MAY 22, 2019 DRAFT Comprehensive Plan 2019 The Town of...
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MAY 22, 2019 DRAFT Comprehensive Plan 2019 The Town of Madison, Virginia 23 Washington Circle Peterson Building Madison, VA 22727 (540) 948-3202 Town Council William L. Lamar, Mayor Nancy H. Knighting, Vice-Mayor Alma Lu Ayers Charles A. Carter William N. Payne Town Clerk Barbara A. Roach Town Attorney Maynard L. Sipe Plan Adopted_____________ Planning Commission Shannon E. Johnston, Chairman Alma Lu Ayers Brittney P. Frick William M.Pattie Thora May Pullen Plan Recommended _____________ This revision of the Town of Madison, Virginia Comprehensive Plan updates and sopercedes previous versions adopted by the The Town of Madison on ————-? October 5, 2000, and September 1, 2011.
Transcript of MAY 22, 2019 DRAFT Comprehensive Plan 2019 The Town of...
MAY 22, 2019 DRAFT
Comprehensive Plan 2019
The Town of Madison, Virginia
23 Washington Circle
Peterson Building
Madison, VA 22727
(540) 948-3202
Town Council William L. Lamar, Mayor
Nancy H. Knighting, Vice-Mayor Alma Lu Ayers
Charles A. Carter William N. Payne
Town Clerk Barbara A. Roach
Town Attorney Maynard L. Sipe
Plan Adopted_____________
Planning Commission
Shannon E. Johnston, Chairman Alma Lu Ayers
Brittney P. Frick William M.Pattie Thora May Pullen
Plan Recommended _____________
This revision of the Town of Madison, Virginia Comprehensive Plan updates and sopercedes
previous versions adopted by the The Town of Madison on ————-? October 5, 2000, and
September 1, 2011.
Plan prepared by
Mary Joy Scala
Maynard Sipe
Acknowledgements
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Comprehensive Plan 2019
The Town of Madison, Virginia
Table of Contents
Page
Title Page i
Table of Contents iii
PREAMBLE: Authority and Purpose of Comprehensive Plan . . . . . . . . . . . 1
I VISION . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 2
II GOALS . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 3
1. Historic Preservation
2. Town Character
3. Economic Base
4. Transportation Improvements
5. Housing
6. Utility Infrastructure Improvements
7. Public Facilities and Services
8. Natural Environment
III OUR TOWN TODAY . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 4
OUR TOWN . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 4
REGIONAL SETTING . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 5
NATURAL ENVIRONMENT . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 7
TOWN PLAN . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 9
HISTORIC SETTING . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 11
HISTORY OF THE TOWN OF MADISON . . . . . . . . . . . . . . 11
HISTORIC BUILDINGS . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 13
HISTORIC DISTRICT . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 14
POPULATION . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 16
ECONOMY . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 18
THE TOWN OF MADISON’S ROLE AS A COUNTY SEAT . 18
Judicial . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 18
County Government . . . . . . . . . . . . . . . . . . . . . . . . . . . . 18
State Government . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 18
Town Government . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 18
Retail, Office and Commercial Services . . . . . . . . . . . . . 19
Churches and Community Organizations . . . . . . . . . . . . 20
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EMPLOYMENT AND COMMUTING. . . . . . . . . . . . . . . . . . . . . . 21
TOWN GOVERNMENT . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 24
GOVERNMENT . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 24
RELATION TO MADISON COUNTY . . . . . . . . . . . . . . . . . . . 24
TOWN REVENUES . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 25
Real Property Tax . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 25
Other Taxes and Fees . . . . . . . . . . . . . . . . . . . . . . . . . . . . 26
DMV Revenues . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 27
TRANSPORTATION . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 28
EXISTING ROAD NETWORK . . . . . . . . . . . . . . . . . . . . . . . . . 28
MULTI-MODAL TRANSPORTATION . . . . . . . . . . . . . . . . . . . 28
STORM DRAINAGE . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 28
UTILITIES . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 29
WATER AND SEWER . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 29
OTHER PUBLIC UTILITIES . . . . . . . . . . . . . . . . . . . . . . . . . . . . 29
INTERNET . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 30
BOTTLED GAS AND HEATING OIL . . . . . . . . . . . . . . . . . . . . 30
SOLID WASTE DISPOSAL AND RECYCLING . . . . . . . . . . . 30
EXISTING LAND USE . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 31
GOVERNMENTAL CENTER (FACILITIES AND SERVICES) . 31
Educational . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 31
Library . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 31
Health Services . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 31
Public Safety . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 32
Recreational Facilities . . . . . . . . . . . . . . . . . . . . . . . . . . . . 32
COMMERCIAL . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 33
RESIDENTIAL . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 33
INDUSTRIAL . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 34
RELIGIOUS AND NON-PROFIT ORGANIZATIONS . . . . . . . . . 34
IV OUR TOWN’S FUTURE . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 35
IMPLEMENTATION . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 35
ACHIEVING OUR VISION . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 36
LONG RANGE RECOMMENDATIONS . . . . . . . . . . . . . . . . . . . . . . . . 37
HISTORIC PRESERVATION . . . . . . . . . . . . . . . . . . . . . . .. . . . . . . 37
TOWN CHARACTER . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 38
ECONOMIC BASE . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 38
UTILITY INFRASTRUCTURE IMPROVEMENTS . . . . . . . . . . . 39
PUBLIC FACILITIES AND SERVICES . . . . . . . . . . . . . . . . . . . . 39
NATURAL ENVIRONMENT . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 40
LAND USE PLAN . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 41
COMMERCIAL USES . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 41
Downtown . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 41
South Main . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 41
RESIDENTIAL USES . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 42
Affordable Housing . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 42
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Low-Density Residential Areas . . . . . . . . . . . . . . . . . . . . . . 42
High-Density Residential Areas . . . . . . . . . . . . . . . . . . . . . . 43
Short-Term Housing . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 43
MIXED USES. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 43
LAND USE MAP . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 45
TRANSPORTATION PLAN . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 46
REQUIRED TRANSPORTATION PLAN . . . . . . . . . . . . . . . . . . . 46
FUNCTIONAL CLASSIFICATIONS . . . . . . . . . . . . . . . . . . . . . . . 46
EXISTING ROAD NETWORK . . . . . . . . . . . . . . . . . . . . . . . . . . . 46
MADISON COUNTY: ROUTE 29 CORRIDOR STUDY AND
TRANSPORTATION PLAN . . . . . . . . . . . . . . . . . . . . . . . . . . . 48
MULTI-MODAL TRANSPORTATION NEEDS . . . . . . . . . . . . . . 48
Pedestrian Improvements . . . . . . . . . . . . . . . . . . . . . . . . . . 48
Bicycle Improvements . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 49
STORM DRAINAGE . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 50
URBAN DEVELOPMENT AREAS . . . . . . . . . . . . . . . . . . . . . . . . 51
CAPITAL IMPROVEMENTS PROGRAM . . . . . . . . . . . . . . . . . . . . . . 52
GOALS WITH ACTION ITEMS . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 53
APPENDICES . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 57
I. Historic Zoning District Inventory 2019. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 58
II. Town of Madison 2000 Comprehensive Plan - Historic Structure Inventory . . . . . . . . 63
III. National Register Nomination Report - Madison County Courthouse . . . . . . . . . . . . 72
IV. National Register Nomination Report - Madison County Courthouse Historic District 78
V. Other Data - Building Permits 2012-2018 . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 110
VI. Bibliography . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 111
MAPS
1. Location within Region and State . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 6
2. Topography and Drainage Map . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 7
3. Aerial Map . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 8
4. General Town Map . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 10
5. Historic District Zoning Overlay Map . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 15
6. Land Use Map . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 45
7. State Routes/Names, Functional Classifications, and Locations of Proposed
Intersection Improvements . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 47
8. Existing Sidewalks and Proposed Improvements . . . . . . . . . . . . . . . .. . . . . . . . . . . . . . . 50
TABLES AND CHARTS
Table 1. Town of Madison Population 1960-2010 . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 16
Chart 1. Population Change 1960-2010 . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 17
Table 2. Town Businesses 2018 . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 19
Table 3. New Construction 1981-2018 . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 20
Table 4. Town of Madison Commuting Data 2015 . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 21
Table 5. Employment Percentages by Industries 2012-2016 . . . . . . . . . . . . . . . . . . . . . . . 22
Table 6. Class of Worker 2012-2016 . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 23
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Chart 2. Taxable/ Non-Taxable Real Property Assessed Values 2018 . . . . . . . . . . . . . . . . 26
Table 7. Traffic Counts 2017 . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 48
Table 8. Building Permits 2012-2018 . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 110
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Comprehensive Plan 2019 The Town of Madison, Virginia
PREAMBLE: Authority and Purpose of Comprehensive Plan
Every locality in Virginia is required to adopt a comprehensive plan for its future physical
development, to be recommended by the planning commission and adopted by the governing
body. Preparation of a comprehensive plan is required to include careful and comprehensive
surveys and studies of the existing conditions and trends of growth, and of the probable future
requirements of the locality and its residents. A comprehensive plan is required to be reviewed
by the planning commission at least once every five years to determine whether it is advisable
to amend the plan. (Code of Virginia Sections 15.2-2223 - 2232)
The comprehensive plan is required to include:
• Long-range recommendations for the general development of the locality, probable future
economic and population growth and requirements, and implementation methods including
a current map of the comprehensive plan area.
• A transportation plan and map that includes, as appropriate, roadways, accommodations for
bicycles and pedestrians, railways, bridges, waterways, airports, and public transportation;
and consideration how to align transportation facilities with affordable, accessible housing,
and community services to facilitate integration of the elderly and persons with disabilities.
• The designation of areas and implementation of measures for affordable housing, sufficient
to meet the current and future needs of residents of the locality, and to consider the needs of
the planning district.
• Consideration of strategies to provide broadband infrastructure sufficient to meet current
and future needs of residents and businesses.
The comprehensive plan may also include, but need not be limited to:
• The designation of areas for various types of public and private development and land use.
• The designation of a system of community service facilities, such as schools and other
public buildings, recreation areas, assisted living facilities, and sewer and water facilities.
• The designation of historical areas.
• The designation of ground and surface water protection areas.
• Implementation measures such as a capital improvements program, subdivision ordinance,
and zoning ordinance and maps.
• The location of existing or proposed recycling centers.
• The designation of routes for electric transmission lines of 150 KV or more.
• The designation of an urban development area, as being appropriate for higher density, and
incorporating the principles of traditional neighborhood design.
It is the purpose of this Comprehensive Plan to set forth a vision for the physical development
of the Town of Madison. The accompanying goals and action items provide objective criteria
to guide future decisions, not only with respect to land use, but also with respect to planning
for the provision of services, capital expenditures, economic development, and resource
protection.
I. VISION
The Town of Madison is the heart of the larger Madison community. The Town provides
governmental, economic, and cultural services that promote the well-being of its citizens and
serve residents of the larger Madison community. The Town values and strives to be:
• A family-friendly community;
• A safe, welcoming, and walkable community;
• A community that cherishes its history and historic setting;
• A community that supports its cultural institutions, such as its churches, library, and
museums;
• An economic center that enables businesses and residents to prosper;
• A pleasant residential community;
• A modern, well-connected community with multi-modal transportation and
communication service options.
