade tree plantings/reforestation

•

Use of stormwater management (SWM) best practice features to create open spaces

•

Open spaces for gathering large groups of people

•

Variety of ground cover materials such as permeable and impermeable surfaces as
well as natural ground cover

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Loudoun 2040 General Plan Draft Version: April 9, 2018

Suburban Policy Area
Vision
The Suburban Policy Area contains self-sustaining communities that offer a mix of residential,
commercial, and employment uses; a full complement of public services and facilities; amenities
that support a high quality of life; and a design that incorporates a holistic approach to preserving
and improving community character through compatible development.

Introduction
The 60,000-acre Suburban Policy Area (SPA) is located in the easternmost portion of the County,
in close proximity to the job centers and activity areas located east of Loudoun. The Suburban
Policy Area is defined on the north by the Potomac River and on the south by Braddock Road. Its
eastern edge is the Fairfax County line, and its western edge begins at the Potomac and follows a
southerly path along the Goose Creek just east of Leesburg, the Goose Creek and Beaverdam
Reservoirs, and a combination of property lines, roads, power line easements, and Washington
Dulles International Airport’s 65 Ldn (day-night average noise level) noise contours. The earliest
planned development occurred within the Potomac and Sterling communities during the 1960s
signaling the beginning of the transformation of eastern Loudoun County from farmland with a
centuries old rural heritage to the suburban area that it is today.
The SPA is designated as one of the growth areas of the County and has accommodated most of
the residential and commercial development over the past decades due to the presence of central
water and sewer utilities and an expanded road network. Two major events helped to open the
SPA to residential development: 1) the construction of Washington Dulles International Airport,
and 2) the construction of a major sewer line that accommodated the airport and improvements to
Route 7 and Route 28.
Route 7 and Route 28 have evolved into critical transportation corridors that are contributing to
Loudoun County’s reputation as an international center for technology, communications and
global data management sectors. Given its connection to Dulles International Airport, Route 28
continues to play a major economic role for Loudoun County as a key location for on-going
development. The County is committed to the continuing growth of and need for an economically
vibrant Route 28 Transportation Improvement District, both for the District’s contribution to the
transportation improvements to Route 28 and to the economy of the County. Additionally, the SPA
surrounds three Urban Policy Areas—two near the Silver Line Metro Stations and one around the
Dulles Town Center Mall—that will include new dense, urban, transit-oriented types of
development.

Land Use
The SPA consists of a mix of commercial areas and neighborhoods which provide a broad range
of quality environments. The commercial areas of the SPA are focused areas for employment uses
within a variety of commercial and workplace environments, including traditional office and
industrial parks, mixed use employment centers, and commercial centers.
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Residential neighborhoods in the eastern corner of the County were built between 1960 and 1990,
while neighborhoods built in the western area of the SPA were built in the early 1990s or later.
The older neighborhoods commonly reflect the housing styles and neighborhood designs that were
prominent in the era they were developed and provide a more limited mix of housing types
(primarily single-family) while relying on neighborhood commercial developments located on
major roads like Route 7 for easy access to amenities. The master planned developments west of
Route 28 include a variety of housing types organized around neighborhood centers designed as
the focal point of the community and provide easy access to daily needs. Parks, greenways, and
open space frame developments and link neighborhood residents to nature, neighborhood
destinations, and beyond in both the western and eastern neighborhoods.

Influences and Opportunities
The County will focus efforts on fostering and maintaining community identify within the SPA
and its communities. The SPA is not and should not be one homogenous area. Many existing
neighborhoods in Eastern Loudoun are becoming increasingly diverse, bringing a new set of
expectations and attitudes to these communities. As new development continues in this area, the
roads are becoming increasingly congested. Today, with a growing acceptance of alternative
means of travel and rising energy costs, the lack of transit access and safe pedestrian connections
is a mounting concern. Continuing the County’s goal to create communities with unique
community visions would help identify and strengthen the creation of distinct places within the
SPA, ensure that they are well designed and serviced and that they provide diverse and stimulating
social, cultural, recreational and livable environments for their residents. Policies below address
ways to improve livability through: 1) protecting and enhancing elements of Natural and Heritage
Resources, including open space and pedestrian connections; 2) ensuring compatible and
complementary infill development; and 3) revitalizing existing neighborhoods in a way that
protects and enhances our existing communities. The concept of creating Community Plans is one
which offers tremendous potential to ensure that the vision of the SPA is fully achieved and to
guide the remaining build-out of each area.
Rapid growth in the County, with the majority occurring in the SPA, has put development pressure
on allowing additional development outside of the SPA. Today there is little undeveloped land
remaining in the SPA as most land has already been developed or is approved for development.
With limited developable land in this area, the County is at a juncture in its planning efforts for
greenfield development. Redevelopment and infill will soon begin to play an increasing role in
development decisions within the SPA which will mark a significant shift in the county’s planning
and development activities. Because much of the SPA is currently developed, most new projects
will be smaller in scope and need to be evaluated based on how they can be integrated into the
surrounding community. As the primary location for suburban-scale residential and nonresidential
development, the manner of growth and redevelopment in the SPA is of vital importance.

Growth and Demand
The demographic, market and land use trends of the past decades have led to greater demand for
mixed-use and urban environments. National trends show that changes in typical households (for
example millennials, seniors, empty nesters) may demand different housing types, public services,
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and lifestyle options than provided in the past. To attract top talent, many employers are focusing
on employee satisfaction when considering locations and designs of office space. Employers in
professional services, technology, and innovation sectors are shifting away from traditional
suburban offices towards urban “live, work, play” environments to enhance quality of life. While
the County previously established an overall land-development strategy that encouraged compact,
mixed-use development providing people with the
opportunity to live, work, recreate, and shop in a pedestrian- Community Input
the
Envision
friendly environment, the development that has occurred in Throughout
comprehensive
Loudoun has largely remained single-use and automobile- Loudoun
planning
process,
participating
oriented.
residents indicated strong
Loudoun continues to be an attractive place for residential support for creating a sense
development given its geographic location in the region, of place in communities,
school system performance, and notable quality of life expanding housing diversity
measures. Demand for residential product will need to meet and affordability, and providing
a wide variety of preferences, driven by attractiveness for more arts, cultural, and
families, young adults forming new households, and entertainment uses.
These
downsizing occurring in the Baby Boomer generation. residents were also very
Demand for non-residential development will be driven by interested in the preservation
the addition of new households, the County’s assets, of new and existing “green”
infrastructure, and the County’s technology-related open space, creating more
industries. Retail users will follow new residential public
parks,
providing
development, seeking locations that offer accessibility and interconnected
sidewalks
visibility to an expanding customer base. Other employers and trails, and balancing
seeking office and industrial space will locate in areas that development with green
serve their target needs. The County previously designated open space.
land along its primary transportation corridors for “Keynote
Employment” areas to provide locations for corporate
campus style office development; however, suburban-style office development has stagnated to an
extent that it is no longer considered a significant economic contributor to the County or a
sustainable land use pattern. It is expected that mixed-use developments, such as One Loudoun or
those proposed near the future Silver Line Metro Stations, will be the most attractive environments
for retail and office uses in the coming years. To provide alternative means of addressing office
development and land uses along Route 7, Loudoun County Parkway, and Route 28, the “Keynote
Employment” planned land use designation has been replaced with a number of mixed-use
designations.
In addition, changes in technology over the past decade have contributed to the escalated
development of data centers within the County. To date, there are approximately seventeen million
square feet of data center facilities completed, under construction, or planned. Future demand for
data centers will need to be accommodated in places that have access to utilities, including
electricity, water, and fiber. The supply of industrial and flex space is being outpaced by demand,
resulting in low vacancy rates. As available greenfield sites in eastern Loudoun County become

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more limited, preservation of key tracts for targeted employment uses will be critical to ensure
future economic growth.
Overall, the County’s approach is to ensure future development is complementary to the existing
development pattern of the SPA while supporting the necessary flexibility in form and use that
will be needed to create vibrant mixed-use environments. As each new development is absorbed
into the SPA’s built environment, it will be viewed in the context of its larger community with an
emphasis placed on the character of the development and how it contributes to the needs and
overall identity of the SPA and Loudoun County.

Suburban Policies, Strategies and Actions
Policy 1: Foster community identity within the
Suburban Policy Area.
Strategy
Build upon and enhance the sense of place in the
Suburban Policy Area and its communities.
Actions
Update the County’s adopted Small Area Plans
and create new Community Plans and other
appropriate plans which address the particular
needs and guide the remaining build-out and/or
redevelopment of specific areas within the
Suburban Policy Area.

Community Character
Community character is the
aggregate of features and traits
that form the individual nature
and uniqueness of a community.
It includes the constructed and
natural
landmarks
and
surroundings
that
cause
someone to identify with a
particular place or community.
This character is shaped by
natural,
cultural,
societal,
historic, and economic forces.

Establish design principles for individual
communities within the Suburban Policy Area which ensure a high quality of
development and redevelopment is achieved.
Ensure development and redevelopment proposals conform to the applicable
Development Guidelines of this plan.
Strategy
Enable residents to become more involved in their neighborhoods.
Actions
Develop a public outreach program to educate neighborhood residents regarding
County programs available to them.
Expand civic outreach to involve underserved individuals.
Support citizen organizations in their efforts to improve their communities.
Foster the development of community partnerships to improve community character,
maintenance and safety.
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Invest in programs that allow residents to formulate and assume stewardship of
neighborhood values, standards, and goals.
Strategy
Ensure the compatibility of new development within the Suburban Policy Area with
the existing development pattern which surrounds it.
Action
Evaluate the appropriateness of a proposed use or development with the surrounding
community.
Strategy
Promote the design and development of Suburban Policy Area communities as
walkable and interconnected places.

Actions
The County, in collaboration with other governmental agencies and the private sector,
will ensure through a variety of measures that all public spaces in residential and
commercial areas are accessible by pedestrians.
Retail and office development proposals should combine open and civic space in
features such as pedestrian promenades and plazas, public art, entrance features, linear
parks and trails, outdoor seating, lawns and greens, and similar design features that
invite pedestrian activity.
Require convenient access by foot and bicycle for residential, office, institutional, civic,
and retail areas in the Suburban Policy Area.
The 2040 Transportation Plan will provide additional transportation policy direction
for the transportation network (walkability, multimodal, connectivity) in the Suburban
Policy Area.

Policy 2-Create environments where individuals can work, live, and have convenient
access to services, shops, and recreation.
Strategy
Allow a mix of uses or uses that complement and complete existing communities.
Actions
Provide incentives for redevelopment, infill development and adaptive reuse projects
that will enhance quality of life and neighborhood character, fulfill community needs,
and improve economic opportunities (see Infill and Redevelopment).
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Allow new multi-family residential units to be located within existing commercial
centers, both retail and employment, to bring housing to Employment areas and allow
for more walkable, mixed use communities
Promote residential and office uses above first floor retail.
Allow flexibility in the development phasing for mixed-use projects while establishing
a build-out relationship between the residential and non-residential components that
ensures a mix of uses is achieved and to best balance the fiscal costs and benefits of the
project.
Promote high quality site and building design,
landscape design and buffering in Employment areas Ensure that development
that reflect their function as a in Employment areas
Employment areas gateway to the Urban Areas include detailed concept
include
the and location along major plans, landscape plans and
following
Place vehicular thoroughfare (see illustrative elevations to
Quality Development)s.
demonstrate their design
Types:
Mixed
Employment,
Accommodate
transit and compatibility.
Light Industrial,
infrastructure in Employment
Regional
and
Areas. (see Transportation Plan).
Community
Ensure pedestrian and bicycle connectivity to surrounding
Commercial.
networks and transit nodes within Employment areas.

Policy 3- Support the Route 28 Highway Transportation Improvement District,
established by the State as a means of providing additional local revenue to pay for
improvements to Route 28.
Strategy
Ensure protection of the Route 28 Tax District as an important economic key of attracting
major national and international corporations, and ensuring the long-term viability of
Dulles Airport
Action
Continue the non-residential policy to limit residential development in the Route 28 Tax
District to the three (3) Mixed Employment Centers that are strategically located to
capture high-quality and high-density Office, thereby catalyzing the office development
potential while having an overall positive impact to the County’s Route 28 Tax District
debt obligations.
Once the County’s financial obligation to the Tax District is met, identify specific areas
within the Tax District where the County could consider residential development on a
case by case basis that results in a net positive impact to the County.

