august 12, 2003 - granicus

REZ15-1113 April 5, 2016 Holland

STAFF REPORT

To: Town Council, Town of Ashland, Virginia From: Nora Amos, Director of Planning and Community Development Date: April 5, 2016 Case Type: Rezoning Case No.: REZ15-1113 Case Name: Holland Location: North of Archie Cannon Drive, bracketed by Route 1/N. Washington Highway to the east, the railroad to the west, and the Town border to the north.

GPIN(s): 7880-06-8298, 7880-06-4944, 7881-00-3198, and 7870-97-5189

REQUEST: The Applicant, Richard E. Holland, Jr. Properties LLC, has filed a rezoning (REZ) application to rezone approximately 276.75 acres from RR-1, Residential Rural and R-2, Residential Limited to M-1, Limited Industrial with proffers. The property is commonly known as the “Holland Tract” and comprises much of the northern portion of Ashland that is west of Route 1 and north of Archie Cannon Drive. The existing use is farmland and open space. On March 15th Town Council approved a Comprehensive Plan amendment (CPA) to change the future land use classification to a combination of Office/Industrial, Mixed Commercial, and Open Space.

RECOMMENDATION: Planning Commission Recommendation On February 10, 2016, the Ashland Planning Commission voted (3-2) to recommend approval of the rezoning application (REZ15-1113 Holland) with the proffers dated February 9, 2016. Additionally, the Planning Commission voted (5-0) to recommend the following items to Town Council for consideration: 1) No through trucks to be allowed on Archie Cannon Drive beyond the Archie Cannon Drive entrance to the Holland tract. 2) Uses on the property shall exclude fuel stations, plastic and rubber manufactures, and a railroad spur. 3) Loading bays on buildings within 500 feet of the western property line across from the Ashland Park neighborhood shall face east. 4) Landscape buffering shall be planted to obscure sight, sound, and light for the protection of the Ashland Park neighborhood.

Town Council Town of Ashland, Virginia of 34 5) Encourage measures to extend dark fiber into the Town and Holland tract. Staff Recommendation Staff is recommending approval of REZ15-1113. MOTION (REZONING):

Approve – I move to approve REZ15-1113 with the proffers dated March 31, 2016.

Deny – I move to deny REZ15-1113.

Defer – I move to defer action on REZ15-1113 until the ___ Town Council meeting.

Town Council Town of Ashland, Virginia of 34

UPDATES FROM THE MARCH 15th TOWN COUNCIL MEETING: Staff met with the Applicant to discuss the following topics raised at the last public hearing: 1. Large Distribution Centers The Applicant provided staff with a comprehensive list of 38 large (700,000 SF to 1,500,000 SF) distribution centers (attached to staff report). Staff researched the zoning regulations and found that almost all these locations had no proffers. In the two locations where proffers were in place they required landscaping, signage, and other elements covered in the current set of proffers offered by Ms. Allen. The locations of these businesses are commonly in suburban industrial parks, older industrial sites, or small towns in rural areas where the distribution center may be the only major employer. These locations were not all that comparable with Ashland. Staff does not see the best use of this property as a “distribution only” industrial park. Higher quality uses for this property could be a combination of advanced manufacturing, workforce training, medical campus, or high-quality office space. Staff conducted research on Rolls Royce Crosspointe in Prince George County and Virginia Tech Industrial Park in Blacksburg. In each of these developments, businesses went through additional local steps (e.g. rezoning in Prince George and design review in site plan for Blacksburg). To address concerns of large distribution-only businesses, staff is recommending that this issue be further explored through a possible text amendment to M-1 zoning. This would allow for further investigation to create strategic measures to put in place to guard the Town, while allowing for development opportunities to occur. 2. Parks and Trail Extension The Applicant and town staff will work with Randolph-Macon College this summer to study the property and determine possibilities. This is a part of other efforts the Applicant has conducted to investigate parks and trail possibilities (see attached email). Staff agrees with the Applicant that it would be highly difficult to dictate language in proffers at this time without knowing more about individual security needs of future businesses and the Town’s plans for future parks and recreation. If the property is developed with public roads, sidewalks will be required and this would provide an opportunity to install trails in Town right-of-way. 3. Protections for Henry Street/Berkleytown Residents Staff discussed with the Applicant the desire to provide equal protection to Henry Street/Berklytown residents as was provided with Ashland Park with respect to buffers and setbacks.