The Town thus seeks to promote a community with attractive homes, businesses and
institutions. It seeks to preserve historic buildings both as tangible reminders of its past, and
as functional and valuable assets for today and the future. It looks to foster businesses and
institutions that are harmonious with its vision, and cultivate the small-town qualities that
residents and visitors prize.
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II. GOALS
1. HISTORIC PRESERVATION: Protect the Town’s distinctive historic character, which
roots the Town in a broader history, adds aesthetic and economic value, and promotes tourism.
2. TOWN CHARACTER: Protect and enhance the small town character with its historic
buildings, active commercial and residential areas, and pedestrian-friendly scale.
3. ECONOMIC BASE: Encourage appropriate new businesses and commercial tenants,
compatible infill developments, and tourism.
4. TRANSPORTATION IMPROVEMENTS: Maintain existing streets and sidewalks and
related infrastructure, such as stormwater systems, and construct needed new infrastructure, to
create a functional, safe, and attractive, “walkable” community.
5. HOUSING: Encourage new housing types that are compatible with the Town’s character,
and that address a range of spatial needs and household incomes.
6. UTILITY INFRASTRUCTURE IMPROVEMENTS: Assess needs for public and
private utility infrastructure improvements such as sanitary sewer and water, septic systems,
and internet and cable communications; and establish policies to encourage future
improvements.
7. PUBLIC FACILITIES AND SERVICES: Assess needs for public services and
improvements such as playgrounds, street lighting, landscaping, and wayfinding signage; and
establish policies and practices to encourage public improvements and deliver appropriate
public services.
8. NATURAL ENVIRONMENT: Respect and encourage safeguarding of the natural and
scenic environment that attracts residents and visitors to the Town.
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III. OUR TOWN TODAY
OUR TOWN
Currently, the Town of Madison is a village with historic charm, and is the County seat and
commercial hub of Madison County. The Town is located in the foothills of the Blue Ridge
Mountains. Situated as it is, Town residents enjoy spectacular views of the Blue Ridge
Mountains to the west and northwest. The Town was named after Madison County, which
honors James Madison’s family that owned land along the Rapidan River. James Madison’s
home, Montpelier, is located 16 miles away in neighboring Orange County.
Most of the Town area is included in the Madison County Courthouse historic district, which
is listed on the National Register of Historic Places and on the Virginia Landmarks Register.
In addition, all the properties within the historic district are protected by a local zoning
designation. It is very significant to find such a large collection of historic structures that have
been minimally altered over time. Madison’s historic fabric is the Town’s greatest asset.
Madison is valuable as a business center for the surrounding community. The compact
development pattern, especially at the north end, makes the Town very walkable. The layout
and scale of the Town exemplify the traditional urban design that so many new communities
are seeking to emulate. For example, the Town has an impressive focal point in the historic
County Courthouse, and provides office space and a centralized location for a variety of
governmental services. There are a variety of housing types within walking distance of
amenities such as stores, a library, schools and churches. The historic buildings have been
preserved, and many have been adapted for new purposes. The Town is a welcoming,
communal place where residents can socialize and do business.
The proximity of the Town to the Shenandoah National Park has influenced Madison’s
history, and the Park continues to impact the Town’s tourism economy. In 1929 President
Herbert Hoover built Rapidan Camp, a rustic retreat on a trout stream that now lies within the
boundaries of Shenandoah National Park. He made an official visit to the Town on August
16,1929, and drew a crowd of 10,000 persons for Madison County Day.
Today many people come to the Madison area to enjoy its scenic beauty and participate in
outdoor activities such as hiking, biking, and trout fishing. Many of these visitors pass
through the Town of Madison.
The Town’s mix of remarkable historic structures, walkable village commerce, local
government services and cultural activities are fundamental to its current character, and its
continuing ability to thrive.
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REGIONAL SETTING
The Town lies in Central Virginia, approximately 78 miles southwest of Washington, DC, 50
miles west of Fredericksburg, 30 miles north of Charlottesville and 80 miles northwest of
Richmond. The Town’s convenient regional location allows access to services, shopping,
employment, and cultural opportunities not otherwise available within the Town’s limits.
Shenandoah National Park and Old Rag Mountain within the Park, are popular tourist
destinations that can be accessed via the Town of Madison. Old Rag is 16 miles north of the
Town near Etlan. There are two entrances to the Shenandoah National Park convenient to the
Town of Madison. Thornton Gap (29 miles) is reached via Route 231 and Route 211. Route
211 continues over the mountain to the Town of Luray (38 miles) in the Shenandoah Valley.
Swift Run Gap (23 miles) is reached via Route 29 South and Route 33 West. Route 33
continues over the mountain to the Town of Elkton (30 miles), and to Harrisonburg (46
miles), also in the Valley.
The Town of Madison is within driving distance of many other destinations in Central
Virginia that attract visitors year-round, such as historic homes of U.S presidents; Civil War
sites; nearby Virginia wineries, breweries, and distilleries; lodges; hunting, fishing, and
agritourism sites; and scenic bed and breakfast locations. Many annual events draw visitors to
Madison as well, including the Graves Mountain Lodge Bluegrass Festival, Tour de Madison
bicycle race, and Taste of The Mountains Festival.
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MAP 1: Location within Region and State
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NATURAL ENVIRONMENT
The entire Town of Madison is located within the Robinson River watershed, which is part of
the Rappahannock River basin. The Town is situated on a ridge called Courthouse Mountain
that runs southwest to northeast. The west side of the ridge drains to White Oak Run, and the
east side to Little Dark Run. Both streams are outside the Town limits. Elevations in the Town
range from 560 feet at the north end to 640 feet at the south end. No areas of the Town lie
within flood hazard zones.
The Town is located within the Piedmont physiographic region of Virginia that stretches from
the fall line of the Potomac, Rappahannock and James Rivers to the Blue Ridge Mountains.
The Town Madison lies within the general geologic unit known as the Robertson River
Igneous Suite - Hitt Mountain Alkali Feldspar Syenite. The rock type is alkali syenite. 1
Predominant soils along Main Street are of the Lloyd series, which are very deep, well
drained and moderately permeable, with medium to rapid surface runoff. Other soil types in
the Town are similar, with some noted differences. They include Louisburg series, common
mostly along the Town’s western boundary, which may be excessively drained with
moderately rapid runoff; an area of Meadowville series east of Smith Road, which may be
moderately well drained with moderately rapid permeability and slow to medium runoff; and
small areas of Cecil series in various locations.
The Town has been designated as a Bird Sanctuary by Town Council.
MAP 2 Topography and Drainage Map
The Madison quadrangle was mapped by the DGMR Division of Geology and Mineral Resources in 2003.1
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MAP 3: Aerial Map
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TOWN PLAN
The Town of Madison, Virginia was established in the year 1800 on fifty acres of land. The
Town was extended to the south in 1818 with an addition of 15 acres. The resulting Town
layout is linear in nature, 9/10 of a mile in length and only 1300 feet in width.
Main Street (Route 29 Business) runs the entire length of the Town, and has a mix of
residential, commercial, governmental, religious and other organizational uses, and is
designated as a historic district.
Main Street is also part of the Route 231 Virginia Scenic Byway, which extends from Route
33 at Gordonsville in Orange County, located southeast of Madison, to Sperryville at Route
522 in Rappahannock County, northwest of Madison. Route 231 generally follows the route
of the historic Blue Ridge Turnpike, which was established in 1857, and which had its
headquarters located in the Town of Madison.
Main Street is divided into North and South Main Streets at the offset intersection of Court
Square to the west, and Church Street to the east. Court Square is a public alley way
maintained by the County, serving the Courthouse, a County-owned building to its rear, two
dwellings, and a commercial building. Church Street (Route 1001) has a mix of
governmental, commmercial, and residential uses, and the Piedmont Episcopal Church.
Church Street dead ends to the east at Autumn Court, a private road serving the Autumn Care
facility and two residences.
A major commercial area is centered around the intersection of North Main Street with
Washington Street (Route 634) and Schoolhouse Road (Route 634). Washington Street,
commercial in nature, connects the Town with the US Route 29 divided highway. Several
businesses lie along Washington Street just east of the Town, including Pig and Steak and
McDonald’s restaurants. The US Route 29 highway acts as a bypass around the Town.
Schoolhouse Road, also commercially developed within the Town, travels west to dead end in
the County before White Oak Run.
Other side streets off North Main Street include Ruth Road (Route 652) that continues west
into the County, and Mud Road (Route 673) that continues north into the County, becoming
Cedar Hill Road. Both Ruth Road and Mud Road are residential, and provide access to major
churches, the Antioch Baptist Church in the County, and the Beth Car Baptist Church.
Side streets off South Main Street include the primarily residential Catherine Street, and
Smith and Thrift Roads. Catherine Street (Route 1002) to the west serves several dwellings,
then dead ends one block from Main Street. To the east it forms a loop with Smith Road
(Route 1003). Thrift Road (Route 657) to the west, serves County administrative offices and
the American Legion Post, then continues into the County. South of Thrift Road along South
Main Street is a second commercial area developed on larger lots.
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MAP 4: General Town Map
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HISTORIC SETTING
HISTORY OF THE TOWN OF MADISON
The following narrative is adapted from the 1984 National Register of Historic Places
Nomination Form for the Madison County Courthouse Histioric District.
On December 4, 1792, the General Assembly passed an act forming Madison County from
Culpeper County, which became effective on May 1, 1793. The new county was named in
honor of James Madison, then an opposition leader in Congress who had played a major role
in the adoption of the Federal Constitution.
In June 1793, the gentlemen justices of the Madison County Court gave consideration to the
establishment of a permanent county courthouse. Favoring a site conveniently located in the
center of the county, the court decided to purchase a two acre lot, which was part of a 420 acre
tract know as Finnell’s Old Field. This field was situated on a ridge, now named Courthouse
Mountain, which runs southwest to northeast.
On January 6, 1800, in response to a petition signed one month earlier by one hundred
citizens of the county, the General Assembly established a town at the courthouse on fifty
acres of land. Calling the new town “Madison” after the new county of which it became the
county seat, the Legislature ordered all of the fifty acres to be laid off in lots with convenient
streets. The Legislature also appointed seven men, including two county justices, as its first
trustees. The trustees were empowered to make rules for the building of houses and to settle
all boundary disputes. In 1801, the General Assembly established within the Town of
Madison the county’s first post office.
In 1804, an English visitor to the Town noted, in addition to the public buildings on the
courthouse square and two taverns, there were ten or twelve houses in the village, among
them was the residence of a doctor, a lawyer, and a gentleman justice, but no parson or
parsonage.
In 1818, the General Assembly passed two measures related to the Town, each indicative of
Madison’s growing maturity as a community:
• The first measure extended the Town’s limit to include fifteen (15) acres of land
on either side of Main Street south of the courthouse and Carpenter’s Tavern.
• The second measure provided for the popular election of Town trustees, who were
now required to meet at least once every six months and were authorized for the
first time to pass Town bylaws and to lay an annual tax on inhabitants and their
property, not to exceed fifty dollars.
Between 1829 and 1830, the architectural character of the rural Town of Madison changed
dramatically with the completion of the present brick courthouse building by former
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University of Virginia workmen Malcolm F. Crawford and William B. Phillips and builder
Richard Boulware.
Joseph Martin, in his 1835 Gazetteer of Virginia, gave a detailed description of the buildings
of the Town:
“The village, besides the ordinary county buildings, contains 34 dwelling houses,
6 mercantile stores, 2 taverns, 2 houses of public worship, of which one belongs
to the Episcopalians and the other is free for all denominations. There are in the
vicinity 5 manufacturing flourmills. The Town is healthy and improving. It has
2 resident attorneys, and 4 practicing physicians; whole population 290.”