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Design Guidelines
The Design Guidelines are to build upon our current
high quality development in a manner that allows
innovative design and new responses to the market.
While the Design Guidelines are not regulatory
requirements, the County’s prefers that all future
developments comply with these guidelines. The
Design Guidelines do not supersede or otherwise
limit the application of adopted zoning regulations,
ordinances, building codes, or any other design
standards or regulations administered by Loudoun
County.

The goals of the SPA Design
Guidelines are to:
• Create visually interesting and
compatible buildings and site
designs that use building forms,
materials,
fenestration,
repetition, rhythm, color and
architectural variety resulting in
delightful blends of form,
volumes, textures and colors in
the various neighborhoods
• Create inviting spaces for
varied activity
• Create a sense of place and

When using the guidelines make sure to analyze the
impact a potential development may have on the
urbanizing landscape, considering not only
appearance, but practical considerations such as
proximity and quality of connectioins to community
amenities, jobs, and housing to maximize the use of
existing infrastructure and limit travel distances.
Development should contribute to creating unique places within the Suburban Policy Area by
working with existing topography and site features, responding to the local context, and reinforcing
the regional character. Sustainability requires maximum consideration for using the landscape for
benefits such as solar heat gain or shelter from wind. Dense areas of buildings should contribute
to a hospitable microclimate. Development should locate close to the road and avoid isolating itself
on the site in order to “maximize presentation.” The bulk of the design should be appropriate to
the function of the development.

Development Criteria:
1. How the use contributes to and complements the existing development pattern;
2. Consider innovative uses that contribute to the surrounding community;
3. Consistency with the desired form, character and land uses of the underlying Place Type;
4. Differences between the height, scale, bulk, setback from the street, or other physical
features of the proposed development and existing development in the immediate area;
5. Presence and quality of a spatial or physical transition between uses;
6. Availability of adequate roads, services and infrastructure; and
7. Relationship to existing Natural and Heritage resources.

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Building Orientation and Setbacks
1. All development should include a site design that is compact and makes buildings the
prominent feature of the site as viewed from adjoining/adjacent roads, especially along
major thoroughfares. Site design and development should strive to minimize site
disturbance and minimize removal of existing, viable vegetation.
2. It is desirable to have civic, open spaces, green spaces, and vegetation to separate parking
lots from buildings and areas for human activity. Civic spaces and green spaces are
encouraged to have public art enhancements.

Building Design and Façades
1. Buildings within larger multi-building developments should exhibit a unity of design
through the use of similar elements such as rooflines, exterior materials, facade treatments,
window/fenestration arrangements, sign location, and architectural styles and details.
2. Large freestanding stores, retail centers, commercial centers, and restaurants should be
encouraged to provide usable outdoor civic or public spaces.
3. Required drainage and stormwater management facilities, such as holding basins, drainage
swales, and culverts should be incorporated as features into the site design of the project,
to the extent possible. Natural drainage features should be conserved to the greatest extent
possible, minimizing impervious facilities to the extent technically feasible.
4. Building massing and walls should be varied to break down the scale of large buildings
and commercial/retail centers. Long, flat facades are strongly discouraged. It is desirable
that building facades should incorporate wall relief, recesses, off-sets, angular forms, or
other features to avoid presenting a "blank side" to neighboring properties.
5. Pitched, mansard, and other distinctive roof forms are strongly encouraged.
6. Rooftop mechanical equipment should be screened. Preferably, screening should be
incorporated into the roof form. Ground mounted mechanical equipment should be
screened.
7. High traffic non-residential buildings should incorporate continuous arcades over the front
walkway to provide weather protection for shoppers and create a pedestrian-oriented
environment.

Sidewalks, Streets Trees, and Plantings
1. Large parking areas should be landscaped with trees and shrubs throughout to reduce the
visual impact, provide shade, and reduce the heat island effect or heat absorption of the
parking area.
2. The street frontage of development should be landscaped with trees to help create a green
edge on both sides of the street.

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3. Existing natural environmental features such as natural topography, hedgerows, mature
trees, and berms should be integrated into the landscape plan for non-residential centers,
when feasible.
4. Non-residential buildings and parking areas should be sufficiently screened and buffered
from adjoining residential areas by distance, transitional uses, landscaping, and/or natural
vegetation to mitigate the effects of noise, lighting, and traffic on the surrounding
residences.
5. Residential areas should be buffered from adjacent retail non-residential uses by trees,
fences, and hedges.
6. Sidewalks should be provided to all development to accommodate benches, bikes, strollers,
trees, and planters.

Street Furnishings and Lighting
1. Provide usable space in the sidewalk areas which should include street furnishings such as
benches, trash cans, kiosks, street gardens, bike racks, outdoor sitting spaces, and public
art.
2. Signs for development should be developed as an integral part of the overall center design.
A unified graphic design scheme is strongly encouraged and in conformance with an
appropriate regulatory framework.
3. Site and building lighting should reduce glare and spillage of light onto adjoining properties
and streets. Fixtures should be attractive site elements that are compatible with the
architecture of the non-residential activity centers.
4. Both lighting and signs should be designed for pedestrians, bicyclists, and vehicles.

Parking, Circulation, and Loading
1. All development should strive to create inter-parcel connectivity for pedestrian and
vehicular circulation to increase pedestrian activity and decrease vehicular traffic on
roadways necessitated by broken inter-parcel connections.
2. Pedestrian traffic, internal to non-residential centers, should be provided with a safe travel
route from the parking area to the building with a demarcated pathway and clear directional
signage. Trees and other plantings should be provided along the walkway.
3. Parking areas should be visually screened from adjacent streets and residential areas by
heavy landscaping, depressing the parking area, and/or by constructing earthen berms.
4. All loading and storage areas must comply with Zoning Ordinance regulations and must
be screened from adjacent residential areas by earthen berms, masonry walls, permanent
wooden fencing, or dense landscaping.

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Transition Policy Area
Vision
The Transition Policy Area is a visually distinct area, providing expansive open space and
recreational opportunities, and accommodating development that promotes
environmental protection, housing diversity, quality design and economic growth.

Introduction
The Transition Policy Area (TPA) is a defined policy
area intended to provide a visual and spatial transition
between the suburban development in the eastern part of
the County and rural development in the west. The
inability to define “visual and spatial transition” has been
an issue in recent years as the County evaluates a
growing number of development proposals in the area.
The Envision Plan defines “visual and spatial transition”
as substantial open space dominating the view from
roads, and a built environment that is small in scale and
giving the area a rural character. The TPA extends over
an area of 23,750 1 acres, constituting 7.1 percent of
Loudoun County’s total area of 333,558 acres.
The TPA is predominantly residential; however, there
are some industrial properties used for quarry activity
and utility infrastructure.
In 2017, there were approximately 5,600 residential
units, parks, schools and commercial development on
16,600 acres in the TPA and 6,170 acres available for
development.
Watershed protection, which is a principal focus of
current land use policy, extends over significant lengths
of the Goose Creek and the Beaverdam Reservoir in the
TPA. Conservation easements and proffers provide the
300-foot setback and larger areas. Loudoun Water owns
land encircling Beaverdam Reservoir while the County
and NOVA Parks own parkland adjacent to the
Reservoir.

1

Between 1991 and 2001, the
geographic area of what is now the
TPA went through four iterations:
a. In 1991, as three suburban
development phases with
ultimate development expected
to occur by 1995.
b. In 1993, the Dulles South Area
Management Plan added Upper
Broad Run to the Dulles South
suburban area at densities
between 3 and 6 units per acre
and added the Upper and
Lower Foley and Lower Bull
Run areas at densities between
1 and 3 units per acre.
c. In 1997, the Dulles South Plan
reestablished a suburban
phasing boundary west of
Northstar Boulevard,
designated Rural Policy Area
until the County chose to
expand the Suburban area.
d. In 2001, the TPA became a
policy area in the Revised
General Plan to be a buffer
between the Suburban and
Rural Policy Areas. Six
subareas of the TPA were
established, each with density
and open space requirements.

Includes 937 acres of land designated Rural Policy Area in previous plans.
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Public Input
Throughout the Envision Loudoun comprehensive planning process, most participants
indicated support for the current TPA policies and land use pattern. Some comments linked
the TPA and the Rural Policy Area together and proposed no change in either policy area.
Participants saw increased development in the TPA as a threat to the rural area. Specific areas
were identified as potential locations for development including the areas adjacent to the
Greenway interchange at Shreve Mill road and near Ryan Road. A significant number of
comments expressed a need for a variety of amenities and services, in particular, more public
parks and trails, and concerns about lack of fire and rescue facilities, medical services, or
neighborhood retail; and the need for public utilities and transportation improvements.

Trends and Influences
Communities and other subdivisions that did not exist in 2001, such as Red Cedar, Evergreen, and
Green Mill Preserve, have created a relatively continuous area of low-density projects and open
space along the western edge of the TPA. Of the 22,800 acres in the TPA, only 6,200 acres are
available for development. However, some of the properties do not have good access to roadways
and/or are significantly limited due to steep slopes and other environmental features.

Growth Pressure
As the capacity to accommodate single-family detached housing decreases in the SPA, pressure
mounts to accommodate that growth in the TPA. Notwithstanding the market trends toward higher
density products and mixed-use environments, a continuing need for suburban-type residential
units is expected. The TPA offers a more compact lot pattern and closer proximity to needed
services, amenities, and targeted areas of compatible, higher density development.
Due to the industrial uses and approved projects in the Lower Sycolin subarea, good east/west
access, and available infrastructure, the area along the Sycolin Road and Greenway corridor is
conducive to employment uses. These uses help to balance the fiscal cost of residential
development and provide for needed light industrial land that is limited in the Suburban Policy
Area.

Infrastructure
In 2005, the County decided to extend central utilities to the TPA. Central utilities attract additional
development intensity.

Transportation
The current road network offers limited capacity and few links to major thoroughfares. Most of
the traffic from the TPA must use Route 50 to travel east. Traffic congestion is a significant
problem. Continuing work on planned road improvements in the area such as Northstar Boulevard,
Sycolin Road, Gum Spring Road and Braddock Road increases traffic capacity. Ryan Road,
Creighton Road, and Shreveport Road offer easterly connections that move traffic without adding
to volume on Route 50.
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Amenities and Services
Since 2005, the TPA has been a source of land for numerous schools and parks. Such facilities
make the land around them more desirable for residential development. All of the development in
the TPA has retained 50 to 80 percent of the property as open space, though most of it is remains
inaccessible to the public.

Proffer Legislation
Virginia Code Section 15.2-2303.4 (E) (ii) and Loudoun County policy limit accepting capital
facilities proffers as a tool in the TPA unless the County expands the Small Area Planning
boundaries adopted by the County in 2016. The County may need other means of mitigating the
fiscal impacts of new development. Refer also to Chapter 6, Fiscal Management and Public
Facilities.

Design
Much of the development in the TPA looks the same as development in the Suburban Policy Area.
Previous rural and countryside village zoning districts, intended to provide a somewhat selfsustaining cluster of housing built around an internal commercial area and community green, have
not created the desired mix of uses and housing variety. This failure to achieve housing diversity
detracts from affordability, as well as, the appearance and desired character of the TPA.

Policies, Strategies, and Actions
Policy 1
Ensure the Transition Policy Area provides a visual transition between
the Suburban Policy Area and the Rural Policy Area, using compact development
concepts, substantial open space, and low profile construction to minimize visual
intrusion into the natural environment.
Strategy
1.1 Accommodate residential and non-residential uses in locations identified on the Land
Use Plan and consistent with the assigned Place Types that support:
a.
b.
c.
d.
e.

clustering development to preserve the majority of the land in open space,
retaining views of the natural landscape,
integrating natural and heritage resources into the design of built space,
protecting and enhancing river and stream corridors, and
screening adjacent development and roadways with appropriate landscaping and
transitions

1.2 Promote community design that provides more unique and innovative residential
communities as opposed to typical single-family subdivision with large lots.
Action
A. Encourage a variety of housing within individual developments by permitting
small and large lot single-family detached units, duplexes, semi-detached units,
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accessory units, townhouses and other housing types that expand affordability
opportunities and support the lifestyle preferences of a diverse community.
B. Modify the rural and countryside village zoning district standards to
accommodate Mixed-Use Commercial Centers and the Transition Neighborhood
Three village development option to expand housing diversity and improve
commercial viability.
C. Require new development to connect to Loudoun Water’s central water and
wastewater systems and encourage existing development to connect to central
water facilities as water lines.