Town Council Town of Ashland, Virginia of 34 In the updated proffers, buildings within the southwest corner facing Henry Street (see Exhibit A) are required to not have loading bays facing Archie Cannon Drive. This will be in addition to the 50’ landscape buffer that will be required along Archie Cannon Drive, and 50’ side or 100’ rear building setback.

ANALYSIS AND RECOMMENDATION: Staff, Planning Commission, Town Council, and the community have thoroughly reviewed this application. At the beginning of this process, there were many questions and concerns raised that have been addressed by the Applicant through proffers, through better understanding of current regulations and the market pressures. Staff is recommending approval of this rezoning for the following reasons: Industrial development on the Holland tract is not a new idea. The Route 1 corridor and this property specifically have been thought of for commercial/industrial development. In talking with economic development officials at local, regional, and state levels, along with possible business prospects, the factors in place with this site’s location make it highly competitive for high quality technology, Class A office, medical, and industrial developers. This site’s development potential is unlike any other in Ashland and stands alone with a few others in the state. The combination of a proffered TIA and recently updated M-1 regulations present a strong package of requirements to use in guiding this development to the best possible opportunity and guarding against worst-case scenarios. Establishing a high-quality business park on the Holland tract will enhance Ashland’s quality of life and the economic vitality of the Town well into the future. Having the site rezoned prior to having a prospect will greatly help with the marketing of the site to desirable users. Staff is recommending approval of REZ15-1113. It should be noted that the content of this report reflects the analysis and recommendations of staff; it does not reflect the position of the Town Council.

Town Council Town of Ashland, Virginia of 34 APPLICATION: The Applicant requests the Comprehensive Plan amendment and rezoning to M-1, Limited Industrial, to follow a “strategic zoning initiative” that allows property owners to proactively rezone property for certain uses while remaining in the Land Use Tax Taxation program through Hanover County. No specific business users are proposed at this time or specific layout. The complete application and proffers are attached to the staff report, below is a brief overview. Rationale for Request The Applicant identified the following factors as desirable for industrial development: Transportation hub: 3,330’ frontage along Rte. 1 with immediate access to I-95, I-295,

I-64, and Ports of the Commonwealth of Virginia Valuable and rare rail access Fiber availability Public utilities available Compatible with manufacturing/industrial/commercial history and tradition of Rte. 1

corridor Consistent with recent industrial development east of property along Route 1 (Vitamin

Shoppe or RNDC) Mitigating Impact to Community Through the recently updated M-1 regulations and proffers offered, the Applicant believes that factors of noise, traffic, light, smell, or other issues will be mitigated. The Applicant is currently conducting an environmental study to identify any location of wetlands on the property. The initial study findings are attached to the report. Adherence to the Comprehensive Plan The Applicant’s rationale for adherence to the Comprehensive Plan is that the property has for a majority of its history been identified for industrial uses. The 2011 Comprehensive Plan change to residential was only recently enacted. The Applicant has submitted two future land use maps to this point. On the following page, Map 3 was adopted in 2002 and Map 1 has an unclear date and staff could not find where this was officially adopted. The timeframe for the map is somewhere between 1997 and 2002. The 1997 future land use map is included later in this staff report, and identifies this property as industrial.


EXISTING CONDITIONS: The property is commonly known as the “Holland Tract” and comprises much of the northern portion of Ashland that is west of Route 1 and north of Archie Cannon Drive, as seen in the map on the following page. The property is somewhat separated from the Town by existing barriers of Archie Cannon Drive, the railroad, wastewater treatment plant, Route 1, and a pond to the north. To the northeast of the property are the newly constructed RNDC an Vitamine Shoppe distribution centers, which would be in similar scale to future business users of the Holland tract. The existing use of the property is farmland and open space/forested area. The most easily developable area is that which is currently being farmed.