Handicapped by having neither a railroad in the county nor an adequate system of roads,
citizens had to send the county’s two major commercial crops (flour and corn) to market in
Fredericksburg by horse and wagon. In the 1840s, with the development of the railroad in the
Piedmont region, Gordonsville became the major market for crops. A group of citizens saw
the opportunity to tap the produce market in the Shenandoah Valley by constructing a toll road
that connected New Market in Shenandoah County to Gordonsville in Orange County via the
Town of Madison. Organized in 1850 with its office in the Town of Madison, the Blue Ridge
Turnpike Company accomplished this remarkable engineering project in 1857. Each phase of
construction brought greater wealth to the Town as it became a major stopping place and
exchange point for stagecoaches and carriages. Some of the most distinguished residences in
Town were built during the era of the Blue Ridge Turnpike.
During the Civil War and Reconstruction era, the most prominent leader to emerge from
Madison was state legislator, Confederate major general, and governor of Virginia, James
Lawson Kemper (1823 – 1895). Kemper served in the legislature during five sessions, the
last as Speaker of the House. In 1865, Kemper returned with his family to the Town of
Madison, taking up permanent residence on the northern end of Town in 1868. Soon a major
figure in the rise of the Conservative Party in Virginia, Kemper served as Governor of
Virginia from 1874 to 1877.
By the turn of the century, the Town of Madison had become a thriving, busy place of five
hundred inhabitants. In 1898, its citizens included four attorneys, two carpenters and builders,
two coach and wagon builders, two dentists, eight distillers, one druggist, one furniture dealer,
five general merchants, one grocer, one ironworker, one tobacconist, two undertakers, one
wool dealer, two academy headmasters, and one maker of agricultural implements.
In 1919 the Town of Madison experienced a devastating fire.
Two of the most famous and frequent visitors to the Town of Madison from 1929 to 1932
were President and First Lady Herbert Hoover. President Hoover was involved in the
selection and development of Rapidan Camp in western Madison County which was used as a
presidential retreat and fishing lodge. The social highlight of the 1920s was the celebration of
Madison County Day on August 16, 1929, which drew 10,000 people to hear addresses by
President Herbert Hoover and Virginia Governor Harry F. Byrd.
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Over the years, the Madison community took steps to improve its civic and cultural life. In
1937, the Madison County Library Association established the first public library in the Town.
The first fire company was formed in 1946, with a fire hall being built on Church Street in
1960.
On May 9, 1959 a second Madison County Day was held in recognition of the 30th
anniversary of the original Madison County Day in 1929. In 1962 the construction of a
bypass to Route 29 to the east of the Town was completed. It has helped preserve the
character of the courthouse town with new development occurring outside of the corporate
limits, the historic district’s boundaries.
On October 26, 1972 the Town adopted its first zoning ordinance regulating the use of land
within the Town. This ordinance was developed with the aid of the Virginia Division of State
Planning and Community Affairs. The zoning ordinance was re-adopted in 1998.
HISTORIC BUILDINGS
Since 1984 the Madison County Courthouse Historic District, comprising most of the area
within the Town’s boundaries, has been listed on the National Register of Historic Places and
on the Virginia Landmarks Register. In addition to its 1830 Roman Revival Madison County
Courthouse, the district is significant for its intact collection of commercial, residential and
institutional architecture in Federal, Greek Revival nad Victorian styles.
The earliest structure which has survived intact in the Town is the Eagle House. The Eagle
House was erected in the late 1700s as a tavern. Built of Flemish bond brick, the edifice is
distinguished by a corbelled brick cornice and a stepped parapet on its northern and southern
ends. The original bar is located in the basement. In early deeds (1800 – 1830) it was
referred to as Carpenter’s Tavern. By 1876 the property had been acquired by William Cave
who converted it to a private home. Mr. Cave added the south wing containing the Masonic
Lodge and office space.
Located adjacent to the tavern, the present Madison County Courthouse building was
constructed on the site of the first county courthouse. It was the Town’s most prominent and
architecturally distinguished landmark, completed in 1830 by Malcolm F. Crawford, William
B. Phillips, and Richard Boulware. Crawford and Phillips had both worked under the
supervision of Thomas Jefferson at the University of Virginia, from which the form and many
design details of the Madison County Courthouse were derived. The three artisans produced a
Jeffersonian Roman Revival temple-form structure with arcades built to the same proportions
as those found on The Range of the University of Virginia.
The Madison County Courthouse displays the outstanding quality of Phillips’ workmanship as
a mason, with each brick carefully molded and laid between finely tooled mortar joints.
Crawford’s carpentry work is no less distinguished, most notably in his execution of the
architecturally correct, classically proportioned Tuscan entablature. The handsome building,
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by continuing to serve as Madison County’s courthouse, has become the foremost symbol and
landmark of the Town and County and its history.
Within two years of the completion of the courthouse, the county erected beside the
Courthouse a new clerk’s office constructed of brick from plans and specifications provided
by Alexander D. Garrett, then proctor at the University of Virginia. It replaced a frame
structure which stood on the east side of Main Street across from the courthouse.
During the late 1830s and 1840s, a number of the Town’s residences were erected in the
Greek revival style. These houses were typically wood-frame construction with the porches
in the Greek revival style. All the Greek revival houses were set back from the streets and had
large front yards. The Greek revival dwellings located on the north end of Town are situated
on high ground with expansive yards.
HISTORIC DISTRICT
The Town of Madison has appreciated its historic resources for many years. In 1958 the
Madison County Courthouse was documented in a Historic American Buildings Survey
(HABS) in the Library of Congress. The Courthouse was individually listed on the Virginia
Landmarks Register on May 13, 1969, and on the National Register of Historic Places on
November 12, 1969. In 1984 the entire Town was inventoried by the Virginia Historic
Landmarks Commission, and was listed as the “Madison County Courthouse Historic
District” on the Virginia Landmarks Register on May 15, 1984, and on the National Register
of Historic Places on August 16, 1984. Both these honorary listings served to document the
resources at a single moment in time, and to draw attention to the historic buildings as a
valuable resource.
Many Virginia localities rely on a purely honorary approach to preservation, which places no
regulations on homeonwers. The owner of a contributing property listed on the Virginia and
National Register is eligible to apply for historic rehabilitation tax credits, a program that has
resulted in the preservation and appropriate rehabilitation of many historic properties across
the State. However, without the additional layer of local historic preservation regulations,
properties can be demolished, allowed to deteriorate, or inappropriately altered.
In ——-the Town of Madison had the wisdom and foresight to adopt historic preservation
regulations in the form of a historic zoning district that encompassed most of the Town. The
regulations were revised in ——— to include general design standards found in the zoning
ordinance.
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MAP 5: Historic District Zoning Overlay Map
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POPULATION
The population of the Town of Madison appears to have declined from 1960 through 2010,
based on census data. From 1960 to 1990 the population remained fairly stable at
approximately 300 people, except for 1980 when it dropped to approximately 265 people.
According to the 1990 census, the Town’s population rose to 307 persons. It dropped again, to
210 in 2000, a larger decrease of 97 persons, and rose slightly to 229 in 2010. However, there
is reason to believe the census counts from both 2000 and 2010 were incomplete.
Town residents received the long census forms in 2000, so some chose not to complete them,
which probably contributed to the low population count in that year. For example, the 2000
census statistics showed 116 households were included in the survey, but there were actually
more than 140 households in existence at the time of the 2000 census count, which indicates
that approximately 24 households were not counted.
The 2010 census count may also have been incorrect. This is likely due to the fact that many
Town residents did not receive the census forms that year because the forms were mailed to
Graves Mills instead of the Town of Madison, as an incorrect zip code was used in the mailing
address.
The 2010 census statistics indicated that the Town’s population increased from 210 people in
2000 to 229 people in 2010, reflecting a 9.0 percent growth rate over the 10-year period.
Annual population estimates produced by the U.S. Census Bureau estimate the July 1, 2017
population for the Town at 242 persons, representing a 5.7 percent increase since the previous
Census. However, estimates are based on prior data and thus may be unreliable.
TABLE 1. Town of Madison Population 1960-2010
Year Population Households
1960 301
1970 299
1980 267
1990 307 116
2000 210 109
2010 229 87
2017 (Estimate) 242
Population Source: U.S. Census, U.S. Census Bureau Population Estimates P
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CHART 1. POPULATION CHANGE 1960 to 2010 U.S. Census Decennial Reports
!
The population for Madison County, including the Town of Madison, increased from 12,520
in 2000 to 13,308 persons in 2010, producing a 6.3 percent growth rate over the 10-year
period. However, the Census Bureau estimate for Madison County in 2017 was 13,277
persons, or a decrease of 31 persons.
The Rappahannock-Rapidan Regional Commission (planning district), composed of Culpeper,
Fauquier, Madison, Orange, and Rappahannock Counties, showed an increase of 31,269
persons from the period of 2000 to 2010. It was the second-fastest growing planning district
in Virginia when considering percentage increase in population during that decade. The
census estimated that 177,418 persons lived in the Rappahannock-Rapidan region in 2017, an
increase of 11,264 persons (6.8 percent) since 2010.
Of the 229 persons reported living in the Town of Madison in 2010, 50.7 percent were female,
and 49.3 percent were male. Of these, 29.3 percent were under the age of 19 years of age,
56.3 percent were 20-64 years of age, and 14.4 percent were 65 years of age or older. The
median age of Town residents in 2010 was 40 years. The population was comprised of 73.4
percent White, 18.3 percent African American, 1.7 percent American Indian/Alaska Native,
and 6.6 percent identified as two or more races.
0
78
155
233
310
1960 1970 1980 1990 2000 2010
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ECONOMY
THE TOWN OF MADISON’S ROLE AS A COUNTY SEAT
The Town serves as the seat of County government. Government activities bring many people
to Town on a daily basis. The presence of governmental offices attracts economic activity
associated with the courts and Madison County Government. The Town is also the center for
goods, services, and religious activities for the County and the Town.
The Town of Madison houses the following government courts:
Judicial
• Madison County General District Court
• Madison County Juvenile and Domestic Relations District Court
• Madison County Juvenile Probation Office
• Madison County 16th Judicial Circuit Court
• Clerk of the Circuit Court
• Clerk of the General District Court
The Town also hosts the following County, State and Town Government offices:
County Government
• Madison County Administration Building:
Madison County Building Inspector
Madison County Commissioner of the Revenue
Madison County Treasurer
Madison County Zoning Office
• Madison County Commonwealth Attorney’s Office
• Madison County Economic Development Office
• Madison County Emergency Management Office
• Madison County Sheriff’s Office and E911 Center
• Madison County Social Services Office
State Government
• Virginia Cooperative Extension Office
• Virginia Department of Motor Vehicles (DMV) Select Office (DMV services
administered by the Town)
Town Government
• Madison Town Office
Additional local government offices located immediately adjacent to the Town include the
Madison County Administration Building at 302 Thrift Road, which includes the Madison
County Voting Registrar’s Office; and the Virginia Department of Health at 410 N Main
Street. The Madison County School Administration Offices are located just east of the Town
on Fairgrounds Road at its intersection with US Route 29. The Madison County Recreation
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Department has their office at Hoover Ridge Park located 0.9 miles east of the Town, also on
Fairgrounds Road.
