SD10 - A Feasibility Study Regarding the Development of a Park, Recreation Area, or Wildlife Area on Paradise Creek, Portsmouth, Virginia


Executive Summary:
The 2002 General Assembly requested the Department of Conservation and Recreation to study land use along the Paradise Creek corridor in the City of Portsmouth and make recommendations to the Governor and the 2003 General Assembly about ways that the Commonwealth can participate with Portsmouth in the development of a public park, recreational area, and a wildlife preserve. The Department was directed to consult with the City of Portsmouth, the U. S. Navy, the Norfolk Navy Shipyard Restoration Advisory Board, the Elizabeth River Project, and the Hampton Roads Planning District Commission, as well as other state and federal agencies. Senate Joint Resolution Number 85 also pointed out that Paradise Creek is located near the historically significant Norfolk Naval Shipyard and the World War I-era Cradock Community, which are on both the State and the National Registers of Historic Places.

Paradise Creek is a distressed urban tributary to the Elizabeth River, draining over 2.9 square miles of the central portion of the City of Portsmouth. Paradise Creek is located in the South Branch of the Elizabeth River, which has the highest priority for clean up and presents a microcosm of the challenges faced in restoration of the Elizabeth River. Lands along the north shore of the creek are zoned M-2 and are dedicated to heavy industrial use, primarily by the U. S. Navy. Along the southern shore, there is a mix of industrial and residential zoning. From the mouth of the creek at the site of Giant Cement Virginia to Victory Boulevard the land use is zoned M-2 for industry. Upstream of Victory Boulevard, the land use is residential. The primary residential area is the Cradock neighborhood, which is listed on both the State Landmarks Register and the National Register of Historic Places.

FINDINGS

• The City's Comprehensive Plan (1989) proposed a community park for the southern portion of the city that would serve the Highland Biltmore neighborhoods, Cradock, Brighton-Prentis Park, and the Downtown area. The Comprehensive Plan cited as one potential location a site on Paradise Creek. Since this plan was adopted, no community park has been established to serve these neighborhoods. The Comprehensive Plan also referenced the fact that there was very little shoreline access within the City available to the public. The Plan noted that additional boat ramps could· be located along Paradise Creek. The City is in the early stages of updating its Comprehensive Plan, and it is anticipated that the numerous recommendations related to the need for a park in the Paradise Creek corridor will be closely examined in light of the demonstrated needs and strong community support.

• Once all the Comprehensive Environmental Response, Compensation and Liability Act (CERCLA) requirements have been completed at the seven Navy sites near Paradise Creek, the properties will be managed by the Commander, Navy Region Mid-Atlantic (CNRMA) for long-term maintenance and control. Due to the toxic nature of the materials encapsulated in two of the three areas, they are not suited for recreational use. The Navy has no plans to sell or lease the property. They estimate that $80,000 per year will be required for maintenance of the area once all the remediation is complete. Due to liability issues, environmental constraints, and maintenance costs, extensive deed restrictions are expected to be attached to the properties, and the Environmental Protection Agency (EPA) and the Virginia Department of Environmental Quality (DEQ) will have to approve any proposed future uses.

• Over all, there appears to be strong community support for any and all efforts that are linked to cleaning up the Paradise Creek corridor and improving the water quality of this vital community resource. The Elizabeth River Project has established a stakeholder group of diverse interests and expertise to provide input and help develop an aggressive five-year plan for cleaning up Paradise Creek. They have received a $100,000 grant from EPA to help implement the plan.

• The Virginia Departments of Conservation and Recreation, Environmental Quality, Game and Inland Fisheries, and the Virginia Marine Resources Commission, as well as other State agencies are already actively partnering with the City, the Elizabeth River Project, and the Navy to help implement the five-year plan to restore Paradise Creek by 2007. These agencies are providing technical assistance and monitoring expertise. It is hoped that these efforts will be able to continue despite budget cutbacks in almost all the program areas.

• In spite of the issues related to pollution and bottom contamination, the creek corridor contains quite a diverse population of wildlife. The abundance of wildlife in this heavily developed urban area is probably due, at least in part, to the large tracts of land east of Victory Boulevard that have not been developed. Also, the Navy's remediation projects have provided undeveloped open space with vegetated surfaces, tree cover, and woody vegetation along the fringes of the closed landfills and adjacent wetland areas.

• The Department of Conservation and Recreation (DCR) administers the federal Land and Water Conservation Fund (LWCF). The City could apply for LWCF dollars to acquire and/or develop a site on Paradise Creek for a local park. This is a 50% reimbursable grant program, and the City would have to compete with other localities for available funds.

• Virginia Recreational Trails Grants are funded with federal dollars, and this program is also administered by DCR. The City could apply for a grant to construct trail facilities, boardwalks, and overlooks. This is a competitive, reimbursable, grant program and is available to non-profit organizations as well as localities; a 20% match is required.

The City of Portsmouth, the Elizabeth River Project, the U. S. Navy, and many other partners already have a collective goal of restoring Paradise Creek and using the lessons learned in this sub-watershed effort to attack a bigger goal of restoring the Elizabeth River. The Paradise Creek Watershed Management Plan could easily achieve the added benefit of creating the "Paradise Creek Greenway" with a trails network along the southern shore, boardwalks, wildlife viewing areas, a boat ramp, and a community park east of Victory Boulevard. There could also be wildlife habitat and forested buffers established on part of the Navy's restoration areas as well as on the restored industrial properties. The environmental education program of the City schools could be strengthened through the collective efforts of all the partnering organizations to create an "outdoor classroom" along the creek corridor.

While some state assistance is available, the success of this project will be attained largely through the cooperation of the City of Portsmouth, the Elizabeth River Project, the U. S. Navy, and the dedicated group of local participants. It should also be noted that a key element of the process will be the acquisition by the City of Portsmouth of a piece of land along the south shore of the creek for water access and a public park site.