Town Council Town of Ashland, Virginia of 34 South of Archie Cannon Drive are traditional neighborhoods with the Fire Station, Gandy Elementary, and the Hanover County Public Schools Administration office. West of the railroad tracks and north of the wastewater treatment plant is a newer residential development in Hanover County, called Ashland Woods. Zoning The zoning for the 276.75 acres is RR-1, Residential Rural and R-2, Residential Limited, as seen in the map below. The surrounding residential, commercial, or industrial zoning districts generally match the existing uses of the property.

Town Council Town of Ashland, Virginia of 34 If this application is approved, the zoning map would look as follows:

Town Council Town of Ashland, Virginia of 34 Zoning History The RR-1, Rural Residential district was appended to this property during its annexation into the Town. This property was annexed into the Town in 1977 and 1996, as is displayed in the map on the following page. RR-1 zoning was commonly placed on unimproved land annexed into the Town as it is the least intensive development zoning and serves as a placeholder. This would ensure that if the property were to be developed at a greater intensity that it would have to be rezoned through a public process, as it currently happening. The last rezoning on this property was in 1986 (CR86-19) and it established the existing parcels zoned B-2, RR-1, and R-2. The B-2 zoned property is now on a separate parcel of land and developed as Shady Grove Motel. M-1 Rezoning History There have been eight approved conditional rezonings to M-1 in Ashland. The largest of these cases established Hill Carter Parkway (REZ88-0819 Standard Management). Development along this roadway is identified in the Comprehensive Plan as the template to replicate for industrial development in Ashland. At the time of the rezoning, the following items were included as proffers: Construct road from Ashcake to Route 54 Max. 30,000 gallons a day of sewer capacity 50’ natural buffer to residential Architecture – see above Max. 75% impervious area 50’ natural buffer from Mechumps Creek 40’ natural area easement along Mechumps Creek dedicated to Town Dedicate ROW 20’ front landscape Stormwater facilities Loading areas screened from public view or street

In researching proffers associated with the other rezonings, common items included transportation improvements, landscaping from the road, buffers to residential, minimum building material quality, and monument style signage.

Town Council Town of Ashland, Virginia of 34 Allowing the TIA to be conducted at the time of site plan and not rezoning has been a practice that Ashland has used with past rezonings (1997 Gilman Lumber and 2013 Concrete Pipe and Precast). A review of all approved conditional M-1 rezonings, along with their associated proffer topics is attached to the staff report. Comprehensive Plan The Comprehensive Plan is the primary tool for evaluating rezoning requests. The following is a recap of the future land use and major policies that apply. A complete list of all policies and language is attached to the staff report. Future Land Use Map The current future land use classification is Residential Low Density (1-4 units/acre), Residential Medium Density (2-5 units/acre), Neighborhood Commercial, Mixed Commercial, and Open Space, as seen in the map below. Industrial and commercial use classifications exist along Route 1, with governmental use on the wastewater treatment plant and Gandy Elementary on adjacent properties. Also included are the future land use maps from 2003 and 1996. The 2003 plan titled “Future Land Use 2020” classifies this property as Mix Use: Residential/Commercial/Industrial. The 1996 plan titled “Annexation Future Land Use Plan” identifies the property being annexed into the Town as Light Industrial.