Retail, Office and Commercial Services
The following table counts various types of professional offices, service operations, and
merchants in the Town of Madison that draw residents of both the Town and the surrounding
County:
TABLE 2. TOWN BUSINESSES 2018
BUSINESSES MERCHANTS PROFESSIONAL SERVICE
Animal Clinic 2
Antiques 1
Auction House 1
Auto Sales/ Service 1
Bakery 2
Barber Shop 1
Collectibles 2
Consignment Shop 1
Counseling Office/ Housing Assistance
2
Day Care 1
Dental Office 1
Hair Stylists 2
Home Improvement Company (General)
2
Insurance Company 2
Investment Management Company
1
Law Office 3
Laundromat 1
Mail Order Office 1
Medical Office 2
Museum 2
Newspaper Office 1
Nursing Home 1
Pet Salon 1
Pharmacy 1
Retail Store 3
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The total number of Town businesses has not changed since the last Comprehensive Plan
update in 2011. As Table 2 shows, in 2018 there were 17 merchants, 11 professionals, and 20
services, for a total of 48 businesses. In 2011 there were 18 merchants, 13 professionals, and
17 services, also for a total of 48 businesses.
The Town offers some shopping opportunities, with additional businesses located nearby in
Madison County. But residents of the Town and County frequently shop in the neighboring
localities of Charlottesville and Albemarle County to the south, Fredericksburg and
Spotsylvania County to the northeast, Gordonsville and Orange to the east, and Culpeper to
the north.
Two businesses that constructed new buildings on South Main Street, include the Madison
Office of the Virginia Farm Bureau, and the Dollar General Store. With the arrival of the
Dollar General Store, the Town gained a significant new retail business that provides
groceries and other necessities in a location within walking distance for residents of the Town
and adjacent housing in the County.
TABLE 3. NEW CONSTRUCTION 1981-2018
Churches and Community Organizations
The Town of Madison is also home to the following churches and organizations that serve the
Madison community and the surrounding area:
• Antioch Baptist Church (just north of Town limits)
• Beth Car Baptist Church
Restaurants/ Catering 5
Therapeutic Message 1
Title Company 1
Utility Company 3
Total 17 11 20
DESCRIPTION 1981 – 1990 1991 – 2000 2001-2010 2011-2018
Detached House 6 3 1 1
2 Unit Apartment Building 1 - - -
4 Unit Apartment Building - 1 - -
Commercial - - 2 -
Non-Profit - 1 - -
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• Blue Ridge Narcotics and Gang Task Force
• Linn Banks Masonic Lodge
• Madison County Chamber of Commerce
• Madison County Historical Society
• Madison County Library
• Madison United Methodist Church
• MESA (Madison Emergency Services Association) at Madison Learning Center
• Piedmont Episcopal Church
• Skyline Community Actions Programs (CAP)`
Immediately adjacent to the Town at 310 Thrift Road, is the American Legion Post, which
includes a recreation complex and pool. The Boys’ and Girls’ Club is located just beyond the
Town limits next to Waverly Yowell Elementary School at 1779 North Main Street.
EMPLOYMENT AND COMMUTING
Of those living in the households of the Town, the majority work outside the Town, and many
people work outside the County, commuting south to Charlottesville and Greene County, east
to Fredericksburg and Orange County, and north to Culpeper. A small number of residents
commute to northern Virginia to work.
TABLE 4. Town of Madison Commuting Data 2015
Source: 2015 US Census Longitudinal Employer-Household Dynamics Program
Note: Counts exclude uniformed military and self-employed persons
Count
Employed in Town 330
Living in Town 80
Living in/Employed in Town 7
Living in/Employed Outside of Town 73
Living Outside of/Employed in Town 323
Where Workers Go (Living in Town; Employed Outside) Count Share
Madison County 24 30.0%
Culpeper County 10 12.5%
Orange County 9 11.3%
City of Charlottesville 6 7.5%
Greene County 4 5.0%
Albemarle County 3 3.8%
Washington, DC 2 2.5%
Chesterfield County 2 2.5%
Frederick County 2 2.5%
Spotyslvania County 2 2.5%
All Other Locations 16 20.0%
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The U.S. Census American Community Survey reports estimates for employment by industry
and class of worker based on sample-based data collected over five years and updated
annually. The following charts identify the industries in which Town of Madison residents
were employed (Table 5.) and class of worker (Table 6.) based on sample data collected
between 2012 and 2016.
TABLE 5. EMPLOYMENT PERCENTAGES BY INDUSTRIES 2012-2016
Where Workers Come From (Employed in Town; Living Outside) Count Share
Madison County 159 48.2%
Culpeper County 26 7.9%
Greene County 20 6.1%
Orange County 16 4.8%
Albemarle County 15 4.5%
Rockingham County 9 2.7%
City of Charlottesville 9 2.7%
Augusta County 8 2.4%
Fauquier County 7 2.1%
Louisa County 6 1.8%
All Other Locations 55 16.7%
INDUSTRY NUMBER EMPLOYEED PERCENTAGE
Accomodation / Food Service 10 14.7
Construction 12 17.6
Education/SS 2 3.0
Finance/Insurance/Real Estate 1 1.5
Health Care / Social Assistance 12 17.6
Manufacturing 12 17.6
Professional/Management 10 14.7
Public Administration 1 1.5
Retail Trade 5 7.4
Wholesale Trade 3 4.4
TOTAL 68 100%
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TABLE 6. CLASS OF WORKER 2012-2016
According to the 2010 Census figures, the Town of Madison’s median household income was
$37,000.00. The 2012-2016 5-Year American Community Survey estimates median
household income for the Town of Madison at $34,000. The five-year estimates compares to
$48,271 for Madison County and $66,149 for the State of Virginia.
CLASS OF WORKER NUMBER PERCENTAGE
Government Workers 4 5.9
Private Wage & Salary Workers 58 85.3
Self Employed Workers 6 8.8
TOTAL EMPLOYMENT 68 100%
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TOWN GOVERNMENT
GOVERNMENT
The Town of Madison is the only incorporated town in Madison County. The Town is
governed by a mayor and a four member council, all of whom must be qualified voters of the
Town. The mayor and council members are elected for a four-year term from the Town at
large. The Mayor is the chief executive officer of the Town and votes only when a tie must be
resolved. The Town Clerk is appointed by the Council and oversees the daily operations of
the Town. The Town Council also appoints a Town Attorney.
The Planning Commission is composed of five members who serve staggered four-year terms.
The Commission serves as an advisory body to the Town Council on matters relating to
zoning and development of land and buildings. The Planning Commission is responsible for
drafting, reviewing, and updating the Town’s Comprehensive Plan and zoning regulations.
The Board of Zoning Appeals is composed of five members who serve staggered five-year
terms. The Board hears and decides appeals from any order, requirement, or decision or
determination made by the Town’s zoning administrator, or specific cases relating to
variances. The Board of Zoning Appeals is appointed by the Madison County Circuit Court
Judge after receiving recommendations from Town Council.
The Town of Madison is part of the Rappahannock-Rapidan Planning District which includes
Culpeper, Fauquier, Madison, Orange, and Rappahannock counties. The Planning District
provides planning support to the Town upon request.
RELATION TO MADISON COUNTY
As a Town, Madison remains part of Madison County and Town citizens are also citizens of
the County. The County exercises a broad range of powers granted to local governments by
the General Assembly, but is limited in powers it may exercise within the Town. The Town
enjoys those powers granted to it under its Charter and all general powers conferred upon
towns under state law.
The County is responsible for providing schools and law enforcement services to the Town
along with other services provided generally to County citizens. The Circuit Court and the
General District Court of Madison County have jurisdiction over relevant criminal and civil
cases arising in the Town.
To help finance the County-provided services, Town property owners pay the same real estate
taxes to Madison County as other County property owners. The County also receives all
communications and sales taxes assessed within the Town.
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The Town provides typical municipal services and facilities which are additional to those
provided by the County including street lighting, and sidewalks. The Town contracts to have
snow removed from sidewalks.
It should be noted that the County owns many properties located within the Town, and these
properties are not subject to the Town’s real estate tax. The Town exercises exclusive planning
and zoning authority over all property within the Town.
The Town of Madison and Madison County have in rceent years worked cooperatively on
some projects. They have worked together on a downtown business enterprise program. The
County has volunteered to administer a grant fund associated with the program. Also, the
Town and County have cooperated on a Town decorating committee. The County collects a
lodging tax, 50% of which must be spent on tourism. From this revenue, the County has
contributed to holiday lighting and banners within the Town.
TOWN REVENUES
Real Property Tax
In the past, there have been several instances of businesses, which had been located in the
Town of Madison, moving just outside the Town limits into newly constructed buildings on
properties that allowed for larger development and parking area. The most significant of these
was Wachovia Bank, formerly the Jefferson National Bank. With that move in 1998, the Town
lost not only a conveniently located service, but also a significant bank franchise tax, which
accounted for approximately 80% of the Town’s budget. To compensate for this loss, the
Town Council approved and implemented a real estate property tax.
In addition, because the bank’s former building was purchased by the County to house the
Madison County Social Services Department, the property was removed from the Town’s real
estate tax rolls. Because the Town serves as a County seat, there are many properties similarly
owned by the County government. This results in conveniently located services and well-
maintained offices, but it also adversely impacts the Town’s revenue.
The combination of properties owned by the county, churches, and non-profit organizations
represent approximately 25% of the assessed value of the Town’s real estate tax base and are
not subject to the Town’s taxation.
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CHART 2. Taxable/ Non-Taxable Real Property Assessed Values 2018
County real estate holdings in the Town of Madison not subject to the Town’s taxation
include:
• Arcade Building and adjacent parking lot
• Beasley Park at corner of Main Street and Church Street
• Kemper Residence
• Madison County Commonwealth Attorney’s Office (Former Estes House)
• Madison County Administration Building
• Madison County Clerk’s Office
• Madison County Courthouse
• Madison County Sheriff’s Office (former firehouse)
• Madison County Social Services Department and Parking Lot
• The War Memorial Building
• Blue Ridge Narcotics and Gang Task Force Offices (in former ABC building)
Churches and non-profit owned properties not subject to the Town’s real property
taxation include:
• Beth Car Baptist Church on Mud Road and adjacent lot on North Main Street
• Madison County Library, Inc. on North Main Street
• Madison United Methodist Church and adjacent lot on South Main Street
• Piedmont Episcopal Church on Church Street
• Piedmont Episcopal Parsonage House on Church Street
Other Taxes and Fees
In April 1999, the Town adopted the first meals tax. The Town’s motor vehicle license tax
followed in May 1999. Additional revenue is received from electric power consumption and
franchise taxes, utility pole tax, business licenses and Town permit fees. The Town has a bank
franchise tax, but presently no banks are located within the Town.
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15%
75%
10%
Non-Profit/Church
Taxable PropertyCounty-Owned
The Town of Madison does not collect sales or communication taxes, which are assessed
within the Town and received by Madison County.
DMV Revenues
In October 2000, the Town became a licensed agent for the Virginia Department of Motor
Vehicles. Operation of the DMV Select office provides a much needed service to residents of
Madison area and adjacent communities. The DMV Select office is a very popular service.
The Town receives revenues from DMV that account for nearly half of the Town’s total
income.