Policy 2
Offer safe and accessible parks and recreation opportunities that
provide diverse activities for all ages, interests, and abilities.
Strategy
2.1
Provide a network of protected open space that maintains natural and heritage
resources and reinforces the TPA’s unique character.
Action
A. Develop a Master Plan for parks, open space and trails in the Transition Policy
Area that: 1) builds on and links to the current planned trails and park areas, and
2) places greater emphasis on quality, connected, usable, and accessible open
space.
B. Protect the drinking water resources of the Occoquan, Beaverdam, and Goose
Creek Reservoirs with natural buffers, improved stormwater management, and
other means.
C. Retain 50% open space throughout the TPA, and seek to reserve publicly usable,
accessible and interconnected open space.
D. Establish programs and regulatory mechanisms to increase publicly accessible
open space, consistent with County facilities plans, through easements, land
dedications and purchase.
E. Require Open Space Plans with individual development applications to illustrate
proposed use, public accessibility, resource protection and connection with other
open space.

Policy 3
Non-residential uses will define the Transition Policy Area as a unique
planning area and include a range of uses that are compatible with desired
development patterns and the rural landscape.
Strategy
3.1
Provide for strategic development of commercial, employment, and public uses in
areas specified on the Place Type Map that are compatible with desired residential
development patterns and the character of the Transition Policy Area.
Action

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A. Require Industrial uses to:
i.
ii.
iii.
iv.
v.
vi.

Be located in locations consistent with the Place Type Map,
Be visually compatible within a rural environment,
Minimize the effects of noise, vibration, odor,
Have access to adequate infrastructure,
Integrate visually into the natural environment, and
Enhance water quality protection when near key water supply reservoirs.

B. Continue to protect the extractive industry (Bull Run and Luck Stone quarries) by
maintaining a quarry zoning overlay district.
C. Establish regulations that ensure new development does not hinder the operation
of quarries.

Design Guidelines
The Design Guidelines are to build upon our current high quality development in a manner that
allows innovative design and new responses to the market. While the Design Guidelines are not
regulatory requirements, the County’s prefers that all future developments comply with these
guidelines. The Design Guidelines do not supersede or otherwise limit the application of adopted
zoning regulations, ordinances, building codes, or any other design standards or regulations
administered by Loudoun County.
When using the guidelines make sure to analyze the impact a potential development may have on
the landscape, considering not only appearance, but practical considerations such as proximity to
utilities, community amenities, jobs, and housing to maximize the use of existing infrastructure
and limit travel distances. Development should contribute to creating unique places within the
Transition Policy Area by working with existing topography and site features, responding to the
local context, and reinforcing the landscape’s character, rather than simply attempting to place
suburban design onto the rural landscape. Sustainability requires maximum consideration for using
the landscape for benefits such as solar heat gain or shelter from wind. It is realistic and necessary
to treat buildings as objects in the landscape and give due attention to their form. Bulky designs
are to be avoided by breaking down the mass into smaller elements that follow natural contours.
1. Designate a minimum of 50 percent of any development as open space that integrates
buildings and parking into the existing natural landscape and provides useable space,
accessible to residents and/or the public:
a. Perimeter open space may be the predominant component of the 50 percent open space
requirement.
b. Community greens, playgrounds and gathering spaces will be distributed within the
development
c. Link open space within the development with pedestrian and bicycle networks to
surrounding neighborhoods.

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d. Link the open space to natural and heritage resources, unique site features, and open
space in other communities.
e. Locate athletic fields along collector roads and visually screen the fields from adjoining
residences although trails and sidewalks should provide a connection with the
neighborhood.
f. Locate low intensity parks that emphasize undisturbed open space in high-visibility
areas or in conjunction with schools, churches, and neighborhood commercial centers
where they can serve as a buffer for adjoining homes.
2. Open space within developments should create or enhance the following:
a. the 300-foot buffer and 200-foot transitional area along the Bull Run in the Upper
Foley, Lower Foley and Lower Bull Run subareas;
b. the 300-foot buffer and 1,000-foot voluntary open space area along the Goose Creek,
Goose Creek Reservoir, and Beaverdam Reservoir in the Lower Sycolin and Middle
Goose subareas;
c. a contiguous network of green spaces to supplement the natural and heritage resources
connecting communities and natural resource areas;
d. a public trail and park network to destinations throughout the area.
3. Development should be located on areas of the site that afford the least disruption of natural
views of the rural landscape.
4. New development will protect the historic context of nearby archaeological and historic
sites and along scenic byway corridors.
5. All development should provide trails and sidewalks connecting to adjacent neighborhoods
and other destinations within and outside the project.
6. Residential Clusters proposed in Transition Neighborhoods should be small in scale and
number of units, supporting typically 5 to 25 residential units, reflecting a traditional
hamlet scale with multiple clusters separated by open space areas, and featuring:
a. No minimum lot size.
b. Predominantly single-family detached residential development.
c. Trails and pedestrian sidewalks in a publicly accessible network linking communities
and amenities.
d. Tree-lined streets constructed at minimum required widths to merge into the open
landscape and slow traffic.

7. Housing diversity and affordability are to be components of larger and higher density
developments such as Transition Neighborhoods 2 and 3 and Commercial Center place
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types by including a mixture of housing types and accessory apartments and a range of lot
sizes and configurations.
8. Include varying densities in villages with higher
densities generally in close proximity to community
green, civic use or small-scale retail uses.
9. Implement diversity in housing size, unit types, lot
sizes, and lot pattern along each street frontage and in the
same blocks to reflect traditional villages.
10. Include pedestrian features, landscaping, short
blocks, few dead ends, and traffic calming features on
village streets.
11. Buildings should be close to the street.
12. Address parking in villages through a combination of
on street and off street choices designed and located to
minimize their visual impact.
13. Develop employment uses at a scale that minimizes their intrusion into the rural and natural
landscape and their impact on surrounding roads and communities by:
a. Screening all outdoor storage and equipment parking areas from adjoining properties
and roads;
b. Minimizing the number of entrances from major collector or arterial roads;
c. Ensuring adequate road and infrastructure capacity;
d. Avoiding continuous plane building surfaces by using articulation, fenestration and
façade treatments, especially when they are visible from public roads; and
e. Separating heavy industry uses from residential areas by locating less-intensive uses
adjacent to residential uses or using natural or manmade barriers between the uses.

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Rural Policy Area
Vision
The Rural Policy Area is an enduring rural landscape that is characterized by a unique composite
of natural and man-made environments, rural economy uses, working agricultural lands, open
space, and a limited residential base, all of which provide a high quality of life.

Introduction
The Rural Policy Area (RPA) occupies the western half of the County and is the largest of the
County’s policy areas. It encompasses approximately 230,000 acres, representing about 67 percent
of the County’s total land area. The RPA is comprised of a unique blend of pastoral landscapes,
working farms, forested areas, mountains, and wildlife habitats. The RPA encompasses six of the
County’s seven incorporated Towns, 12 existing Villages, and numerous smaller crossroad
communities. As of April 1, 2017, the population of the RPA is approximately 40,400 people,
representing approximately 10 percent of the County’s total population.
The RPA is divided into two areas—the Northern Rural and the Southern Rural. Each of these
distinct geographic areas (see Rural Policy Area and Village Map) has different base residential
densities in response to their dominant rural land use and development patterns. The Northern
Rural area (geographically defined as north of Goose Creek and the North Fork of Goose Creek to
the County border with Montgomery, Frederick, and Washington Counties, Maryland; Jefferson
County, West Virginia; and Clarke County Virginia) is characterized by a mix of smaller lots that
are interspersed with larger parcels that are still in agricultural use. The Northern Rural area,
proximate to the Towns within the Route 7 Corridor, has the highest concentration of residential
development and a more developed paved roadway network with easy access to commuter routes.
Additionally, the Route 15 corridor, both north and south of the Town of Leesburg, has
experienced substantial residential growth since the Board adopted the Revised General Plan in
2001. The Southern Rural area (defined generally as south of Goose Creek and the North Fork of
Goose Creek to the County border with Clarke, Fauquier, and Prince William Counties, Virginia)
is characterized by an existing large lot pattern and represents the center of Loudoun’s prominent
equine industry. The Southern Rural area contains a number of large working farms that are
accessed by a network of mostly unpaved rural roads. The Southern Rural area contains Loudoun
County’s largest amount of permanently protected land that is held under voluntary conservation
easements. Both the Northern Rural and Southern Rural areas are marked by a scattering of
Villages and small crossroad communities, which provide limited retail and commercial services
to rural residents and visitors.
The RPA is home to a centuries old farming community that shaped the physical landscape and
the social and economic fabric of Loudoun. However, over the past 30 years, as portions of the
County and the region have become more urbanized, western Loudoun has faced increased
challenges related to demographic changes, land use, economics, and transportation
improvements, which have facilitated and enabled the conversion of land for rural residential
subdivisions at an increasing rate as residents seek an alternative to urban life. The adoption of
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the Revised General Plan in 2001 and the accompanying down-zoning of the majority of the land
in western Loudoun in 2003 and in 2006, marked a dramatic turn in the County’s effort to limit
residential development in the RPA and established an approach for land preservation tied to the
creation of a viable rural economy and the clustering of homes to preserve the rural character of
the land. This Plan carries this approach forward.

Rural Residential
A variety of residential development options exist within the Rural Policy Area, including
conventional subdivision, spin-off lots, and rural clusters which permit different densities. Among
the existing subdivision optioins, rural clusters remain the preferred residential development
pattern in the RPA because these designs better preserve the natural features and open character
of the land by tightly grouping homes on smaller lots so that a majority of the land is available for
rural economy uses, agriculture, and/or open space. The concentration of homes in a rural cluster
also minimize the amount of roads, clearing and grading, and the overall footprint of development
in comparison to a conventional by-right subdivision which require placement of homes on a
uniform size lot dispersed over an entire property.
Between 2000 and 2016, 5,653 residential units have been built in the RPA. The “build out”
analysis for the RPA, which reflects conditions as of July 1, 2016, indicates 91,000 acres of land
is uncommitted to development projects, and this results in the potential for up to 11,643 residential
units under current policy and entitlements. The acreage calculation includes parcels that are
partially or fully developable and excludes floodplain, conservation easements, mountainside, and
steep slope, which do not have development potential. The forecasted development from 2016 to
2040 in the RPA is 7,500 residential units based on current trends, which leaves approximately
4,000 residential units to be developed after 2040. The 2040 forecasts and the ultimate residential
buildout for the RPA may be lower than projected above if property owners continue to retain and
preserve large areas of land for agricultural, open space, and rural economy uses.

Rural Economy
The County’s land development approach for the RPA is to limit residential development so that
land will remain available for the continued operation, expansion, and establishment of agricultural
and rural economy uses that preserve the rural character of the landscape and support the County’s
environmental goals. Loudoun’s rural economy has grown to become a collection of business uses
that currently include crop and livestock production, forestry, horticulture and specialty farm
products, farm markets and wayside stands, the equine industry, orchards, vineyards, farm
wineries, cideries, and breweries, hospitality services such as farm-to-table restaurants, rural
resorts, bed and breakfasts, country inns, banquet/event facilities, private camps and parks, and
other similar uses which are dependent on the rural land base for its agricultural productivity,
scenic quality, and rural character to derive income to sustain business activities. The importance
of these business to the Loudoun County has led to the implementation of a business development
plan for the County’s rural economy that aims to double the growth of the County’s rural economic
sectors within the next decade.