Town Council Town of Ashland, Virginia of 34 The approved Comprehensive Plan text amendments are highlighted in red: Policy CD.28 Industrial Parks Industries in Ashland are generally located as freestanding facilities. Ideally there will be future opportunities to consolidate parcels for the formation of one or more industrial parks. The advantage of industrial parks is that it gives the Town the opportunity to direct development in a more planned fashion. The highly competitive market for quality technology, Class A office, and medical facility developers should encourage the Town to be strategic and progressive in planning to attract these desired industries. Industrial parks typically include provisions for better traffic flow, improved landscaping, sufficient parking and the provision of buffers from surrounding uses. To the extent possible the Town should encourage industrial parks over other locations for industry. This same idea applies to office parks. Both should be considered as part of an economic development strategy for the Town. The Right Balance of Housing The Town has a significant deficit of upper income housing which has caused prospective business developers and residents to question the adequacy of the Town’s housing stock for middle to upper management employee needs. This also contributes to the Town’s low median income level. The addition of executive, middle and upper income housing will help to balance the Town’s housing options. The following Housing Affordability Chart, HN-2, was created using County property assessments from January 2010 shown in chart HN-3. Although not assessed individually, the approximately 750 apartments and 306 mobile homes are included in with the affordable housing in order to create a more accurate assessment of the existing housing in Town. As presented in the Housing Affordability Chart HN-2 below, 87 percent of the Town’s housing is considered affordable and workforce housing, leaving only a very small percentage considered middle and upper income (affordable to those earning 150 percent of the median income or higher.) Therefore, the Town seeks to increase that percentage of housing to accommodate middle and upper income residents. Developing new quality residential neighborhoods that add middle and upper income homes that are incorporated into the existing fabric of Ashland is highly important. Emphasis should be placed on larger undeveloped tracts of land identified for new residential development (e.g. northwest corner, east of Interstate 95, and south of Ashcake Road), so that when development proposals are being evaluated, Ashland’s goals for housing mix, diversity, and quality are achieved. Business Parks Ashland is home to several business parks which also serve as a type of business cluster. Located off the north and south portions of Route 1, these business parks are the site of a considerable number of successful, low impact businesses. The business parks are made

Town Council Town of Ashland, Virginia of 34 up of multi-tenant flex space, office and light industrial and are home to both local and nationally owned businesses. Characteristics for prime locations for future business parks include: flat pieces of land with a single-owner, access to a robust transportation network, surrounded by existing industry in the Town and Hanover County, available utilities (e.g. water, sewer, and fiber), accessible to a regional workforce, and close to a desirable residential community. Locations with these characteristics are highly-competitive business location on an international scale and can be used to achieve goals of attracting a medical facility, Class A office space, or high-technology businesses desired in Policy E.3. The following policies and language provide detail on the major goals for this property: Office/Industrial – Future Land Use and Policy A mixture of professional offices, research facilities, light manufacturing, and warehouses are appropriate in this land use designation. These facilities should be fully enclosed, with no outside activities, and should be highly attractive from the public right-of-way. The Town of Ashland, as a regional employer, has and can support a large proportion of industrial land. Currently the Town has approximately 960 acres zoned industrial which is 21% of the total land area. Just as residential and commercial must be buffered from industrial uses; the industrial zoning must be protected as well. This industrial development and the employment it provides is a critical part of the Ashland economy. Policy CD.27 Landscaping in Industrial Development A good model to follow is Hill Carter Parkway. A significant landscaping investment was made both in the publically maintained and privately maintained areas. This is the appearance that should be strived for. Industries located off the main thoroughfares may require a much lower level of landscape enhancement and should provide what is appropriate to the context of their location.

Town Council Town of Ashland, Virginia of 34 Policy CD. 28 Industrial Parks The advantage of industrial parks is that it gives the Town the opportunity to direct development in a more planned fashion. Industrial parks typically include provisions for better traffic flow, improved landscaping, sufficient parking and the provision of buffers from surrounding uses. To the extent possible the Town should encourage industrial parks over other locations for industry. Residential Medium and Low Density – Future Land Use and Policy These two categories encompass the basic neighborhood districts, which cover most of the residential areas of Town. The criteria for development in these districts reflect expectations regarding the small town character, the unique features of Ashland, the landscape and tree shaded streets, and the variety of homes and lots that exist here. To achieve higher densities as it permitted in these classifications, development would have to include the following elements detailed in the Design Guidelines Handbook and Comprehensive Plan: Low Impact Design of stormwater features Green building practices Protect sensitive environmental features Well-designed streets in a grid pattern with sidewalks and landscaping High quality building materials Include architectural elements commonly found in Ashland homes” porches, dormers,

windows, side/rear-loading garages Varied lot sizes and setbacks from street Quality recreation amenities to serve residents