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TRANSPORTATION
EXISTING ROAD NETWORK
An excellent road network serves both the Town of Madison and Madison County. US Route
29 is a four-lane principal arterial that extends north to Washington, DC and south to Danville,
Virginia near the North Carolina state line. This highway is of primary importance for Town
residents who commute north to Culpeper, Warrenton, and northern Virginia, or south to
Greene County and Charlottesville.
The nearest interstate highway is I-64, an east-west oriented highway that passes along the
southern edge of the City of Charlottesville. I-64 is approximately 22 miles from the Town of
Madison. I-81, a north-south highway, is to the west of Madison and approximately 60 miles
away in Harrisonburg. To the east, I-95 traverses north-south and is approximately 60 miles
away in Fredericksburg. I-66 is to the north of Town and typically accessed in Gainesville,
approximately 50 miles from Town.
MULTI-MODAL TRANSPORTATION
The existing scale and compact development pattern of Madison make it, potentially, a very
walkable Town. Sidewalks are found on both sides of Main Street within much of the Town.
Sidewalks provide an important connection to Waverly-Yowell Elementary School just north
of the Town. In addition, sidewalks extend onto sections of Church Street, Washington Street,
and Ruth Road from Main Street. Many of these sidewalks are in need of maintenance or
replacement.
The Town’s fairly level topography also make it ideal for bicyclists. The Tour de Madison is a
popular annual cycling event that began in 1988, with multiple routes that all pass through the
Town of Madison.
The Town and Madison County have neither railroad service nor an airport within their
boundaries. Residents wishing to use passenger rail service can board AMTRAK trains in
either Culpeper (18 miles) or Charlottesville (28 miles). The nearest airport is Charlottesville-
Albemarle Airport near Charlottesville (21 miles). The Charlottesville airport includes a
60,000 square foot terminal with modern customer amenities, serving 230,000 passengers in
2012. The nearest full-service, international airport is Dulles Airport which is located in
Northern Virginia (74 miles). The Richmond International Airport is another option for Town
residents (94 miles).
STORM DRAINAGE
The Town is located on a ridge that is highest at the south end, so Main Street drains almost
continuously from south to north. During heavy storm events, water is not drained quickly
enough from portions of Main Street. A very short storm drainage system was constructed by
VDOT at the north end of Town. It runs from the intersection of Ruth Road to Waverly
Yowell Elementary School just outside the Town’s northern boundary.
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UTILITIES
WATER AND SEWER
The Town is served by water and sewer systems owned and operated by Rapidan Service
Authority (RSA), a regional public water and sewer utility serving Madison, Greene, and
Orange counties. The Town of Madison originally owned and operated the water and sewer
systems, but a decision was made to transfer them to the Authority in 1993.
The public water supply and distribution system that serves the Town was constructed in
1967. This water supply system serves the Town of Madison and some adjacent areas of the
County. In 2010 the water system had 248 users that use an average of 80,000 gallons per day
(GPD). The water treatment plant, which withdraws water from White Oak Run, has a
capacity of 250,000 GPD. At one time the Town’s supply system included a 75,000 gallon
elevated storage tank (water tower) at the corner of Thrift Road and Main Street. RSA has
since replaced that tank with a half-million gallon tank located on Courthouse Mountain, just
south of Town.
Sewer system service is limited to properties within the Town, with the exception of a few
commercial sites, including the Madison Plaza Shopping Center, located immediately south of
Town along US Route 29. A sewage treatment plant located east of Route 29 and north of
Town has 149 connections that use an average of 50,000 GPD. The capacity for treating waste
water has not changed since 1980 – 80,000 GPD capacity. The system plant is operating at
approximately 62 percent of that capacity, or 50,000 GPD. Potentially the plant could be
expanded on the present site if necessary. However, no plans are in place to do so.
OTHER PUBLIC UTILITIES
Public utilities are specially chartered under state law. Rappahannock Electric Cooperative
(REC) is the provider of electricity. A cooperative like REC is a non-profit business
voluntarily owned and controlled by the people who use its services. Unlike investor-owned
utilities, an electric cooperative is operated by and for people of the community.
Telephone land line service is provided by Verizon, which maintains a facility on Business
Route 29 south of Town.
Reception for 4G cellular telephone service is adequate throughout the Town. There are
presently no cellular towers or antennae systems located within the Town.
Cable television service is offered by Comcast under a franchise agreement with the Town.
This agreement requires Comcast to provide cable service to any residence or business within
—- feet of existing cable lines.
Of great concern to many Town residents is the visual impact of the existing utility poles and
overhead lines used for the distribution of electrical, telephone, and cable service. The
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Town’s Subdivision Ordinance requires any new subdivisions to place their utilities
underground whenever practicable.
INTERNET
Internet DSL (digital subscriber line) service is provided by Verizon and Comcast. The
Madison Library provides free wifi, which is popular and is utilized by residents at all hours
of the day, even when the library is not open.
BOTTLED GAS AND HEATING OIL
Bottled gas and heating oil are provided by dealers within Madison County.
SOLID WASTE DISPOSAL AND RECYCLING
Citizens of the Town of Madison may take their trash to the Madison County Transfer Station
on Shelby Road, or they may contract to have their trash collected.
Town and County residents have been recycling since 1987. The current dropoff program at
the Shelby Road Transfer Station uses a single-stream system.
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EXISTING LAND USE
GOVERNMENTAL CENTER (FACILITIES AND SERVICES)
Education
Education is provided through the Madison County School system. The Madison Primary
School (pre-K through grade 2) is located on Fairgrounds Road. Waverly Yowell Elementary
School (grades 3-5) is located on the north edge of the Town on Business Route 29.
Wetsel Middle School (grades 6-8) and Madison County High School (grades 9-12) are
located on Route 29 south of the Town of Madison.
Three major universities are located within one hour’s drive from the Town of Madison :
University of Virginia in Charlottesville (27 miles), James Madison University in
Harrisonburg (33 mikes), and University of Mary Washington in Fredericksburg (43 miles).
Also within easy commuting distance are Germana Community College with campuses in
Locust Grove and Culpeper; and Piedmont Virginia Community College with its main campus
in Charlottesville, and a new satellite facility in Stanardsville.
There are no private schools located in the Town of Madison, although there are several
within close proximity to the Town, including Woodberry Forest School located in Madison
County, Grymes Memorial School located in Orange County, and Blue Ridge School located
in Greene County.
Library
The Madison County Library, Inc. is an incorporated, non-profit organization located on
North Main Street in the Town. Established in 1937, the library moved to its present location
in 1969. A 1,948 square foot addition was constructed in 1988, which not only provided
much needed space for books, video, and audio collections, but also enabled access by
handicapped patrons. In 2004, another addition of 3,040 square feet was built. This newest
addition enabled the library to expand the children’s reading area, increase the patron’s
computer area, and establish a genealogy and local history room.
Health Services
The Town of Madison has one dentist’s office. Primary care physician’s offices that were
located in the Town recently relocated to facilities just outside Town. There is not a hospital
located in either the Town or County of Madison, but there is a primary care center, operated
by Wellspring Health Services located in Madison County south of the Town limits. The
nearest medical centers with an emergency room are the Novant Health UVA Culpeper
Medical Center in Culpeper, and the Sentera Medical Center located in Albemarle County on
Proffit Road. The nearest urgent care facility is located in Culpeper. Two hospitals within
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driving distance of the Town are the University of Virginia Hospital and the Sentara Martha
Jefferson Hospital, both located in Charlottesville.
The Virginia Department of Health, which is administered by Madison County Health
Department under a contractual agreement, is now housed in a facility located at the north end
of Town behind the Madison County Administration Building. The Health Department
provides a full range of public health and clinical services.
The Madison County Free Clinic opened its doors in August of 1999 and is housed in the
Madison County Health Department Building. The clinic is designed to help uninsured and
underinsured residents obtain medical treatment. The program provides medical and dental
assistance, as well as prescriptions.
Immediately east of Town is the Autumn Care of Madison asssted living facility. The facility
offers a total of 84 certified beds for short-term and long-term residents. A new wing,
constructed in _____, has 16 private suites. The facility also provides rehbilitation and
outpatient therapy services. The only access to the facility is from Church Street through the
Town. The lack of a second access point for emergency access has been an ongoing concern.
Public Safety
The Madison County Sheriff’s Office provides law enforcement and E911 services within the
Town. Several Virginia State Police officers are also assigned to the Madison County area.
Fire protection for the Town of Madison is provided by the Madison County Fire Department,
an all-volunteer, non-profit organization established in 1946.
The Madison County Rescue Squad (MCRS) was established in 1963 as an all-volunteer, non-
profit organization. In 1999, at their request, the County established the Madison Emergency
Medical Services (MEMS), an emergency medical services delivery system consisting of a
combination of government-employed and volunteer personnel. Paid employees during the
daytime are supplemented with volunteers at night and on weekends.
Both the Madison County Fire Department and the Madison Emergency Medical Services
facilities are located just north of the Town on Business Route 29. The Rescue Squad is
planning to relocate to a new site further north of Town along US Route 29.
Recreational Facilities
Beasley Park, located on North Main Street at Church Street, is named after Lawrence
Beasley, a former Town Council member and prominent citizen. It serves as a focal point for
the center of Town, and provides a pleasant place of respite.
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There is a new playground, built in 2019 at the Methodist Church located at the intersection of
South Main Street and Smith Road, which is open to the public. There is also a playground
open to the public at the Waverly Yowell Elementary School, located on the northern edge of
Town.
There are two recreation sites near the Town limits. Waverly Yowell Elementary School has a
softball diamond that is used by both organized leagues and local youths and adults. Madison
County’s Hoover Ridge facility, located approximately a mile southeast of Town, has a
number of athletic fields used for various sports.
COMMERCIAL
The main commercial area, in the center of Town, begins just north of Washington Street and
continues southward to the Courthouse area, eastward on Washington Street towards Route
29, and westward along School House Road. A second commercial node, south of Thrift
Road, is located on larger lots with onsite parking. The most recent commercial development
has occurred in this area.
Adjacent to the Town in Madison County are three commercial areas. To the east of Town
along Washington Street is an area that includes restaurants and automobile-oriented uses
serving travellers on US Route 29. In addition, MWP Supply Inc. operates MWP Building
Supply, a hardware and lumber store adjacent to the Town at 322 Washington Street. To the
north of the Town, is a commercial area along Business Route 29 that includes a number of
banks, offices, and stores, along with public uses such as the fire department, rescue squad,
and the post office serving the Town. Approximately one-half mile south of Town is the
Madison Plaza shopping center anchored by a grocery store. Additional commercial uses lie
southward along US Route 29 to the Oak Hill area.
RESIDENTIAL
At the north end of the Town, residences sit elevated above Main Street and have expansive
front lawns. Other residences are located along Ruth and Mud Roads.
In the center of the Town the homes are located closer to Main Street. Residential lot sizes
generally decrease toward the center of Town.
The southern end of the Town reflects a mix of historic homes along Main Street, and modern
housing constructed in recent decades, many of which are located off Main Street.
Most of Madison’s residences are single-family, but there are apartment buildings located on
Catherine and Smith Streets, and adjacent to Washington Circle. There are also rental
apartment units located in commercial structures in the central area of the Town.
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Immediately south of the Town, in Madison County, is an apartment complex known as
Poplar Ridge. South of Poplar Ridge, a number of single family homes are located along
Courthouse Mountain Road. Immediately north of the Town, on the west side of Main Street
there is a group of townhouses located on Utz Lane. A number of single family residences are
located along Cedar Hill Road. Large residential subdivisions are located outside of the
Town, east of US Route 29.