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The 2012 Federal Census of Agriculture identified 1,396 farms in Loudoun County (gross income
of $1,000 or more) with a total of approximately 135,000 acres of farmland in production. Over
half of these farms (824) were less than fifty acres in size and a quarter of the farms (301) were
between fifty and one-hundred and seventy-nine acres. These numbers are slightly down from
2007 when the County identified 1,427 farms with a total of 142,452 acres of farmland in
production. This illustrates a number of changes: 1) a shift in the type of farming in the County as
land and operational costs continue to rise, 2) the subdivision of larger farms into residential lots,
and 3) the decline in the number of farmers. In response to market trends, many farmers in the
County have shifted to the direct marketing of agricultural products to consumers through either
on-farm sales and/or farmers markets to increase profitability. These specialty farms tend to be
smaller in size than traditional farms that produce row crops or raise livestock. These farms include
a number of pick-your-own farms which may have fruits, vegetables, flowers, Christmas trees, and
other farm-grown products available to the public. A number of farms have also implemented
Community Supported Agriculture (CSA) programs where people buy a subscription from a
farmer to receive a weekly share of local seasonal produce, meats and other products (depending
on the farmer’s offerings).
The equine industry is a major component of the rural economy. Loudoun County leads the state
in the number of horses, and the equine industry is the County’s largest agricultural employer
providing over 27,000 jobs associated with the care of these animals and the operation of barns
and stables. The Virginia Tech Equine Center is located north of Leesburg, with Morven Park,
Glenwood Park, and Oatlands providing regional venues for horse events. Other smaller stables
are scattered throughout the County, which provide private lessons, boarding, and camps as well
as host smaller events.
Loudoun County has the highest concentration of wineries in Virginia, with over 45 wineries and
738 acres in vineyards as of 2017. Loudoun County has been marketed as ‘DC’s Wine Country’,
though it also has the highest number of breweries in the state. The County has a total of 25
breweries, six of which are farm breweries located within the RPA. Black Hops Farm, located near
Lucketts, is the site of the region’s first hops processing center and Virginia’s first dedicated
malting operation. As of 2017, there are 10 hops yards in the County with 16 acres in production,
and there are two growers cultivating 140 acres of malting grain for the production of beer and
distilled spirits. Farm wineries, breweries and cideries that grow their own products maintain
significant amounts of land in agricultural use which protects the rural character of the RPA.
The RPA is home to a number of hospitality and tourism businesses which provide thousands of
jobs and contribute millions of dollars to the local economy through visitor spending on
restaurants, retail goods, lodging, and the hosting of weddings and events. County-sponsored
events such as the Spring and Fall Farm Tours, Stable Tours, Wine Trail, Ale Trail and Artisan
Trail allow visitors to enjoy self-guided driving tours which support local growers, producers and
artisans. Numerous community events such as the Bluemount, Lucketts and Waterford fairs draw
thousands of resident and visitors to western Loudoun annually. Heritage tourism is also an
important contributor to the County’s economy, which include the Journey Through Hallowed
Ground National Heritage Area and Scenic Byway, the Waterford National Historic Landmark
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District, Balls Bluff Battlefield and National Cemetery, Aldie Mill as well as other historic sites,
museums and battlefields. Like many of Loudoun’s other rural business uses, these hospitality and
tourism businesses rely on the natural, scenic, and rural character of the RPA to attract visitors.

Farmland Preservation and Protection
To support the rural economy and ensure that agriculture continues as a long-term use in the RPA,
the County will continue to develop and support voluntary participation in programs that provide
assistance and reduced tax burdens to land owners. Such programs and measures as the Land Use
Valuation program, the Agricultural and Forestal District Program, the Purchase of Development
Rights, the Transfer of Development Rights, and public/private conservation easements will be
used to encourage land-owners to use their land to expand the rural economy rather than to convert
it to residential use. These programs also assist in the protection of the RPA’s unique manmade
and natural environment which directly benefit the rural economy.
While the County’s Land Use Valuation Program and the Agricultural and Forestal District
Program support keeping land in production or open space, they are voluntary programs which do
not provide assurances that land will be preserved in perpetuity. The only means of preserving
agricultural land and opens space permanently is through the establishment of conservation
easements on individual properties which restrict residential and non-agricultural uses. Currently
over 70,000 acres are preserved through conservation easement in the County, the vast majority of
these easement are held by private land trusts. The County should commit to supporting efforts to
increase the total acreage of land held in conservation easements as part of an overall land use
strategy to further reduce density in the RPA and ensure that farmland and open space are available
in perpetuity for future generations. The County may consider implementation of the Purchase of
Developments Right program and/or public/private partnerships with existing land trusts to
leverage efforts and funding to support the recordation of additional conservation easements.

Future of Rural Strategy
Loudoun County and its citizens continue to recognize the importance of maintaining and
preserving the farming and equine heritage, cultural and natural resources, open space, and scenic
beauty of the RPA as a fundamental component of the County’s identity, which contributes to the
overall economic vitality of the County and quality of life of its residents. The County’s current
growth management approach, which is being carried forward in this Plan, has been successful in
limiting residential growth and sustaining the rural economy. This approach has contributed to
the County’s economic success through attracting businesses, residents, and visitors while
maintaining the character of the RPA. The strength of the agricultural sector and the rural economy
is a critical component of supporting the economic development and fiscal policy goals of the
County. In the future, development pressures and the incremental loss of productive agricultural
land to residential development will require continued monitoring by the County to maintain the
RPA’s unique character.

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Community Input
Throughout the Envision Loudoun comprehensive planning process, participating residents
indicated strong support for limiting residential development and maintaining the rural
character of western Loudoun County. These residents also strongly support preserving land
in western Loudoun County for agriculture, crop and livestock production, and equine
activities. Other comments, while supportive of agribusiness, tourism, wineries, and breweries,
stressed the importance of striking a balance between preserving the character of the RPA and
promoting a vibrant rural economy.

Policies, Strategies, and Actions
Land Use & Development
The RPA’s land use pattern builds upon natural, cultural, heritage, and agricultural
resources in order to provide character-defining features of the rural landscape.
Strategy
Support uses that protect, preserve, and enhance natural areas and open space, retain farmland and
the vitality of the rural economy, and foster a high quality of rural life for residents.
Actions
•
•

Incentivize the consolidation of underutilized or undeveloped small lots into larger
parcels for agricultural and rural economy uses.
Use public funds to create public and private conservation easements in order to reduce
the land that is available for residential development and to provide land owners with
financial options to support working farms, rural economy uses, and/or stewardship of the
land.

Rural Residential
Limit residential development to protect the land resource for agricultural
operations, rural economy uses, and open space uses; minimize traffic impacts; and
reduce the demand for additional public facilities and services.
Strategy
Where residential development does occur in the RPA, it should be designed in a clustered pattern
that preserves the rural character, works with the land form to preserve and protect natural features,
and conserves land for agriculture, rural economy uses, passive recreation, and open space.
Action
•

Establish subdivision regulations and design standards that improve the design of
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clustered residential development.

Rural Economy
Agricultural and rural business uses that are compatible with the predominant land
use pattern will be developed in a manner that is consistent with the County’s
growth management, economic, and environmental goals.
Strategy
Ensure compatibility of rural economy uses through the evaluation of the scale, use, intensity, and
design (site and building) of development proposals in comparison with the dominant rural
character and adjacent uses.
Actions
•

•

Adopt zoning regulations and development standards for rural economy uses. Such
regulations and standards will address traffic capacity limits, safe and adequate road
access, number of employees, site design standards (i.e., land disturbance, buffering, use
intensity, siting, and architectural features), and public health, safety, and welfare.
Allow the establishment and/or expansion of existing commercial, industrial, and
institutional uses by Special Exception if the use and/or expansion is designed to: 1) be
small in scale and compatible with the rural character, 2) preserve ridgetops, natural tree
lines, farmland, and open space, and 3) meet applicable zoning regulations and
development standards.

Strategy
Promote the retention and development of rural business uses that sustain and support the County’s
agricultural and equine industries.
Actions
•

•
•
•

Adopt zoning regulations and development standards that include new types of rural
business and agricultural uses, permit flexibility for the sale of farm products, and
promote rural tourism, hospitality uses, and similar kinds of appropriate low intensity
rural business uses that are compatible with the character of the RPA.
Develop zoning standards to permit a variety of residential unit types and accessory
apartments for seasonal farm laborers and year round tenant housing to support the rural
economy.
Develop County parks with trail networks, cross country courses, and equestrian riding
rings or other equestrian-related features.
Develop a publicly accessible multi-use trail network (pedestrian, bicycle, and
equestrian) to link private and public lands in the RPA in partnership with nonprofit
entities, land owners, and developers of rural properties.

Strategy
Promote and expand agricultural enterprises and the rural economy, and attract rural entrepreneurs
to locate in Loudoun.
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Actions
•

Promote rural business sectors and community events to support rural tourism, showcase
the rural economy, and strengthen the economic vitality of rural businesses, villages, and
towns.
• Develop a coordinated service approach to assist rural landowners in the review and
development of proposals to maintain agricultural operations, preserve the agricultural
potential of farmland, institute farm and rural business plans, and assist in filing
applications, which support agriculture, agricultural activities, and the rural economy.
• Retain the Rural Economic Development Council (REDC) as an advocacy and advisory
committee on initiatives, programs, and policies that affect the economic growth and
development of rural Loudoun County.
• Support public education and job training in agriculture-based careers to ensure a stable
agricultural work force.
Strategy
Maintain the Land Use Assessment Program to provide property tax relief to retain and support
agriculture, horticulture, forestry, and open space as critical components of the RPA.
Actions
•
•

Amend and update the Use Value Assessment program and other voluntary agricultural
programs (such as Agricultural and Forestal Districts) to strengthen the rural economy,
preserve the rural character, and maintain the viability of farming.
Develop additional incentives to retain and encourage agricultural enterprises and support
land preservation.

Strategy
Promote and encourage the preservation, rehabilitation, and repurposing of farm buildings and
structures to maintain infrastructure for future agricultural enterprises and rural economy uses.
Where possible, rural business uses should locate in existing agricultural and historic structures.
Action
•

Adopt zoning regulations and development standards to facilitate the use of existing
agricultural and historic structures.

Strategy
Support and increase farming activities and maintain a resilient food network for local
consumption.
Action
•

Promote community supported agriculture (CSA); the direct sale of farm products
between farmers and local consumers including farmers markets, local restaurants and
retailers; and the establishment of a permanent year-round indoor farmers market in the
eastern portion of the County.
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• Facilitate effective distribution and assist in the marketing of locally grown products.
Strategy
Protect farming and farmers from nuisance complaints in accordance with the Virginia Code
provisions of the Right to Farm Act.
Actions
•
•

Develop zoning regulations and design standards that protect the right to farm.
Provide educational programs about farming practices and activities to reduce potential
conflicts associated with the proximity of agriculture to nonagricultural uses.

Design Guidelines
The Design Guidelines are to build upon our current high quality development in a manner that
allows innovative design and new responses to the market. While the Design Guidelines are not
regulatory requirements, the County’s prefers that all future developments comply with these
guidelines. The Design Guidelines do not supersede or otherwise limit the application of adopted
zoning regulations, ordinances, building codes, or any other design standards or regulations
administered by Loudoun County.
When using the guidelines make sure to analyze the impact a potential development may have on
the landscape, considering not only appearance, but practical considerations such as proximity to
roads, utilities, and community amenities to maximize the use of existing infrastructure and limit
travel distances. Development should contribute to creating unique places within the Rural Policy
Area by working with existing topography and site features, responding to the local context, and
reinforcing the landscape’s character, rather than simply attempting to place suburban design onto
the rural landscape. Sustainability requires maximum consideration for using the landscape for
benefits such as solar heat gain or shelter from wind. It is realistic and necessary to treat buildings
as objects in the landscape and give due attention to their form. Bulky building designs are to be
avoided by breaking down the mass into smaller elements that follow natural contours and reflect
the historic pattern of development in the RPA.
1. Avoid locating development on ridge lines or hill tops to retain the rural character of the
landscape and protect significant viewsheds.
2. Site development to preserve existing land forms and minimize significant alterations to the
topography while incorporating natural features, trees, hedgerows and other vegetation into
the design to provide visual buffers between parcels.
3. Locate development within the landscape to minimize their visibility from roadways and
other properities.
4. Provide trail connections when feasible to link private and public lands in the RPA as part
of a multi-use trail network.
5. Rural Cluster subdivisions are a land development design that compactly groups houses on
smaller lots as small as a quarter acre in a traditional community pattern while preserving

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a.
b.
c.
d.
6.

large tracts of land for open space, agricultural production, and/or rural economy uses to
preserve natural features and the rural character.
Use existing topography, hedgerows, mature woodlands, and other site features to influence
the location of the clusters to maintain the rural and scenic quality of the landscape.
Vary lot sizes and setbacks to provide a compact cluster of building lots and maximize open
space.
Cluster development to retain large areas of agricultural soils for farming.
Encourage the use of communal water and wastewater systems to serve cluster
developments to protect water resources.
Develop rural economy and rural business uses at a scale and intensity that minimizes their
intrusion on the rural and natural landscape and their impact on surrounding roads and
properities.