Neighborhood Commercial – Future Land Use and Policy This land use is a limited business activity area meant to provide services to the surrounding residential neighborhoods. Types of appropriate businesses are retail stores and personal service businesses such as a barbershop/beauty parlor, bike or small appliance repair, self-service laundromats/dry cleaners, or a seamstress/tailor. Mixed Commercial – Future Land Use and Policy This is the predominant classification along Route 1 with a mix of office and commercial uses, which complement each other and by design coexist. These uses should be designed at a density that is appropriate for a pedestrian scale, while still being easily accessible to the automobile. Route 1 Design Overlay The intent is to provide create a parkway-like quality and to raise the quality of design and businesses within this corridor. This should address the rehabilitation of existing buildings and storefronts in order to improve the appearance, enhance the identity, and promote the

Town Council Town of Ashland, Virginia of 34 pedestrian environment of the Route 1 corridor. Design elements include limited parking between the building and roadway, street trees, sidewalks, and signaled crosswalks. Economy One of the benefits the Town receives from its high number of employers is a broad tax base. This comes from real estate and personal property taxes as well as business/professional/occupational license tax (BPOL). In addition to the real estate and personal property taxes, retail businesses also contribute a portion of sales tax revenue. Meals and lodging taxes are collected as well and represent close to 30 percent of the Town’s revenue. These taxes allow for an extremely low ratio between the percentage of property taxes paid by homeowners and the high level of services provided by the Town. Policy E.3 Technology, Medical, and Class A Office There are several locations suggested as appropriate for new, multi-story Class A office space. Two specific areas suggested as target areas for business clusters are: 1) The central and southern end of Route 1 for office use; 2) The northern end of Route 1 for a potential medical facility. In following with the concept of business clusters, the Town should continue to support the newly established Technology Zone (partially located along Route 1) to promote a supportive environment of like businesses. Future School Location Policy CF.12 Future Government Services Corridor

Town Council Town of Ashland, Virginia of 34 The Town should work toward the acquisition of a portion of the Holland tract on the north side of Archie Cannon Drive between Henry Street and North Washington Highway. This property should be maintained for a future government use with possibility of a school site if necessary. MAIN QUESTIONS 1. Why is the Holland tract future land use residential and commercial? The major goal for residential future land use was to attract higher income housing to balance the housing market and mix, and raise the number of households to attract future commercial business. The neighborhood commercial would serve these new households, and mixed commercial along Route 1 would continue its historic commercial pattern. If built-out to the maximum permitted density, the Holland tract would add 590 new households to Ashland. At the Ashland average household size of 2.2 people, this would add 1,298 residents.

Input received from multiple developers since 2011 has been unanimous that higher-income housing will not be built on the Holland tract. Developers state that they will not do business in Ashland or develop this site with high end housing. They can get a higher return-on-investment on mid-range housing. The types of larger-scale housing development that will be received with a residential land use of up to 4-5 units/acre will be smaller houses on smaller lots sold at a price to maximize revenue for the developer. Being adjacent to a wastewater treatment plant, an active rail line, other government facilities and Route 1 are factors that would encourage higher end industrial, not residential development. Middle- and upper-income housing is coming to the Ashland zip code. During the 2011 Comprehensive Plan, Urban Partners conducted an economic study and recommended that Ashland increase the number of middle- and upper-income households to attract future business. Not only do houses assist in attracted businesses, they also provide new citizens who shop, play and eat in Ashland and who become involved in our community events and organizations. It was thought that the Holland tract could provide necessary space to increase the quantity of homes in Ashland’s market area. The medium and low density residential future land use would allow for 590 additional homes if densities were maximized. In reality, these homes are now coming, but to the surrounding area. Within the past decade 1,893 homes have been built or are planned to be built within a 3-mile radius of town

FLU Build-Out FLU Acres Max. Units/Acre

Max. Units

Existing Units

Build-Out Units

Build-Out Units/Acre

Holland Low Density SF 100 4 400 0 400 4.0

Holland Medium Density SF 38 5 190 0 190 5.0

Town Council Town of Ashland, Virginia of 34 (see map and chart on following pages). Employees in our commercial and industrial areas also provide a significant contribution to our economy, but more importantly our community. We have many examples of community leaders and contributors who work in Ashland and live outside of our area.