INDUSTRIAL
The only property located in the Town that is currently utilized for light industrial use is the
former electric power company building located on Washington Street. Part of that building is
used by Madison Wood Preservers for shipping offices and storage. Another portion of the
building is currently used as a commercial bakery.
Madison Wood Preservers is an industrial scale manufacturer of treated lumber. It’s main
production facility is located east of US Route 29.
RELIGIOUS AND NON-PROFIT ORGANIZATIONS
The Town of Madison is home to three churches that provide services on Sunday and also
support ongoing community activities. These are the Beth Car Baptist Church on Mud Road,
the Madison United Methodist Church on South Main Street, and the Piedmont Episcopal
Church on Church Street.All three churches in the Town operate in historic structures. Just
beyond the Town limits on Mud Road is the Antioch Baptist Church. It was the first African
American Church organized in Madison County, in 1865.
The Madison Presbyterian Church previously held services in the Town until the congregation
neeeded a larger building and additional parking to meet their needs.They obtained land north
of Town to construct their new church. The historic Madison Presbyterian Church building
located on North Main Street is now privately owned, and was most recently used as a retail
store.
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IV. OUR TOWN’S FUTURE
IMPLEMENTATION
Implementation is an ongoing effort of the comprehensive planning process, in order to
achieve the Town’s Vision. Virginia State Law requires that a comprehensive plan recommend
methods of implementation, and include a current map of the area covered by the plan. It
identifies several implementation methods that may be used, including: subdivision and
zoning regulations, and a capital improvements program (CIP).
This Comrehensive Plan includes a Land Use Plan that describes general locations for various
types of land uses and anticipated development, such as residential, commercial, and mixed
use. The Land Use Plan includes a Land Use Map designating generalized areas for uses.
Future amendments to the zoning map can be accomplished more objectively and
systematically, using the adopted Land Use Plan and Map as a guide.
The Town of Madison currently has subdivision and zoning regulations, which should be
reviewed and updated to reflect the Town’s current vision as expressed in this Comprehensive
Plan. The Town does not currently have a CIP, but this plan recommends that the Planning
Commission should prepare a CIP for the Town Council’s adoption, to budget for physical,
public improvements recommended in this Comprehensive Plan.
In addition to the Land Use Plan and Map, the implementation of specific Action Items are
recommended, which are tied to the eight listed Goals. This Plan also includes a
Transportation Plan, as required by Virginia State Law.
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ACHIEVING OUR VISION
The Vision and Goals stated in the beginning of this Plan are the basis for the Plan’s long
range recommendations. The Vision describes a neighborly community with attractive homes,
businesses and institutions. The Town seeks to preserve historic buildings both as tangible
reminders of its past, and as functional and valuable assets for today and the future. It looks
to foster businesses and institutions that are harmonious with its vision, and cultivate the
small-town qualities that residents and visitors prize.
The Goals state broadly how to achieve the community that is envisioned in the vision
statement. These guiding statements focus on eight areas that the Town believes should be
prioritized. A concise summary of the Goals might say that the Town of Madison strives to
grow its population and economic vitality, while purposefully protecting the small town
character, notably its historic character and walkable scale, that currently distinguishes the
community.
At the end of this Plan, each Goal is broken down into a series of steps called Action Items,
that Town officials and staff can implement to achieve the Goals. The following sections,
Recommendations, Land Use Plan, and Transportation Plan, further describe the Action Items.
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LONG RANGE RECOMMENDATIONS
HISTORIC PRESERVATION
Historic Preservation is listed as the first of eight Comprehensive Plan Goals, for good reason.
The single most distinguishing feature of the Town of Madison is its intact collection of
nearly 100 historic buildings that date from the early 19th century to the mid-20th century.
The Town’s historic character roots the Town in a broader history, adds aesthetic and
economic value, and promotes tourism. When Route 29 was re-routed to bypass the Town, it
diverted some potential economic development, but likely preserved the Town’s asset of an
intact historic village.
It is important to consider how historic resources can be integrated into a plan for future
development and infill. Preservation of these historic buildings, with appropriate, adaptive re-
use, is essential to the Town’s future well-being and economic prosperity. It is recommended
that the historic district regulations and boundaries be revisited, to better protect historic
resources and to have a clearer and more consistent review process.
Historic preservation is best accomplished by a layered approach, which can be adjusted over
time according to a locality’s needs and desires. Preservation begins with the critical
recognition of the value and appeal of historic buildings in their original setting. Since more
than 35 years have passed since the original historic survey, an updated inventory of all the
historic resources is recommended, to document their current state. Some buildings may have
been demolished or significantly altered, and some may have become more significant with
age. An inventory update could also identify historic buildings that may have been omitted by
the original survey conducted in the 1980’s. The boundaries of the existing district could be
expanded to include additional historic buildings that may be identified.
The historic district ordinance that the Town adopted in —— has served the Town to date, but
should be reviewed and updated, to reflect current thinking about preservation, and to better
meet the Town’s present and future needs. At a minimum, regulations should require
legislative review prior to proposed demolitions or extensive exterior alterations of historic
buildings. In addition, minimal design review can ensure that new buildings, or additions to
exisiting buildings, are compatible with the Town’s historic structures and overall character.
A review board should be established to act on applications for proposed demolitions and
other specified changes within the historic district. The review board may also make
recommendations to Town Council regarding, for example, boundary changes in the historic
district, or revised design guidelines.
Design guidelines are considered a best practice to facilitate the review process, and promote
more consistent and fair decision-making. The existing design standards included in the
zoning ordinance should be reviewed, revised to reflect current practices, and adopted anew
for use as design guidelines in the future. Design guidelines should be approved by Town
Council.
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Another layer to historic preservation is outreach to owners of historic buildings. It is essential
that historic property owners understand and support the Town’s goal to protect historic
buildings. The Town should offer helpful information to owners, it should recognize their
preservation efforts, and should thank them for their continued stewardship.
TOWN CHARACTER
The Town’s historic structures, walkable village commerce, local government services and
cultural activities are fundamental to its current character, and its continuing ability to thrive.
There are several actions that the Town can take to protect its assets, through a combination of
appropriate regulations and efforts to promote public awareness of the Town’s goals.
One possible action is for the Town to be proactive about the uses that will occupy existing
vacant spaces. The Town should support efforts to identify and seek out the types of
businesses there is a need for, and which would be compatible with the Town’s character.
New development should continue to be regulated to ensure it makes a positive contribution
to the Town. Important considerations in order to maintain the Town character are: providing
connecting sidewalks; locating parking to the rear of buildings; providing appropriate
landscaping and screening; providing appropriate signage; and maintaining the current quality
of materials and design in new buildings and improvements.
ECONOMIC BASE
All eight goals and related action items are intended to work together to create and maintain a
thriving Town. New businesses cannot succeed without a larger residential base and tourism.
Tourism is dependent on the preservation of historic buildings, an attractive downtown, and
active storefronts. New development requires adequate utilities, street improvements, and
other infrastructure. The Town should always be attuned to, and should poition itself for, new
opportunities for Town growth and expansion.
The Town should more actively promote tourism, requesting increased participation by
Madison County and the Madison Chamber of Commerce, since it is in their best interests to
heighten the Town’s vitality. An example of a joint effort would be placing a kiosk downtown
to provide information about Madison County attractions. The “Guide to Downtown
Madison” brochure, previously published by the Town in 2013, should be updated.
The Town should consider new, creative ways to provide income to the Town. Tourism-related
uses such as inns, bed and breakfasts (B&B’s), and short-tern housing (such as Air B&B’s)
can become a source of temporary lodging taxes. Temporary or “pop-up” uses can serve to
make use of vacant spaces, increasing activity in Town, and providing revenue to the Town.
The microenterprise fund can provide financial incentives to new businesses.
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It is necessary to increase the population in order to grow Madison’s population and economy.
In addition, it it vital that the population is accurately documented. The Town should make an
effort to promote the next U.S. Census with a public campaign to convey the importance of
participation.
UTILITY INFRASTRUCTURE IMPROVEMENTS
Infrastructure improvements are necessary to support new development. Long term, the Town
should pursue with the Rapidan Service Authority and Madison County the goal of additional
public sanitary sewer capacity to serve future needs. In addition, the current use of septic
systems in the Town should be documented and assessed.
The Town should support private efforts to improve telecommunication, internet and cable
access, while ensuring that the technology is compatible visually with the historic district. The
Town may, at some point in time, consider providing wifi to public spaces in the core area of
downtown.
Utilization of wind and solar energy should be encouraged generally, but specific facilities
should be reviewed for compatibility with the historic district.
PUBLIC FACILITIES AND SERVICES
Public facilities and services are important to attract and retain residents, business owners and
customers, and visitors to the Town. Well-maintained street lighting, sidewalks and storm
drains are important for comfort and safety, and for the overall perception that the Town is a
place where you would enjoy living and working.
Beasley Park is an example of a successful public amenity. Purposefully planned open spaces
add value to surrounding properties, and are enjoyed by residents and visitors. The Town
should consider adding more public spaces, possibly including improvements such as a
playground, or outdoor exercise stations. The Land Use Plan notes potential locations for
additional public space.
Streetscape improvements also add value and enjoyment. Street trees provide a barraier
between traffic and pedestrians, provide shade to make walking more comfortable, and make
the Town more attractive. Public signage such as wayfinding signage assists visitors to locate
attractions and parking. Regulatory public signage is a necessity, but should be maintained
and managed, with signs being removed if no longer needed.
The Town may also, at some point, review available options for the franchising of solid waste
collection in the Town in order to better serve Town residents and businesses.
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NATURAL ENVIRONMENT
Protection of the natural environment should be integrated into the Town’s review processes.
Site plan and subdivision reviews are typically used to accomplish this goal, with
consideration given to topographic changes, removal and replacement of landscaping and
screening, additional trees, and appropriate lighting.
Consideration should be given to requiring street trees with new development to provide
environmental and aestheic benefits. All new development should further address storm water
management, so as not to increase storm water flow through public streets.
The “Dark Sky” movement seeks to protect the dark nighttime sky as a natural resource.
Localities across Virginia have widely accepted this premise, and have adopted regulations to
protect the visibility of stars and constellations at night. This is accomplished by requiring
simple, but effective, shielding of light fixtures. The added benefit is a reduction in the
nuisances of light pollution and glare, thus promoting safer visual conditions. The Town
should review its zoning regulations in this regard to ensure they are adequate.
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LAND USE PLAN
COMMERCIAL USES
Commercial activity is currently concentrated in two distinct areas of Town, that are
designated as separate commercial nodes in the Land Use Plan: “Downtown,” generally
centered around the courthouse; and “South Main,” south of Thrift Road. Both of these two
commercial nodes should provide for mixed uses. Many properties in these areas are currently
zoned B-1. This B-1 zoning is appropriate and should remain, however, it should be reviewed
as to uses permitted and amended to allow appropriate secondary uses, such as residential
units on the upper floors. In addition, mixed uses generally should be permitted in both
commercial nodes.
Downtown
The Downtown area is centered on Washington and Main Streets and extends south to
Catherine Street. Sidewalks are located on both sides of Main Street, so it is very walkable.
Parking is provided in a central public parking lot and on-street parking spaces. This area has
restaurants and mixed uses, including apartments located over commercial uses.