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Villages
Vision
Villages are important historic settlements that possess significant heritage, cultural, social, and
economic assets that contribute to the character of the Rural Policy Area.

Introduction
The County recognizes the Villages as important features of the RPA that possess unique scenic
and historic resources, act as gathering places for citizens, provide services to the surrounding
community, and support rural tourism. There are 12 existing Villages (see Rural Policy Area and
Villages Map) identified by the County located in the Rural Policy Area: Aldie, Aldie Mountain,
Bluemont, Lincoln, Loudoun Heights, Lucketts, Neersville, Paeonian Springs, Philomont, St.
Louis, Taylorstown, and Waterford. Many of the Villages were established during the 18th and 19th
centuries, in areas located around historic mills, railroad depots, or major crossroads that later
developed as commercial and mercantile business centers that served the surrounding farming
communities.
The Villages have gradually developed over a number of years and feature a variety of building
setbacks, types, and styles as well as streetscapes that reflect the historic growth and character of
the individual villages. The Villages are dominated by residential dwellings with some commercial
structures that have upper floor apartments and offices. Small scale, non-residential uses, such as
country stores, restaurants, antique shops, and other retail establishments that meet local needs and
support tourism, are located within the Villages. In addition, numerous civic uses, such as
churches, post offices, community centers, fire and rescue stations, and schools, are also located
within the Villages.
The County’s land development approach for the Villages is to limit new residential, business, and
commercial activities to uses that are compatible with the historic development patterns,
community character, and visual identity of the individual villages. By encouraging compact, new
residential and non-residential development within the Villages, these policies complement the
County’s efforts to preserve open space and maintain the character of the rural landscape. Although
limited new development is anticipated in the Villages, new development should not pose a threat
to public health or safety. Only three of the existing Villages—Aldie, St. Louis and Waterford—
are currently served by public community wastewater systems, and Aldie is the only village that
is served by a private water company. The remainder of the properties located within the Villages
are currently served by individual water wells and septic sewage systems (i.e., conventional
drainfields, alternative systems, etc.), which limit the potential scale and intensity of development.
Additionally, a number of the Villages are bisected by major roadways that experience high
volumes of commuter traffic and impact the quality of life of residents. With careful planning and
growth management, the Villages will maintain their scenic and historic character, as well as their
social and economic viability.

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Policies, Strategies, and Actions
New development and uses in Villages must be compatible with the historic
development pattern, community character, visual identity, intensity, and scale of
the individual villages and enhance the quality of life for residents.
Strategy
Encourage the retention and development of a variety of appropriately scaled residential and
commercial uses that enhance the attractiveness and vitality of the Villages.
Actions
•

•

•

Develop small area plans and master plans for the Villages to support community goals
and address issues related to land use and zoning, economic development, natural and
historic resources, community facilities and services, water and wastewater, and
transportation to maintain the character of the villages.
Retain existing Rural Commercial (RC) zoning in the Villages and consider amendments
to better meet the needs of village residents. Develop criteria to evaluate existing Villages
to determine if their current designation is warranted and amend the Comprehensive Plan
and Zoning Ordinance as appropriate.
Develop criteria for evaluating other crossroads communities in the RPA for designation
as Villages and amend the Comprehensive Plan and Zoning Ordinance as appropriate.

Strategy
The scale, size, massing, and design of new buildings will adopt building forms and architectural
styles related to the individual character of the village. New buildings will be oriented on their
site to maintain the existing street pattern, street design, and relationship to other buildings to
reinforce the historic development pattern of the village.
Actions
•
•

Develop zoning regulations, design standards and guidelines to achieve compatible
building and street design to ensure that quality development occurs within the Villages.
Clearly differentiate entrances into the villages from surrounding areas through
appropriate street design, landscaping, and building placement.

Strategy
Preserve the character of the villages and their historic structures and sites through the
rehabilitation and adaptive reuse of existing buildings.
Action
•

Establish and expand the County Historic Zoning Districts for the Villages.

Strategy

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Higher than existing residential densities within the Villages will be supported when the design
of the project reinforces the character, development pattern, and identity of the village.
Conventional, suburban forms are not appropriate in or contiguous to Villages.
Action
•

Adopt zoning regulations and design standards to encourage traditional housing on
smaller lots, allow accessory apartments attached to single-family residential units, and
allow residential units above commercial/retail uses within the Villages to provide
housing options. (Policy 5 & 8)

Strategy
Business and commercial uses in the villages should be small scale, compatible with existing
development, meet local community needs and support rural tourism.
Action
•

Adopt zoning regulations, design standards and performance criteria that are specific to
the types of small-scale, community-related commercial uses that the County encourages
within the Villages.

Design Guidelines
**To be Added**

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Towns and JLMAs
Vision
The western Towns will continue to be hubs of economic and cultural activity in western Loudoun.

Introduction
The seven incorporated Towns in Loudoun County offer a window to the County’s past and are a
key component of its unique character today. All have existed as independent incorporated entities
for more than a century, first as agricultural business centers, providing markets for farm products
and the necessary goods and services for rural residents. While still influenced by their agricultural
tradition, the Towns play a larger economic and cultural role that includes retail and service-based
businesses, educational opportunities, medical centers, and industrial centers.
The Joint Land Management Areas (JLMA), in place since 1991, intend to accommodate the
outward expansion of the Towns. The JLMA have specific zoning regulations that offer a range
of densities, design guidelines and utility requirements. While Round Hill, Purcellville and
Hamilton have seen extensive development in the JLMA it has not always reflected the design
and historic character of the Towns. Lovettsville, Middleburg and Hillsboro chose not to have a
JLMA because of utility constraints, concerns about growth, or a desire to concentrate inside
their existing limits. Leesburg’s JLMA has developed in the manner recommended by Town and
County plans and has a distinct suburban pattern.

Community Input
Public comments received during the Round 1 and 2 Community Outreach and Engagement
efforts during the Envision Loudoun process primarily addressed the larger rural area and
generated few town-specific comments. Comments that did reference the Towns supported
improvements to amenities and services such as bike ways and trails, grocery stores, gas
stations, entertainment and performance arts venues, affordable housing, recreational facilities,
teen centers, senior centers, libraries, parks, and playgrounds.

Trends and Influences
General
Loudoun County’s longstanding goal is for the Towns to extend their boundaries to accommodate
new development in the JLMA areas that reflects the character of the Towns through street layout,
building diversity, and density; however, this has not come to fruition. While the Towns have
extended utilities, most intend to limit annexation for fiscal reasons.
Most Towns support retaining and adding public facilities, and have expressing concern for the
loss of existing schools and facilities. A number of comments spoke to the desire for trail
connections between Towns, connecting the W&OD Trail to Franklin Park and Round Hill as well
as a connection between the C&O Canal in Brunswick, Maryland, and the W&OD Trail. Round
Hill is also exploring its proximity to the Appalachian Trail as an economic development
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opportunity and considering connections between Franklin Park and the Town’s park at Sleeter
Lake.

Hamilton
Hamilton’s population has not increased over the last decade, though, the existing JLMA around
Hamilton and the adjacent Rural Policy Area along the north side of its boundaries have developed
with residential uses. Hamilton has extended utilities outside of its boundaries and has water
facilities in the JLMA, but does not foresee expansion of the JLMA. The exiting school and school
support facilities on the western edge of the JLMA serve to separate the community from
Purcellville.

Hillsboro
Hillsboro annexed adjacent properties previously split by the Hillsboro/County boundary;
however, beyond these additions there are no plans to expand the boundaries. Large open space
easements, along with sensitive environmental areas, create a natural greenbelt around Hillsboro.
Heavy traffic on Route 9 affects the community, which continues to seek ways to mitigate these
affects.

Leesburg
Leesburg is unique by virtue of its geographic location and size, as well as its larger institutional
role as the County seat. By its location, it functions and appears to be more of an urban extension
of suburban eastern Loudoun, with higher intensity development and a significantly larger
commercial sector than other towns. Between 2001 and 2016, Leesburg added 5.5 million square
feet of retail, commercial, office, and institutional development and approximately 4,300
residential units. On the south, west, and north sides of Leesburg there is no JLMA; instead,
policies support a half-mile wide greenbelt and a “hard edge” between the Rural Policy Area and
the Town.
JLMA land uses reflect Leesburg’s Comprehensive Plan and no major changes to land use are
foreseen in the JLMA. Leesburg’s focus is on transportation improvements in the bypass corridor
and continued economic activity in the downtown area. Leesburg does provide utilities to the
JLMA. Completion of Crosstrail Boulevard could significantly increase development interest in
the JLMA east and south of Leesburg, but the loss of several tracts of land to residential
development may limit additional industrial potential.
Residential development is planned in the JLMA area north of Route 7. The area is subject to
Virginia Code Section 15.2-2303.4, which constrains the County’s ability to accept capital facility
proffers to reduce the fiscal impact of new residential development. Chapter 6: Fiscal Management
and Public Facilities, details the means of mitigating the impact of new residential development.

Lovettsville
Lovettsville continues to focus on development inside its existing boundaries and prefers a “hard
edge” between its boundaries and the surrounding rural landscape. Lovettsville has made
significant investments in streetscape improvements and trails. Commercial development has also
occurred at the Town Center and along E. Broad Street. The amount of available land inside
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Lovettsville’s boundaries is significantly smaller than it was in 2001 but several large tracts are
developer-owned. While utilities extend outside Lovettsville’s boundaries for health and public
facilities, there is no desire to expand, partially due to the responsibility Lovettsville would have
to assume for maintenance of the local roads if its population exceeds 3,500 residents. Lovettsville
supports continued cooperation on transportation and public facilities, with a strong interest in trail
connections to a County system that connects the C&O Canal and W&OD trails.

Middleburg
Middleburg prefers to maintain a “hard edge” between its boundaries and the surrounding rural
landscape, rather than add a JLMA. Middleburg desires to retain policies that support ongoing
projects and programs, such as streetscape improvements, andto continue cooperation with the
County related to transportation and traffic calming. Issues of concern for Middleburg include
retaining the rural character of Route 50, increased traffic, retention of school facilities, and the
loss of community center space.

Purcellville
Population growth projections for Purcellville indicate that the population could increase by
approximately 5,000 people by 2040, which could equate to as many as 1,780 new homes in the
area. Employment may increase by over 5,000 jobs during this time. This growth may increase the
need for transportation improvements, such as the Route 690 interchange and the Route 7
Bypass/Route 287 intersection. Purcellville supports trail connections, particularly between the
W&OD Trail and Franklin Park. As Purcellville considers potential future growth, issues of
concern include limiting residential density and discouraging low-revenue uses, such as parking
lots, storage, and warehousing.

Round Hill
Growth potential within Round Hill’s boundaries is very limited, with a projected buildout of only
20 additional residences. In contrast, the JLMA around Round Hill has experienced the addition
of 1,200 new homes and approximately 3,000 residents over a 16-year period. Approximately 400
additional homes can be built in the JLMA. As development in the JLMA increases, Round Hill’s
ability to balance revenue and costs will be a significant consideration in annexing these residences
into Round Hill’s boundaries. The Town continues to seek commercial gateways at the east and
west entrances to Town and is constrained downtown by the lack of space. Continued maintenance
of the local roads by the Virginia Department of Transportation is also a growth consideration,
should Round Hill wish to increase the size of its boundaries through annexation.
There is a desire to expand public-use facilities and provide the community with additional
amenities, such as a daycare, senior center, and community center. Round Hill also has an
opportunity to become an Appalachian Trail community by taking advantage of its proximity to
Bear’s Den and Blackburn trail stops.