Name Status Homes Price Range

Woodside Estates Built/Planned 151 $400,000 - $600,000

Providence Built/Planned 160 $265,000 - $320,000

East Ashland (Hanover) Planned 459 $150,000 - $400,000

Hickory Hill Built 277 $400,000 - $500,000

Mount Hermon Farms Built/Planned 48 $450,000 - $650,000

Bailey Woods Built 9 $150,000

CedarLea Park Built 314 $250,000 - $350,000

Oak Hill Estates Built 90 $300,000 - $400,000

Branches of Stony Run Built 24 $400,000 - $500,000

Town Council Town of Ashland, Virginia of 34 Ashland Park Built 136 $220,000 - $250,000

Luck Farm Planned 42 $450,000 - $600,000

Falling Creek Estates Planned 15 $600,000 - $700,000

Fox Mill Run Built 40 $300,000 - $400,000

Sycamore Hall Built/Planned 13 $350,000 - $450,000

North Woods Built 47 $300,000 - $500,000

Wintercrest Built 13 $400,000 - $550,000

Cheroy Woods Built 55 $300,000 - $400,000 2. Should the future land use change to light industrial? Yes, the future land use should change to improve the quality of life for Ashland residents and to protect the economic vitality of the Town. Light industrial and professional business development on this property is not a new idea. During the 4-year process that culminated in the 2011 Comprehensive Plan, the discussion on the Holland tract was shelved for a later date to allow for a more detailed conversation. Public comments received during the 2011 Comprehensive Plan recommended industry, medical, high end restaurants, and attractive light industrial for the Holland tract. The 1997 future land use map classified the property as “Light Industrial” and the 2003 future land use recommended “Residential, Commercial, and Industrial.” Route 1 is historically a commercial and industrially developed corridor. Examples of residential development along Route 1 have been recently developed where housing market pressure allows for high density, transit oriented development (TOD) design. Research on these developments can be seen in locations around the greater DC region (northern Virginia and Maryland), northern New Jersey, and Boson areas. The size, scale, intensity, and market for this type of housing is not compatible with Ashland. Light industrial as the predominant use of the property creates a higher quality of life for Ashland residents and keeps Ashland, Ashland. The “Quality of Life Assessment” chart on the following pages analyzed the Holland tract through development scenarios of the existing and proposed future land use. In all categories except smell and noise, industrial development would be less impactful (negatively) to the Town. The economic vitality of the Town greatly depends on the direction of the Holland tract. The major point of discussion this past year was addressing concerns with aging hotels and commercial development surrounding the exit. The Town will need to play a role in spurring redevelopment of this corridor. Town revenue sources are generally 80%

Town Council Town of Ashland, Virginia of 34 business and 20% residential. A residential development on one of the few remaining open parcels in Town will not generate the necessary revenues to address the exit redevelopment area. These additional revenues will have to come from raising taxes or loans.

Quality of Life Assessment

Future Land Use PROPOSED Light Industrial

CURRENT Residential & Commercial

Possible Development 5-8 M-1 buildings (300,000SF to 800,000SF)

500 single-family homes 4-7 B-4 buildings(2,500SF to 15,000SF) 6-8 B-2 buildings (5,000SF to 200,000SF)

Traffic Impact Greater impact

Smell and Noise Greater impact Impact

Preserve Small Town Character Impact Greater impact

Schools No impact Greater impact

Fire/EMS and Police Impact Greater impact

Environment and Wildlife Impact Greater impact

High-Level Government Services Gain Loss

Continued Economic Development Unique opportunity Continue existing patterns


CURRENT: Future Land Use


PROPOSED: Future Land Use

Town Council Town of Ashland, Virginia of 34 Traffic Any development on a property of this size will have a major impact on the road infrastructure and daily commute of residents. More vehicle trips would be created with the current future land use, than what is proposed (see chart below). Additionally, the timing of residential and commercial properties generates higher traffic counts at peak hours as opposed to business park traffic which varies throughout the day. A large office building within a business park consisting of day-time commuters would be the exception. The benefits of industrial parks over strip-development are detailed in Policy CD.28 include: better traffic flow, landscaping, buffers, and sufficient parking. Smell and Noise Development of a business park, when compared to a residential neighborhood, may create a larger amount of noise and smell. Ashland has a long experience with balancing the historic commercial development east of Route 1 with abutting residential neighborhoods. This is why it is important to review the M-1 zoning regulations which outlaw many heavier industrial uses such as animal slaughtering, coal or oil production, paper mills, or explosives