This area should be promoted as a place to park your car and walk. Priority should be given to
convenient parking, attractive and clear signage, pedestrian amenities, such as sidewalk and
streetscape improvements, and welcoming public spaces. As an example, the public parking
lot could be better identified with signage.
To promote full occupancy, the Town should actively encourage specific, desireable tenants to
locate there, such as shops and businesses that serve area residents’ needs, not only tourism-
related uses. It would be good to solicit businesses such as dry cleaners and banks, that were
located in the Town previously, but are no longer present.
South Main
The South Main area, characterized by larger lots, is located south of Thrift Road. This
commercial area has individually located business uses, each with their own parking, which
distinguishes it from the Downtown area. The focus here is retail, such as the new Dollar
General Store and a tack shop, and also services, such as day care. Permitting mixed uses here
would allow for a wider range of establishments to serve not only the Town residents, but also
the greater Madison community. For this reason, the extension of sidewalks to fully serve this
South Main commercial node is essential. Sidewalks should also be extended to serve
Madison County residents living just south of the Town boundary.
To promote full occupancy, some vacant properties may be used to locate temporary uses,
such as food trucks, farm market or other vendors. The Town should ensure its regulations are
flexible enough to appropriately accomodate temporary uses such as “pop-up” retail stores
and markets. Food trucks could also be permitted under appropriate regulations on properties
with complementary commercial uses and adequate parking areas.
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RESIDENTIAL USES
The Town should welcome new residents, and seek to increase its population. It should
encourage new residential units in variety of housing types, to meet a range of individuals’
and families’ needs. It should seek to provide a diversity of homes for all household incomes,
including planned affordable housing units. New infill housing should be respectful of historic
building scale, materials and setbacks.
New housing may occur:
- as infill development near existing homes;
- in new low-density residential subdivisions;
- in zoned areas set aside for multi-family units; or
- in new mixed-use areas with both residential and commercial development in close
proximity.
In keeping with the goal of creating a walkable community, the entire Town, including low-
density areas, should be planned for pedestrians, so that residents may comfortably walk to
commercial areas, schools, services, and institutions.
Affordable Housing
Affordable housing units should be well-integrated into the Town. To do this, affordable units
should be provided in the same variety of housing types as other existing residential units.
Affordable housing is appropriate in residential areas that have good pedestrian connections
to commercial uses and services, or in mixed-use areas.
Low Density Residential Areas
The majority of the Town may be described as consisting of low-density residential
development. Most of the existing residences are single-family detached, and this is not likely
to change in the next twenty years. The existing R-1 zoning designation matches this existing
pattern of development, and is recommended to remain in place. Purely residential zoning
helps ensure a healthy balance between residential and commercial uses. However, the R-1
zoning district could be written to allow both one- and two-family units, which are similar in
scale. Design standards can be put in place for two-family units to make them more
compatible with single-family homes.
Another way for the Town to increase it’s population, without impacting the exisitng Town
character and scale of buildings, is to allow accessory units by right within the low density
zoning areas. Accessory units may be a good option because they are easily acccomodated in
an existing home, such as a basement unit, or in an existing or new accessory building, such
as a garage apartment. Accessory units also help fill an important need for affordable housing.
They can provide housing for older family members or young people just starting out. New
residents can rent an accessory unit while transitioning to permanent housing. A unit can also
provide a good source of supplementary income for a property owner. Accessory units should
be limited in size, and appropriately regulated.
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High Density Residential Areas
There are currently three parcels in the Town that are zoned R-3. Two of these parcels are
developed with apartment buildings. One of these buildings, located on Catherine Street,
should be incorporated in the zoning for the commercial/mixed-use areas. A second one-story
apartment building is located on Smith Road in an area planned for low-density use. The R-3
zoning for this one site is inconsistent with the Land Use Plan but may be permitted to
remain. However, this R-3 zoned area should not be expanded. The parcel on Ruth Road was
rezoned to accomodate an accesssory apartment, and could be appropriately changed back to
low-density residential zoning.
This Plan does not recommend adding any new areas of R-3 zoning for multi-family housing
(the R-3 zoning category may eventually be discontinued). Rather, higher density residential
uses are recommended to be permitted by providing for them through mixed-use development
in the two designated commercial areas.
Short -Term Housing
Providing for short-term housing, including inns and B&B’s, is an economic strategy to
promote tourism, and to meet short-term rental needs of visitors to the area. Permitting such
uses can also assist property owners trying to maintain a historic building. If short-term
housing is to be permitted, necessary and thoughtful regulations to prevent nuisances, such as
traffic and noise, should be adopted. With such regulations, short-term housing may be
appropriate in all areas of the Town.
MIXED USES
Mixed use areas combine several zoning categories that traditionally were kept separated by
zoning. Allowing uses such as commercial, office, and residential to coexist is more
convenient, and also more socially interactive. Residents may be able to walk to their
destination, rather than always having to drive there, and look for parking. Mixed use areas
are often successful as places for people to live, work, shop, run errands, meet friends, and
find entertainment. Mixed uses promote a more dynamic community.
A good example of a mixed-use district on a mini scale is the Downtown. There you can find
rental apartments located above commercial uses, and this should be encouraged.
Putting residential units close to commercial areas provides both patrons for the retail uses,
and convenience for the residents. In addition, mixed uses can make it more economically
viable to revitalize existing, older buildings, and to create more vibrant and attractive
destinations on Main Street.
The scale of any future mixed-use development in the Town would depend on several factors,
such as market demand, availability of property, and availability of public utilities. The
advantage of planning for mixed use, is that it allows flexibility to change uses without
changing the zoning district, as demand for uses changes. In mixed-use areas, permitted
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commercial uses should be compatible with residential uses that will be located nearby.
Commercial uses that may overly impact or burden adjacent residential uses should only be
allowed through a special use permitting process under which conditions can be imposed to
minimize such impacts. In both the Downtown and South Main commercial nodes, it is
appropriate to permit mixed uses.
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LAND USE MAP
MAP 6: Land Use Map
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TRANSPORTATION PLAN
REQUIRED TRANSPORTATION PLAN
The comprehensive plan must include a transportation plan that has been reviewed by the
Virginia Department of Transportation. This plan shows the Town’s infrastructure needs,
proposed road projects and road improvements, with maps and cost estimates, to the extent
that VDOT can supply the information. The transportation plan must include multimodal
facilities such as bicycle and pedestrian accommodations. The hierarchy of roads (highways,
arterials, collectors, etc.) must also be made clear. This portion of the Comprehensive Plan
must be in conformance with the Commonwealth Transportation Board’s Statewide
Transportation Plan and the Six-Year Improvement Program. In addition, consideration must
be given how to align transportation facilities with affordable, accessible housing, and
community services, to facilitate integration of the elderly and persons with disabilities.
FUNCTIONAL CLASSIFICATIONS
The Virginia Department of Transportation (VDOT) and Federal Highway Administration
(FHWA) classify roadways according to functional classification, according to the character
of service they are intended to provide within the transportation network. As of 2014, the
primary categories are principal arterial, minor arterial, collector, and local roads. Functional
classification impacts road design features, eligibility for federal funds for road improvements
and maintenance, frequency of inspections, development and maintenance of local roads
ineligible for federal funding, access management, traffic calming eligibility, and data
recording such as mileage tables.
EXISTING ROAD NETWORK
US Route 29, which bypasses the Town of Madison on its east side, is a principal arterial.
The 2016 Average Annual Daily Traffic (AADT) for this section of the US Route 29 Bypass
was 18,000 vehicles, according to the Madison County Transportation Plan.
Business Route 29 and Route 231, called Main Street, runs the length of the Town of
Madison, then forks at the northern Town boundary. There, Route 231 becomes the Blue
Ridge Turnpike, heading northwest, and Route 29 Business continues northeast to connect
back with US Route 29. Main Street is classified as a minor arterial, and has an average daily
traffic count of 4,000 vehicles a day according to the 2017 traffic count data developed by
VDOT. Of the 4,000 vehicles, two percent is estimated as truck traffic. Blue Ridge Turnpike
(Route 231) is also a minor arterial and a designated VA Scenic Byway, with average daily
traffic of 3,900 vehicles north of the fork.
Major collectors in the Town include Route 29 Business north of the fork, with an average
daily traffic of 3,000 vehicles, and Washington Street (Route 634) with 2,700 vehicles.
Washington Street connects US Route 29 with Main Street, and forms major commercial
intersection. Church Street (Route 1001) also has significant traffic, with average daily traffic
of 1,600 vehicles.
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MAP 7: State Routes/Names, Functional Classifications, and Locations of Proposed
Intersection Improvements (Madison County Route 29 Corridor Study)
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MADISON COUNTY: ROUTE 29 CORRIDOR STUDY AND TRANSPORTATION
PLAN
In 2012 the County of Madison had a Route 29 Corridor Study prepared in order to promote
orderly development in the Route 29 corridor. The study was formally adopted by the County
Board of Supervisors in 2014 and later incorporated into a Transportation Plan that was
adopted as part of Madison County’s 2018 Comprehensive Plan
The study area extended one mile on either side of the Route 29 corridor, and included the
Town of Madison. The study notes the location of five traffic signals within a short distance
near the Town of Madison, and that VDOT supports having fewer signals. The study also
supported improvements to four intersections on US Route 29 and on Route 29 Business that
impact the Town of Madison.
The 2018 Madison County Transportation Plan specifically proposes four unfunded
improvement projects for these four intersections. Two are recommended to be grade-
separated interchanges. These are located at (1) US Route 29/Fairgrounds Road (Route 687)
and at (2) US Route 29/ Main Street (Route 29 Business), north of the Town. Two are
recommended to be traffic circles or roundabouts at (3) Main Street (Route 29 Business)/Blue
Ridge Turnpike (Route 231) and at (4) Main Street (Route 29 Business)/Fairgrounds Road
(Route 687).
The proposed intersection improvement (3) is especially important to the Town because it
would allow truck traffic to travel between US Route 29 and Blue Ridge Turnpike (Route
231) without having to enter the Town and make the difficult turn at the intersection of
Washington Street (Route 634) and Main Street (Route 29 Business). Reducing truck traffic in
downtown Madison would reduce noise and benefit pedestrian safety and sidewalk
maintenance.
MULTI-MODAL TRANSPORTATION NEEDS
Pedestrian Improvements
TABLE 7. Traffic Counts 2017Route Length (miles Begin End AADT Auto Truck 2 AxleTruck 3+ Axle
Business 29/231 (Main Stree 0.91 S Town Boundary Route 231 North 4000 98% 1% 1%
Business 29 (Main Street) 0.05 Route 231 North N Town Boundary 3000 98% 1% 1%
Route 231 (Blue Ridge Tpke 0.04 Route 29 BusinessN Town Boundary 3900 98% 1% 1%
Route 634 (Washington St) 0.10 E Town Boundary Route 29 Business 2700 98% 1% 1%
Route 657 (Thrift Rd) 0.09 W Town BoundaryRoute 29 Business 360 98% 2% 0%
Route 1001 (Church St) 0.10 E Town Boundary Route 29 Business 1600 - - -
Route 652 (Ruth Rd) 0.09 W Town BoundaryRoute 29 Business 350 - - -
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Having well-maintained sidewalks throughout the Town is essential to creating a walkable
community that links residences, businesses and services within the Town. In addition, Town
residents have shown a desire to walk to services, such as the post office and banks, which are
located just north of the Town in the County. Providing a pedestrian connection to the
County Administrative offices and American Legion property on Thrift Road is also
desireable.