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Policies, Strategies, and Actions
Policy 1
The County will support conservation of historical and cultural
resources in and around the Towns to preserve the identity of each Town distinct
from the surrounding rural area.
Strategy
1.1 Encourage new development to locate within the Towns before moving into the
JLMAs or surrounding area.
Action
A. Encourage the maintenance, improvement or adaptive re-use of existing
housing stock in a manner supporting social and economic diversity within the
community.
B. Promote the commercial areas within the Towns as the preferred location of
retail and service businesses, office development, and major civic uses.
C. Work with the Towns to enhance their economic base and maintain viable
commercial areas through marketing, capital investments, and business
attraction.
Strategy
1.2 Encourage community-design concepts with new development in the JLMA that
extend the existing and planned development patterns of the Towns.
Action
A. Coordinate with the Towns on planning and development in areas surrounding
the Towns to promote balanced fiscal growth by undertaking joint planning
efforts in the JLMAs, referring to Town and County policies applicable to
development applications, and offering technical support.
B. Implement a greenbelt around the Towns and/or their JLMAs through
conservation design efforts, preservation of natural resources and location of
passive and active parks to help maintain the distinct character of each Town.
C. Encourage annexation by the Towns when water and sewer extend into a
JLMA.
D. Support the Towns in negotiations with VDOT and other relevant agencies for
safety improvements and traffic calming, particularly along Route 50, Route 7,
Route 9, and Route 287 in proximity to the Towns, and other changes in roads
and/or transportation services that are consistent with both the Town’s and the
County’s development goals and priorities.
E. Assess the effectiveness of the JLMA approach and associated zoning to
protecting town character or maintaining a “hard edge” between the town and
the rural area.
Strategy
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1.3 Continue to recognize the Towns as the preferred location of public facilities in
western Loudoun County when land is available for development.
Action
A. Encourage the continued use and enhancement of existing public facilities
located in the Towns and JLMAs and seek to maintain existing communitybased schools as an important social and economic component of the
communities.
B. Cooperate with the Town Councils of those communities providing local law
enforcement to ensure a coordinated enforcement strategy within the Town
JLMAs.
C. Support development of sidewalks and recreational, multi-use, and equine trails
connecting the Towns to each other, to regional trail networks such as the
W&OD and C&O Canal, and to area destinations.

Design Guidelines
1. Support the preservation and protection of historic, cultural, and environmental resources
in and around the Town.
2. Support development of distinct “gateways” into each community and protect rural view
sheds leading into the towns.
3. Protect scenic views along roads leading into the Towns through measures such as revised
State Road Improvement Standards; scenic or conservation easements; the creation of
historic corridor overlay zoning; and development setbacks.
4. Encourage a variety of housing types and commercial development that are compatible
with the existing communities and extend in a contiguous, rational and convenient manner
from the Towns.
5. Encourage residential communities that exhibit:
a. A variety of lot sizes and, where permitted, a variety of unit types;
b. A street network without cul-de-sacs and P-loop streets with numerous connections to
Town streets;
c. An interconnected block pattern with compact lots, shallow front and side-yard
setbacks, and block sizes of 300 to 600 feet;
d. Sidewalks along all streets, providing access to the town or neighborhood center, public
buildings, parks, and other destinations;
e. A compatible mix of residential and non-residential uses such as home-occupation
businesses, churches, and schools;
f. A hierarchy of parks, squares, or greens that provide a combination of natural and
passive open spaces throughout the development; and;
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g. A central public focal point consisting of any combination of a park (village green); a
public facility such as a church or community center; natural features; or neighborhood
commercial uses.
6. Review proposed neighborhood streets and collector roads for their connection to existing
streets and preservation of natural, historic, and cultural features.

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Chapter 6 - Fiscal Management &
Public Infrastructure
Vision
County residents will benefit from high quality, efficient and environmentally sensitive
infrastructure systems supporting County growth management goals and providing innovative
services to the community.

Goals
Well-designed places providing a full spectrum of housing and employment options linked to
supporting commercial, entertainment, educational, agricultural, and recreation activity.
A community of diverse individuals united together to ensure that all residents enjoy a high quality
of life through vibrant, fulfilling, and healthy active lifestyles, celebrating all that is unique to the
County.

What is New
As the County’s population becomes more diversified and technology-driven, Loudoun 2040
supports a wider range of facilities, and infrastructure. Policies support new programs and
facilities, such as libraries offering language programs, computer labs, design software access, and
robotics programs, long range water supply plans using quarries as reservoirs and alternative
means of addressing public health issues.. The Plan emphasizes useable open space and provides
flexibility to build on existing open space assets. The eastern area of the County will continue to
become more urbanized, particularly around the transit stations, and Loudoun 2040 encourages
developing new and innovative designs for public infrastructure and facilities within an urban
environment. Fiscal strategies support expanded consideration for the county-wide net fiscal
impacts of individual projects, community-based facility standards and greater flexibility in
meeting the capital facility needs.

Introduction
Sustained growth since 2000 required Loudoun County meet a significant demand for new public
facilities, such as Parks and Recreation, Fire and Rescue, and Schools. The County has maintained
a reputation for quality facilities and services, and exceptional fiscal management. Loudoun
County’s success lies in establishing a close connection between land use and fiscal planning.
Similarly, managing utilities, principally sewer and water, has had a direct influence in where new
development occurs. Consistent policies and close collaboration with Loudoun Water has allowed
the County to maintain an urban growth boundary, and to subsequently focus other investments in
roads and public facilities in eastern Loudoun. Loudoun Water’s strategy for a long-term water
supply and its investment in high quality water and sewer treatment provide the County with a
strong basis for growth decisions.
The fiscal management and operational priorities of the companies and authorities that are
independent of the County, but operate key utilities serving Loudoun County, are not addressed
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by this Plan. Nonetheless, the cooperative relationship between Loudoun Water, State Department
of Health and others, and the County Board of Supervisors continues to ensure a close connection
between infrastructure and land use planning.

Topics

Public Facilities
The County maintains a fiscal management strategy enables the County to anticipate and
accommodate the impacts of increased demand for public services and facilities. This strategy is
innovative for local government, involving the integration of land use planning, fiscal
management, and facilities planning. At the Board’s direction, key planning tools were developed
over a period of years to help ensure that Loudoun County retains a high quality of life and an
economic balance that allows an affordable tax rate.
The County’s fiscal program requires the Board to adopt a ten-year Capital Needs Assessment
(CNA) every two years after public hearing and recommendation by the Planning Commission,
and the annual development and adoption of a six-year Capital Improvement Program (CIP) by
the Board during annual budget deliberations. Careful forecasting of development, including its
location, type, and timing, generates anticipated facility needs through the CNA while also
projecting accurate per capita and per student cost forecasts that are translated into cost per
residential unit. Projecting capital needs associated with new development establishes expected
impacts and anticipated fair share contributions during the development process. The CNA
describes the general location, character, and extent of public facilities needed over the 10-year
period. The annual CIP funding plan and budget then aligns annual capital expenditures with
County fiscal policy.

Open Space Assets
Open space assets as defined in this chapter include greenways and trails and open space
easements. These elements may be held in private or public ownership or a combination thereof.
The County and individual property owners manage these elements through the regulation of
protective buffers, donation of open-space easements, purchase-of-development rights, and
performance standards. There are over 70,000 acres of land, equating to approximately 21 percent
of the County, protected in private conservation easements and another 3,600 acres of land owned
and managed by Homeowners Associations.
The Board of Supervisors established the Purchase-of-Development Rights (PDR) Program in
2000 as a tool to protect Loudoun County’s open space and its cultural, natural, and agricultural
resources; however, funding of the program was eliminated in 2004. Another tool available is the
Transfer of Development Rights (TDR), in which development potential for a property targeted
for preservation is applied to a property in an area of the County suitable for development. TDR
is available during rezonings to gain higher density on properties suitable for development. Both
PDR and TDR are voluntary programs in Virginia.
The Use Value Assessment program and County-designated Agricultural and Forestal Districts are
tools used to protect rural land uses and prime agricultural soils by limiting subdivisions to lot
sizes of greater than or equal to the base lot size in the AR-1 or AR-2 zoning districts (20 & 40
acres) and prohibiting cluster subdivisions. However, these tools do not protect the land in

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perpetuity. The Use Value Assessment Program provides tax relief to landowners to protect
farmland for future agricultural use and historic and scenic resource protection for the explicit
purpose that the public benefits from its preservation.

Utilities & Infrastructure
By 2040, Loudoun Water's customers may
require up to 90 million gallons of drinking
water every day. This represents a 40 million
gallon per day increase from the customer
demand in 2017.
The County assists existing communities to
resolve water and sewer issues throughout the
County in coordination with the Department
of Health and Loudoun Water.
Loudoun Water’s Potomac Water Supply
Program is an innovative solution to County
long-term water supply needs. It involves
withdrawing river water when flows and
quality are acceptable and storing the water in
retired rock quarries, initially storing at least
one billion gallons of water and ultimately
more than 8 billion gallons of water in
quarries. The Trap Rock Water Treatment Facility draw from the quarries and ensure the highest
quality drinking water. The plant is expandable and scalable to meet the future demand. Strategies
and actions address the need for active water quality protection around the quarry reservoirs
because of the close proximity of other development.
The County operates the County landfill and provides recycling opportunities for the citizens and
businesses. Landfill operations are fee supported. The County also offers recycling drop-off
centers, household hazardous waste collection events; collection of seven materials for recycling
or diversion at the landfill; and educational programs.
Electrical and Communication services are provided under the purview of State and Federal
agencies. The County does regulate the location of electrical substations but not the transmission
lines to and from the substations. Both facilities have visual impacts. Similarly the County may
review the location of cell towers and monopoles for impacts on surrounding properties but cannot
prescribe locations and therefore cannot require broadband or communication service in
underserved areas. The County does, however, work with the providers to encourage improved
service and locations. Policies are included to provide consistent direction to the providers.

Fiscal Planning and Budgeting
Since the 1990s, a management strategy has evolved that enables the County to anticipate and
accommodate a consistently high volume of service and facility demand. The County’s fiscal
program requires the development of a ten-year Capital Needs Assessment (CNA) every two years
to identify future demand for public facilities, and the development and adoption of a six-year
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Capital Improvement Program (CIP) by the Board of Supervisors with its annual budget.
This strategy is innovative for local government and involves the full integration of land use
planning, fiscal management and facilities planning. To provide funding for public facilities,
careful forecasting of development, including its location, type and timing, generates anticipated
facility needs. Projecting capital needs associated with new development establishes expected
impacts on public facilities, as well as the anticipated fair share contributions to mitigate those
impacts during the development process. The annual CIP funding plan and budget then aligns
annual capital expenditures with County fiscal policy.
Community Input
Public comments were provided during the Envision Process Listening and Learning and
Envision the Future public outreach efforts in November 2016 and June 2017 respectively.
The Comments reflected some longstanding concerns such as the lack of broadband internet
service in western Loudoun, the deficit in open space, parks and bikeways and trails, and the
desire to have new facilities constructed in advance of new growth. Utilities such as roads,
water and sewer, and waste management were noted principally from the perspective of
timing and making sure capacity is available prior to new development. Schools continue to
be a major concern.
There were a variety of suggestions regarding fiscal management, such as, seeking out
additional revenue stream in order to maintain reasonable taxes, slowing the rate of
development and timing growth to the availability of facilities. Others expressed a
willingness to pay more taxes suggesting our taxes are still low, when compared with other
locations. Participants expressed concern about the continued use of proffers that rely on
population growth to finance infrastructure Other participants saw slowing growth as the
The Board of Supervisors established Loudoun County’s Fiscal Impact Committee in 1992. This
advisory committee reviews assumptions about future growth and capital facility needs. The
committee provides recommendations to the Board on four documents that help coordinate land
use and financial planning: (1) Long-range forecasts and demographic, economic, and financial
information included in the Fiscal Impact Committee Guidelines; (2) Capital Facility Standards;
(3) Capital Needs Assessment (CNA); and (4) Capital Intensity Factor.

Trends and Influences
In addition to the impact of a growing community, the increased diversity of the population is
generating expectations for a wider range of facilities. Less land is available for public facilities
and County standards for facilities like libraries have to be more flexible and recognize the need
to retain existing facilities particularly where they play an integral role in the character and activity
of the community. State legislation has put additional constraints on local authority to accept
capital facilities proffers, which could renew the need for alternative means of mitigating
development impacts.
Urban development patterns along the Silver Line and in other mixed-use centers call for new
public facility designs that match the new development pattern and minimize land requirements.
The County’s major long-term financial investment in public transit will rely on quickly realizing
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high value development within the Silver Line corridor. Multi-story schools, shared space in
mixed-use buildings and an overall more compact footprint are necessary with the urban walkable
communities.
In recent years, the County has benefited from a more balanced development pattern of both
residential and commercial uses that has led to affordable real property tax rates, and a more
diversified revenue structure. The data center industry, which provides a high level of revenue to
the County, appears poised for continued future growth as more companies opt for cloud IT
services. Other employment sectors such as light or flex industrial, retail and medical services are
experiencing growth. The County’s rural economy is hampered by the lack of a comprehensive
broadband network available to all residents and businesses.
As part of its strategic planning efforts on growth management, the County will be expanding
discussion of net impacts, including capital needs and costs, of individual projects on Countywide
infrastructure. The impact of a rezoning application on the local transportation network and public
facilities, what the application is or is not doing to mitigate the impact and what facilities exist
and/or are funded to serve the subject property and surrounding area will be considered during the
development review process. Additionally, a fiscal impact analysis model is being developed to
assist with evaluating future development.

Policies, Strategies, Actions

Public Facilities
Policy 1: Provide public facilities to meet identified needs.
Strategy
1.1 Use the Capital Needs Assessment Program (CNA) to plan and coordinate facility needs
and location criteria to ensure adequate dispersal and timely availability of County
facilities.
Actions
A. Expedite the approval of public facilities by establishing performance standards that
would eliminate the need for legislative review.
B. Support the School Board acquisition of needed sites through the fiscal planning and
land development processes.
C. Co-locate public safety and other facilities whenever it will improve service
efficiencies.
D. Design school-related open space and athletic fields and make them available for joint
use by Parks, Recreation and Community Services (PRCS) and other facilities such as
libraries and community centers.
E.

Commission Permit reviews for facilities should evaluate the character and extent of
the maximum development potential of the site in order to permit future expansion
and colocation without requiring Commission approval under Code of Virginia
Section 15.2-2232.

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F.

Combine public open space and parks with public and civic buildings, community
centers, town centers and other gathering places and include amenities such as seating
areas, public art, playgrounds and gardens, etc.

Strategy
1.2 Support continued use of existing public facilities through ongoing capital asset
replacement, renovation, and modernization, particularly where facilities play an
important role in social and economic activity of the local community or are historically
significant.
Actions
A. Improve existing libraries through maintenance and modernization of facilities to
meet current resource demands and customer needs including collaborative, handson learning space (Maker spaces) where people can create, invent, and learn through
the use of software, hardware, devices, tools, supplies, etc., computer labs, large,
multiple purpose rooms to meet the growing community demand for spaces to
conduct business and host community events, hands-on STEM-related learning, stateof-the-art technology and ease of access, and foster intellectual curiosity, problemsolving, innovation, and community building.
Strategy
1.3 Strategically locate facilities where they can serve the community efficiently and
effectively.
Actions
A. Locate new facilities on sites that can accommodate future expansions.
B. Locate Fire and Rescue and Sheriff facilities in accordance with adopted response time
goals and at the most strategic point in a proposed service area.
C. Locate libraries and other high traffic uses in highly visible, accessible locations such
as mixed-use centers, towns, and villages and with adequate automobile and
pedestrian access.
D. Locate housing and other facilities for special population groups, in the Suburban and
Transition Policy Areas, Towns, and JLMAs to provide ease of access to associated
commercial services, jobs and amenities.
E.

Link new facilities to adjacent neighborhoods by sidewalks, greenways and trails.

F.

Design new public facilities to be functional and efficient, to complement the physical
character of the adjacent community and to maximize the broader social and cultural
role the facility can play in the community.

G. Locate new Public facilities in western Loudoun in close proximity to the Towns and
JLMAs when land is available and locations can meet response time and other service
standards.

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H. Continue to make the Town of Leesburg the principal location of County Government
offices and the County seat.
I.

Establish and maintain effective levels of public open space in all residential and
mixed use communities.

Strategy
1.5 Encourage partnerships that contribute toward significant, meaningful, shared public
facilities.
Actions
A. Support and encourage partnerships that develop sustainable housing for special
populations, including the elderly, the mentally and physically handicapped, low
income persons, and the homeless.
B. Support NOVA Parks and others in the acquisition of land and the development of
facilities such as the Potomac Heritage Trail, extension of the W&OD Trail to
Bluemont, and the Appalachian Trail, and the preservation of the Ball’s Bluff
Battlefield.
C. Work with the U.S. Department of the Interior, the Conservation Management
Institute, the Virginia Department of Historic Resources, NOVA Parks, and the
incorporated Towns to define and recommend areas for open-space preservation and
development of a trail network that links the County’s natural, historic, and
recreational resources.
D. Coordinate recreation-planning efforts with the Towns to prevent duplication of
services.
E.

Identify and leverage opportunities with the private sector to provide public facilities.

Open Space
Policy 2: Retain the County’s unique combination of urban, suburban and rural
communities by using open space to protect natural resources and habitat, provide
opportunities for recreation, and to delineate our built environments.
Strategy
2.1 Contiguous linear parks, trails, and natural open space corridors will used to improve
public access to open space, encourage healthy lifestyles and link destinations
throughout the County.
Actions
A. Prepare and implement a Trails Plan that identifies desired locations and connections
of future trails including:



Utility and abandoned rights-of-way.
Designated Scenic Rivers and Roads.

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

Natural and cultural assets.

B.

Ensure new developments incorporate identified trails and greenways into their
projects during the development review process.

C.

Establish and maintain useable levels of public open space in all residential and
mixed-use communities.

D.

Increase the number of access points to key trail systems from adjacent
neighborhoods and destinations.

E.

Seek through public purchase, proffer, donation or third-party open-space easement,
the preservation of greenways and the development of trails.

F.

Establish an Open Space Preservation Program, to the extent permitted by Virginia
Code Section 15.2-2303, linking the loss of publicly accessible open space from low
density residential land consumption to the provision of open space easements or
funds towards the purchase of open space easements as follows:
i.

ii.

iii.

G.

In the Suburban Policy Area, residential neighborhoods or land bays
proposing densities less than 4.0 dwelling units per acre should be
associated with voluntary participation in the Open Space Preservation
Program providing:
 The equivalent of 50% public open space consisting of
onsite open space required by development regulations, and
additional on or off site open space, or
 An equivalent cash contribution towards the Open Space
Preservation Program.
In the Urban Policy Area, residential neighborhoods or land bays proposing
densities less than 12.0 or over 24 dwelling units per acre should be
associated with voluntary participation in the Open Space Preservation
Program providing:
 The equivalent of 50% open space consisting of on-site open
space required by Ordinance and additional on or offsite
open space, or
 An equivalent cash contribution towards the Open Space
Preservation Program.
Link modifications reducing onsite open space, buffer or landscaping
requirements should be associated with the provision of an equivalent
amount of open space or an equivalent cash contribution towards the Open
Space Preservation Program.

Institute a program whereby the County acquires conservation easements or provides
other assistance such as a revolving loan program to assist owners in establishing
conservation easements. The program should emphasize protecting the priority open
space identified in this Chapter and not otherwise protected.

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H.

Encourage protection of the following priority open space areas through conservation
easements acquired by the County or others, participation in the Open Space
Preservation Program, development clustering and other means:







Key green infrastructure features not already protected from
development by conservation easements or regulation,
Rural areas immediately adjacent to the Towns, JLMAs and
Villages that help form greenbelts and gateway buffers,
Areas adjacent to the Potomac, Catoctin, Bull Run, Goose Creek and
Broad Run floodplains, to protect water quality,
Properties on the State or National Registers of Historic Places, and
within local historic districts,
Corridors and sites identified for trails and parks provided they
permit the construction of such facilities,
Other areas of local natural, historic or cultural significance
including designated scenic rivers and roads.

I.

Amend the development regulations as needed to permit: a percentage of the open
space required on an individual site to be met through off-site permanent open space
that creates a more useable, desirable or environmentally significant open space
conveniently accessible to the same community.

J.

Implement a local density transfer program as authorized by Virginia Code Sections
15.2-2316.1 and 15.2-2316.2 to protect open space.

Public Utilities
Sewer and Water
Policy 3: The County will work with Loudoun Water, the Health Department and
Town officials to ensure timely provision of central, municipal, shared or onsite
sewer and water in accord with the land use policies of this Plan.
Strategy
3.1 Implement strategies to resolve sewer and water issues in existing communities.
Actions
A. Identify and implement appropriate solutions such as upgrading or replacing failing
systems, and, where appropriate installing shared systems.
i.

ii.

Encourage communities or residences in the Suburban, Transition
and Joint Land Management Areas to connect to a nearby central or
municipal water or sewer system where there is a potential public
health risk.
Examine ways to assist in extending sewer lines into existing
communities or residences once development has brought trunk
sewers to the edges of these communities.

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iii.

Provide incentives to those communities or residences required to
hook to a nearby central or municipal water or sewer system where
there is a potential public health risk.

B.

Pursue funding sources to rehabilitate homes that currently lack adequate sewer and
water systems.

C.

Encourage clustering development away from water supply reservoirs and water
supply sources.

Strategy
3.2 Define specific service areas for utility systems to protect the viability of County land
use goals.
Actions
A. Establish the geographic limits of utility service, the capacity of the service, and
ensuring adequate environmental safeguards, with a commission permit application
prior to locating a utility system outside existing service boundaries.
B.

Protect water and wastewater treatment system lines that cross land outside a water
or sewer service area by permanent easements along the line prohibiting any
connection outside the service area.

Strategy
3.3 Prohibit the use of any system that fails to provide safe, environmentally sound water
supply and wastewater treatment.
Actions
A. Permit pump-and-haul operations only as a last resort and temporary wastewater
disposal method to address a proven, public health emergency.
B.

Evaluate development proposals to ensure availability of a safe and adequate potable
water supply and sewage treatment capacity in accordance with the land use policies
of this Plan.

C.

New central wastewater and water lines and facilities should be constructed in a
manner that causes the least environmental risk and visual disruption.

Suburban & Transition Policy Areas – Central Sewer and Water
Strategy
3.4 Loudoun Water will continue to be responsible for the provision of public water and
sewer service in the Suburban and Transition Policy Areas.
Actions
A. Collaborate with Loudoun Water to ensure safe and adequate long-term water supply
and wastewater treatment systems to meet County development goals.

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B.

Facilitate development and efficient operation of quarries as water supply reservoirs
and protect reservoirs by establishing no-build buffers, watershed protection
measures or equivalent protection.

C.

Collaborate with Loudoun Water to use the Beaverdam and Goose Creek water
supply reservoirs for compatible public recreation.

D.

Support expansion of Loudoun Water’s reclaimed water network.

E.

Implement a pollution prevention and mitigation program to protect and improve the
County’s surface water quality.

Strategy
3.5 Require all new development in the Transition and Suburban Policy Areas to connect to
Loudoun Water’s central water supply and wastewater treatment systems.
Actions
A. Encourage existing residences and communities served by on-site or shared facilities
to hook into central water or sewer facilities when such facilities become available.
B.

Encourage and assist existing communities or residences to hook to a nearby public
water or sewer system if on-site water supply or waste treatment capability has
deteriorated to a point where there is a potential public health risk.

Rural Policy Area – On site and Shared Systems
Strategy
3.6 Protect the rural character of western Loudoun by linking development to the ability of
the area to accommodate onsite or shared water and wastewater systems.
Actions
A. Prohibit extension of central water and wastewater service into the Rural Policy Area.
B.

Support the Safe Drinking Water Act and institute a wellhead protection program to
ensure adequate water quality.

C.

Discourage the use of groundwater for irrigation and other nonessential purposes, in
the Limestone Overlay Zoning District.

D.

Recommend monitoring groundwater and surface water in the Limestone Overlay
Zoning District and report any negative changes to the Board of Supervisors for
appropriate action.

E.

Maintain oversight of siting, design, installation and maintenance of conventional,
alternative and alternative discharging onsite sewage disposal systems.

F.

Implement an inspection/maintenance program for conventional onsite sewage
disposal systems.

Strategy
3.7 Collaborate with the Loudoun Water and the Health Department to identify viable
alternative wastewater treatment methods to septic and drain field-based systems,

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including shared treatment plants and on-site treatment to support clustered residential
development.
Actions
A. Implement wastewater treatment and disposal standards for alternative systems that
protect water quality.
B.

Allow Loudoun Water-approved shared water and wastewater systems in the Rural
Policy Area:




To serve rural economy uses and residential clusters as defined in
this Plan,
To solve potential public health problems, and
To serve public facilities.

C.

Assist in the construction of shared systems for existing rural communities facing a
potential public health risk.

D.

Require Loudoun Water own and operate all shared water and wastewater systems
with more than 15 connections.

E.

Support merging or connecting shared systems operated by Loudoun Water to
improve efficiency and address potential public health threats.