Students who live both in and immediately adjacent to Town should be able to walk to the
Waverly-Yowell Elementary School.
A Sidewalk Inventory & Pedestrian Infrastructure Report for Madison County and the Town
of Madison was prepared by the Rappahannock Rapidan Regional Commission in March,
2019. Sidewalks currently follow Main Street on the west side from Dollar General (554 S
Main Street) to the Hall Bungalow (323 N Main Street) just before Ruth Road. On the east
side of Main Street sidewalks begin at the Virginia Farm Bureau Insurance Company (609 S
Main Street) and run to the Waverly Yowell Elementary School just north of the Town
boundary. There are also sidewalks on portions of the north side of Ruth Road, and on
portions of the north side of Washington Street, and on portions of both sides of Church Road.
Presently, sidewalk deficiencies include older, deteriorated and overgrown sections, and
missing connections. Sidewalk replacement is needed on the east side of Main Street between
Washington Street and Ruth Road. Locations needing repair are found on both sides of
Church Street and in other spot locations along Main Street.
Priorities for adding new sidewalks are :
1) On the west side of South Main Street, to connect from the Dollar General Store to
Poplar Ridge Apartments;
2) On the east side of North Main Street, to connect Waverly Yowell Elementary School to
the Post Office north of Town;
3) On the north side of Washington Street, to connect Main Street to McDonalds;
4) On Thrift Road, to connect the American Legion and County offices to South Main Street.
Bicycle Improvements
The Town’s compact development and fairly level topography also make it ideal for
bicyclists. The Tour de Madison is a popular annual cycling event that began in 1988, with
multiple routes that travel through the Town of Madison.
Main Street is too narrow to provide for separated bike lanes. However, providing sharrows
to alert motorist that the roadway is shared with bicycle traffic may be considered.
Additionally, the Town should provide bike racks in the center of Town along with a public
bike repair station.
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STORM DRAINAGE
Presently, much of the Town’s area drains into Main Street, where existing gutters then
convey the water downhill, all the way from the south end of Town to the north end of Town.
At the north end of Town, a very small storm drainage system was constructed by VDOT at
the intersection of Ruth Road and North Main Street. There, drop inlets take the storm water
into ditches and storm drainage pipes that lead outside the Town limits past Waverly Yowell
Elementary School.
The Town is in need of storm drainage improvements within VDOT’s right-of-way, both
along Washington Street, where damage has occurred, and along Main Street, where the
existing gutters are overwhelmed during major storm events. The Town should also seek
opportunities to divert storm runoff away from Main Street at more frequent intervals.
MAP 8: Existing Sidewalks and Proposed Improvements
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URBAN DEVELOPMENT AREAS
Virginia provides for localities to incorporate, within their Comprehensive Plan, one or more
Urban Development Areas. An Urban Development Area (UDA) is an area of the locality that
may be appropriate for higher density development due to its proximity to transportation
facilities and the availability of public utilties. To the extent feasible, such areas are to serve as
a focus for redevelopment or infill development.
Urban Development Areas are intended to meet projected residential and commercial growth
in the locality for an ensuing period of at least 10 but not more than 20 years. They should be
areas appropriate for development at a residential density on their developable acreage of at
least four single-family residences, six townhouses, or 12 apartments per acre. The density
for commercial development should provide an authorized floor area ratio of at least 0.4 per
acre. UDA’s must incorporate principles of traditional neighborhood design (TND), such as
pedestrian-friendly road design, connectivity of road and pedestrian networks, preservation of
natural areas, and mixed-use neighborhoods, including mixed housing types.
This plan designates all of the Town of Madison as a UDA, which would be the first in
Madison County. Designating the Town as a UDA complements the Town’s land use goals
set out in this Plan. It may also help to achieve these goals as UDA’s can aid localities in
qualifying for funding of transportation improvements.
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CAPITAL IMPROVEMENTS PROGRAM
A capital improvements program (CIP) serves as a planning and implementation tool for the
acquisition, development and construction of public facilities and infrastructure. A CIP should
include estimates of costs for improvements and state the means for funding such
improvements. Localities use a CIP to plan for amenities such as roads and sidewalks, public
parking, parks and recreation enhancements, and drainage improvements.
A local governing body may direct the planning commission to prepare, and revise
periodically, a CIP covering a time period not to exceed the following five years. The CIP
should include the commission's recommendations for needed public improvements and
estimates of their costs. In the preparation of CIP recommendations, the commission must
consult with the chief administrative officer of the government of the locality, and hold such
public hearings as necessary to include the input of interested citizens and organizations.
It is recommended that the Town prepare a five-year CIP to address the timing and funding
for desired improvements described in this Plan, particularly sidewalks, bicycle facilities, and
drainage improvements.
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GOALS WITH ACTION ITEMS
1. HISTORIC PRESERVATION: Protect the Town’s distinctive historic character,
which roots the Town in a broader history, adds aesthetic and economic value, and
promotes tourism.
1.1 Protect historic structures from demolition and incompatible exterior alterations by fully
implementing the existing zoning ordinance’s historic district regulations and updating them.
1.2 Establish an architectural review board as part of implementing the updated historic
district regulations.
1.3 Adopt historic district review guidelines.
1.4 Encourage a cooperative relationship with owners of historic properties by providing
information, assistance regarding the architectural review process, and promoting recognition
of their stewardship.
1.5 Encourage owners of historic properties to use Federal and State historic rehabilitation tax
credits for historically-appropriate reinvestments in property within the historic district.
1.6 Document significant historic resources not presently included in the historic district
inventory of landmarks and contributing structures, and amend the inventory and historic
district as appropriate.
2. TOWN CHARACTER: Protect and enhance the small town character with its
historic buildings, active commercial and residential areas, and pedestrian-friendly
scale.
2.1 Encourage land uses in existing buildings that complement the Town’s character.
2.2 Encourage new infill development that is in keeping with the character of the Town, and
which promotes pedestrian access.
2.3 Require parking areas be located to the rear of buildings or attractively screened and
landscaped.
2.4 Review sign regulations to ensure signs be compatible with existing structures and
appropriately designed and sized for the character of a small, historic town,
2.5 Encourage new buildings and improvements to maintain the current quality of materials
and design.
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3. ECONOMIC BASE: Encourage appropriate new businesses and commercial tenants,
compatible infill developments, and tourism.
3.1 Promote full occupancy of existing commercial spaces.
3.2 Favor commercial uses that are compatible with residential uses located nearby.
3.3 Favor commercial uses that provide services to the residents of the Town and Madison
County.
3.4 Provide for tourism-related land uses within the Town, such as museums, inns, and
B&B’s.
3.5 Encourage economic activity by providing for appropriate temporary commercial uses
that utilize vacant commercial properties.
3.6 Work with Madison County and the Madison Chamber of Commerce to promote tourism
and a vibrant downtown, capitalizing on its historic setting.
3.7 Utilize the existing microenterprise loan fund to provide financial incentives to new
businesses and ultimately support facade renovations or other needed improvements to the
business district.
3.8 Update the “Guide to Downtown Madison” brochure listing businesses and events
(previously published by the Town in 2013).
3.9 Promote awareness of the importance of participation in the next U.S. Census.
4. TRANSPORTATION IMPROVEMENTS: Maintain existing streets and sidewalks
and related infrastructure, such as stormwater systems, and construct needed new
infrastructure, to create a functional, safe, and attractive, “walkable” community.
4.1 Pursue VDOT transportation grant funding for repair of existing sidewalks and
construction of new sidewalks throughout the Town, connecting the Town to adjacent housing
and commercial uses in the County.
4.2 Work with VDOT on maintenance of Town streets and ensure improvements are included
in the Madison County 6-Year Plan as appropriate.
4.3 Work with VDOT to repair and improve the stormwater drainage along Main Street and
Washington Street.
4.4 Work with VDOT to evaluate immediate improvements to the intersection of North Main
Street and Route 231, and limiting truck traffic in the Town.
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4.5 Support the recommendations identified in the 2012 Route 29 Corridor Study for
intersection improvements that impact the Town of Madison.
4.6 Give consideration to bicycle safety and convenience when planning transportation
improvements, and provide bicycle facilities downtown.
4.7 Support the development of a commuter parking facility located within the Town,
convenient to US Route 29 and Route 231.
4.8 Designate the Town as an Urban Development Area (UDA) to facilitate future assistance
with transportation projects.
4.9 Work with VDOT to review and improve traffic control signage within the Town.
4.10 Establish cooperation with the Sheriff’s Department to enforce traffic regulations within
the Town.
5. HOUSING: Encourage new housing types that are compatible with the Town’s
character, and that address a range of spatial needs and household incomes.
5.1 Maintain the existing inventory of housing to retain population, ensuring a healthy balance
between residential and commercial uses in the Town.
5.2 Prevent deterioration, and promote rehabilitation, of residential structures.
5.3 Promote new residential construction with a variety of housing types, sizes and costs, that
are compatible with the character of existing residences in the Town.
5.4 Provide for affordable housing that is compatible with the Town’s character, well-
integrated into the community, and within walking distance of retail, services and institutions.
5.5 Provide for accessory units as way to integrate affordable units into the exisiting hosusing
stock, to provide a more flexible housing type meeting certain needs.
6. UTILITY INFRASTRUCTURE IMPROVEMENTS: Assess needs for public and
private utility infrastructure improvements such as sanitary sewer and water, septic
systems, and internet and cable communications; and establish policies to encourage
future improvements.
6.1 Work with the Rapidan Service Authority and Madison County to assess the existing
sanitary sewer capacity and develop means to provide additional capacity to serve the Town.
6.2 Review existing use of septic systems in the Town and assess Town regulations affecting
use of septic systems for appropriateness.
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6.3 Support efforts to improve the quality of telecommunication, internet, and cable services
availablea in Town.
6.4 Address solar and wind energy uses to ensure they are compatible with the Town’s historic
setting.
7. PUBLIC FACILITIES AND SERVICES: Assess needs for public services and
improvements such as playgrounds, street lighting, landscaping, and wayfinding
signage; and establish policies and practices to encourage public improvements and
deliver appropriate public services.
7.1 Continue to provide for snow removal on sidewalks.
7.2 Continue to provide street lighting, and upgrade its quality by improving energy efficiency
and ensuring dark sky compliance.
7.3 Provide for regular cleaning of street gutters and storm drain facilities.
7.4 Encourage the County’s continued maintenance of Beasley Park, and seek opportunities to
provide additional public spaces and facilities such as a playground.
7.5 Consider streetscape improvements such as providing street trees and wayfinding signage.
7.6 Protect the scenic quality of the Town by avoiding signage clutter.
7.7 Prepare and adopt a Capital Improvements Program to implement Comprehensive Plan
recommendations for public improvements.
8. NATURAL ENVIRONMENT: Respect and encourage safeguarding of the natural
and scenic environment that attracts residents and visitors to the Town.
8.1 When new development occurs, encourage preservation of existing topography and
mature trees to the extent feasible.
8.2 When new development or a change in uses occur, secure new landscaping that utilizes
native species of vegetation.
8.3 Protect the existing rural environmental setting of the Town including fresh air, the dark
night sky, and country quietness through: retention of existing trees; planting of new trees; use
of shielded lighting; appropriate buffering of uses with fencing and landscaping; and
discouraging disquietude.
8.4 Encourage preservation of existing views and vistas to the surrounding rural areas and
mountains.
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