F.

Require a Commission Permit, establishing a defined service area, prior to the
construction of any shared water or wastewater system.

Towns and Joint Land Management Areas – Municipal Water and Sewer
Policy 4: Town municipal systems will be the utility providers for the Towns and
surrounding Joint Land Management Areas unless the Town, Loudoun Water, and
the Health Department agree to an alternative provider.
Strategy
4.1 Serve all development in Joint Land Management Areas by municipal sewer and water.
Actions
A. Investigate financial assistance to Towns to improve sewer and water systems to meet
minimum health standards established by the state for the existing populations of the
Towns.
B.

Work with the Towns to ensure that the expansion of public sewer and water into the
Town JLMAs satisfies the goals and policies of the the County’s adopted plans.

C.

Establish the JLMA boundary as the limit of utility extensions from the Towns and
eliminate the need for a commission permit to extend or upgrade sewer and water
lines into the Town JLMAs.

D.

Retain the option to use shared or alternative sewer and water facilities to serve Town
and County owned and operated public facilities.

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E.

Permit the extension of municipal (town) or shared water and wastewater service into
the Rural Policy Area to serve public facilities or to address a potential public health
threat.

Solid Waste Management
Policy 5: Continue to implement an integrated solid waste management strategy
that places priority on reduction, reuse, and recycling of solid waste above resource
recovery, incineration, and disposal into landfills.
Strategy
5.1 The County Solid Waste Management Plan will identify the type and level of service to
be provided in the community.
Actions
A. Continue to ensure that the County always has an acceptable means of local waste
disposal, through the County landfill operations, should other waste disposal
alternatives fail or become ineffective.
B.

Continue to seek private sector support for the provision of current and future Solid
Waste Management Services.

C.

Develop a hazardous waste education program and increase residential access to the
safe disposal of hazardous waste to protect groundwater resources.

Electrical
Policy 6: Support expanded electrical capacity through generation facilities that use
clean burning and environmentally sound fuel sources including gas, wind and solar.
Strategy
6.1 Encourage local electrical generation in appropriate locations throughout the County.
Actions
A. Establish zoning standards that permit electrical generation with minimal
environmental and community impacts by individual users and commercially.
B.

Require the grouping and burying of utility lines and facilities to the extent permitted
by law.

C.

Work with electrical providers to locate major transmission lines away from key
travel corridors and residential communities and where possible to place such lines
underground.

D.

Encourage use of stealth design techniques for electrical substations that are adjacent
to major travel corridors and residential communities.

Communication
Policy 7: The County supports the development of a high quality wired and wireless
telecommunications network to serve businesses, residents and visitors.
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Strategy
7.1 The County’s Strategic Land Use Plan for Telecommunication Facilities and other
regulations and standards will be regularly updated to address emerging technologies,
to create an environment attractive to businesses, and provide high quality services to
meet the demands of the County.
Actions
A. Review and update the County’s Telecommunications Strategic Plan to facilitate the
expansion of fiber and broadband service throughout the County.
B.

Adopt zoning regulations and design standards requiring open access conduit to all
development projects to facilitate future broadband extensions.

C.

Establish performance standards for wireless communication facilities to minimize
the need for legislative action.

D.

Incorporate the capacity to locate broadband and wireless facilities into the design,
approval and construction of all public facilities.

Fiscal Management
Policy 8: The County will link the goals of the Board of Supervisors’ adopted Fiscal
Policy and the County’s Comprehensive Plan.
Strategy
8.1 Maintain a diversified and stable revenue structure by balancing, residential and nonresidential development.
Actions
A. Seek further revenue diversification to increase fiscal stability and thereby, mitigate
tax burdens on Loudoun County taxpayers.
B.

Direct the majority of public investments into currently developed communities,
towns and nonresidential areas of the County where development is planned
according to the Comprehensive Plan and give priority to the redevelopment and
enhancement of existing infrastructure, capital facilities, and services.

C.

Where permitted, continue to seek private sector support for improvements or
provision of current and future public facilities and sites including proposals of cash
and in-kind assistance for public facilities in addition to the timely provision of
dedicated sites.

D.

Seek authority from the state legislature to establish impact fees and a reasonable
implementation process applicable in areas where rezonings are not anticipated.

Strategy
8.2 Capital facility planning and budgeting will reflect anticipated needs based on
forecasted development..
Actions

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Loudoun 2040 General Plan Draft Version: April 9, 2018

A.

Update a series of financial and planning tools regularly to evaluate long term land
use, fiscal and demographic issues, under the oversight of the Board of Supervisors
and its advisory committee, the Fiscal Impact Committee.

D.

Develop long-range forecasts of residential and nonresidential development,
population, households and employment.

E.

Develop demographic, economic and financial data that are used as inputs to
demographic forecasts and for fiscal impact modeling.

F.

Develop and regularly update the Capital Intensity Factor – the dollar amount of the
capital facilities impact measured by unit type or unit characteristics and geographic
location that is calculated using County capital facility standards and demographic
inputs. The Capital Intensity Factor (CIF) is used to assess the capital facilities
impacts of new residential development and provides a guideline for proffer
negotiations during residential rezonings.
i.

The CIF will be calculated using the following formula:
CIF = (Household Size x County Facility Cost Per Capita) + (Students Per
Household x School Facility Cost per Student)

G.

Develop and refine Capital Facility Standards – the type, acreage and size of future
capital facilities, along with “triggers” based on population, population
characteristics, or other community factors.

H.

Develop and refine the Capital Needs Assessment – the type and number of capital
facilities needed over a ten-year planning period beginning at the end of the current
six-year Capital Improvements Program .

I.

Ensure that the users or beneficiaries of that development will finance an equitable
portion of public facility and infrastructure development costs that are directly
attributable to a particular development project.

J.

Evaluate, consistent with the Va. Code Sec. 15.2-2283 and 15.2-2284, the adequacy
of existing and planned public facilities and services when reviewing impacts of any
legislative application for more intensive use or density. To fairly implement and
apply this policy, the County will consider the following:
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Existing facilities;
Facilities included in the Capital Improvement Program;
The ability of the County to finance facilities under debt ratios and
limits established by its fiscal policies;
Capital Facilities Standards and the effect of existing and approved
development, and the proposed development, on those standards;
Service levels of the existing transportation system; the effect of
existing and approved development and the proposed development
on those service levels and the effect of proposed roads which are
funded for construction;

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Loudoun 2040 General Plan Draft Version: April 9, 2018

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Commitments to phase the proposed development to the availability
of adequate services and facilities;
The availability of non-profit or HOA facilities to provide
equivalent public access and programming; and
Other mechanisms or analyses as the County may employ that
measure the adequacy of such services and facilities for various
areas or that measure the County’s ability to establish adequate
services and facilities.

Strategy
8.3 Until such time as the General Assembly grants authority for other options the County
will consider landowner proposals of cash and in-kind assistance to mitigate capital
facilities costs associated with new development.
Actions
A. Consider, subject to the limitations established by Virginia Code 15.2-2303.4,
proposals of the timely dedication of land, cash, and in-kind assistance from a
landowner through proffered conditions submitted in accord with Virginia Code
Sections 15.2-2303 and 15.2-2297, as applicable, in the provision of public facilities
identified in the Capital Improvement Program or the Capital Needs Assessment
Document.
The County expects such proposals of public facility and utility assistance by
developers would be in conjunction with any rezoning request seeking approval of
densities above existing zoning.
i.

B.

The County will seek to ensure that an equitable and a proportionate
share of public capital facility and infrastructure development costs
that are directly attributable to a particular development project will
be financed by the users or beneficiaries.

Apply all of the proffer policies and actions and guidelines set forth in this document
only subject to and in compliance with the limitations established by Virginia Code
Section 15.2-2303.4 as applicable. In its consideration and acceptance of all proffers,
the County will apply the standards of Virginia Code Sections 15.2-2297, 15.2-2303,
and 15.2-2303.4, as applicable, to evaluate the reasonableness of proffered conditions.
For those applications subject to Section 15.2-2303.4, the County shall accept only
those proffers permitted or deemed reasonable under Virginia Code Section 15.22297 and not deemed unreasonable under Section 15.2-2303.4.
i.

Where and to the extent permitted by law, the County will structure
residential proffer guidelines based upon the respective levels of
public cost of capital facilities generated by the various types of
dwelling units.

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Loudoun 2040 General Plan Draft Version: April 9, 2018

C.

To assist the County in an equitable and uniform evaluation of developer proffers and
other proposals for densities above the specified base density for each planning policy
area, which otherwise conform with the policies of this plan, the County anticipates
developer assistance valued at 100 percent of capital facility costs.

D.

Through the Capital Needs Assessment, the County differentiate between
conventional suburban housing and other types of housing such as age-restricted,
accessory, and micro units and consider commitments to small unit sizes, or
affordability in estimating the capital facility needs and Capital Intensity Factor.

E.

Review the Capital Needs Assessment policy subarea boundaries to ensure, to the
extent feasible, they do not divide existing communities and consider service
standards that provide flexibility to respond to demographics, land availability and
other characteristics of specific communities.

F.

Consider providing credit for transportation proffers that exceed the anticipated
transportation impact mitigation of the proposed development against the anticipated
capital facilities proffers of the development.

G.

Consider partially crediting private facilities, which are not dedicated to the County
but are for the use of a subdivision or community, toward capital facility proffers. The
partial credit is dependent on the Board of Supervisor’s adopted service standards,
CNA and CIP identified facilities, and the estimated use or capacity of the facility.

H.

The County will extend the existing Small Area Plans to encompass Suburban,
Transition and Leesburg JLMA communities and the three Silver Line Metro
Stations.

Policy 9: Use the following capital facilities proffer guidelines to evaluate proposed
capital facility proffers.
Strategies
9.1.

Use the following definition of “Capital Facility Proffer” f to evaluate proffers: A
contribution consistent with county policies and service needs, in cash or in kind (land
or improvement), that benefits county residents at large, which is agreed to as a
condition of a rezoning.
i.

To be considered a proffer based on this definition, the following
criteria need to be met:
 The facility proffered is dedicated to the County or to a local,
state, federal or regional authority or otherwise satisfies a need
identified in the Capital Facilities Standards (CFS), Capital
Needs Assessment (CNA), and/or Capital Improvement
Program (CIP).

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ii.
iii.

iv.
v.

The measure of credit will be determined on a case-by-case basis
and may not exceed what the County would expect to supply
given the CFS and the population served at the date of official
acceptance of the application or at the date of reactivation of an
inactive application.
The contribution has a quantifiable value.
The value of land contributed for public use or use as a public
facility site is recognized as a capital facility proffer. Land for
County facilities should be conveyed to the County or its designee.
The contribution would not be required under existing statutes or
ordinances.
The proffer is irrevocable.

9.2.

Seek annual adjustments for proffers involving cash contributions based on the
Consumer Price Index (CPI).

9.3

Base density thresholds beyond which capital facilities proffers will be anticipated are
specified by planning policy areas as follows:
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9.4.

Rural Policy Area: The planned density for the Rural Policy Area is
implemented by the existing zoning pattern and zoning amendments are
not anticipated. However, zoning map amendment applications within
existing villages and other similar applications will include capital
facility contributions for units above the density permitted by current
zoning.
Transition Policy Area: Zoning map amendments may will be evaluated
against a base density permitted by current zoning at the time of
application.
Suburban and Urban Policy Areas: Capital facilities proffers will be
evaluated against a base density of 1.0 dwelling unit per acre or the
existing zoning, whichever is lower.
Joint Land Management Areas: Capital facilities proffers will be
evaluated against a base density of 1.0 dwelling unit per acre or existing
zoning, whichever is lower.

To evaluate proffers for public use sites, determine the per-acre value of unimproved
land by a market appraisal of the site compared to properties with the same densities
suggested by the Planned Land Use Designation. The appraisal shall be conducted by
an appraiser agreed to by the County, and paid for by the developer, and the results
provided to the County. For improved sites, consideration will be given as applicable
to:
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Site-preparation including clearing and grubbing, grading, erosion
control, and related engineering and permitting costs.

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Loudoun 2040 General Plan Draft Version: April 9, 2018

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Project infrastructure such as stormwater management ponds, sanitary
sewer lines and major off-site and on-site roadways serving the site.
A proportional share of improvements directly related to providing
access to the site (pedestrian underpasses, construction of adjacent
streets, trails, and sidewalks).

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