Town Council Town of Ashland, Virginia of 34 testing outright. Other possible intensive or impactful industrial activities that include heavy machinery, chemicals, or outdoor work have a conditional use permit (CUP) required where the Town can review and decide whether this business type and location is permissible. Preserve Small-Town Character This property is the northern gateway for Ashland. What is developed along this property will have long-term effects on how our perception is shaped. If this property follows the same strip-commercial development, backed by an insulated and massive housing development, it will blend in with the surrounding Hanover County. Ashland should use the development of this property to create a defined edge to delineate the northern entrance. Large industrial buildings can also impact the visual landscape. It will be important through proffers and zoning to ensure that buffers and setbacks are implemented. Schools Hanover County Public Schools (HCPS) plans for one (1) student yield out of every two (2) new homes, and anticipate a distribution of 50% elementary, 20% middle and 30% high. With the current future land use, this would project a total of 250 new students (75 high, 50 middle, and 125 elementary). 125 additional students would be scheduled for Henry Clay and Gandy Elementary Schools, compared to zero (0) that would be generated by a business park. Comments provided by David Myers (HCPS) would be that the schools have sufficient capacity to withstand the additional projected students with the current future land use. Comments provided by HCPS and Randolph-Macon College, state that a high quality professional business park jobs could provide a great opportunity to collaborate and expand upon educational and job training opportunities, especially for technical and trade industries. Fire/EMS and Police In general, additional resources will be required to meet needs of housing when compared to an industrial business park. At Ashland’s estimated 2.2 people per household, 500 homes additional homes would produce 1,100 residents. For planning purposes, the current law enforcement saturation is 3.3 officers per 1,000 people. This would require 3 to 4 additional police officers to provide the additional staffing necessary to provide adequate patrols and response to this new neighborhood. Commercial development along Route 1 and Archie Cannon Drive, especially retail sales and services, can require a high amount of police services with property crime and due to off-hour inactivity. In a residential neighborhood, the frequency of calls received is due to a variety of human service needs (domestic, larceny, burglary, mental health, etc.).

Town Council Town of Ashland, Virginia of 34 Determining an individual’s purpose for being on property in a residential/commercial area is more difficult to enforce when compared to a business/industrial park. Businesses such as The Vitamin Shoppe have set up property management agreements, thus giving police greater power to enforce trespassing laws at all times. Additionally, many industrial businesses have full time on-site security staff. Another factor is the amount of roads. An industrial park with fewer roads will require less of a need for traffic enforcement and monitoring. Environment and Wildlife Residential development provides a greater impact to the environment and wildlife as it is able to be developed on smaller lots, thus reaching (and clearing) areas not accessible to larger industrial users. An example of this can be seen on the northern tip of the Holland tract, where development will not occur due to the Resource Protection Area (RPA) and Resource Management Area (RMA) with industrial, but may occur with residential homes. Industrial development will have to provide additional buffers to adjacent residential properties, which exist to the north, west, and south. The buffer requirement can be used to protect the mature, exiting tree and forest area. High-Level Government Services The Town budget directly impacts Ashland’s quality of life to provide high-quality necessary services and efficient government at a low cost that citizens have come to expect. Approximately 80% of all Town revenues come from businesses. A predominately residential development will create a future deficit, as opposed to a net gain with an industrial business park. A future residential deficit on this property, without raising taxes to off-set, will severely impact the continuation of high-quality government services. Continued Economic Development A relatively flat piece of land with a single-owner, access to a robust transportation network, and close to a desirable residential community, makes the Holland tract a highly-competitive business location on an international scale. The difference with Hill Carter Parkway is that it is almost fully developed when you take into account wetlands, available parcels are smaller, and have varied owners. This would be one of the largest unencumbered sites in the region and potentially the state. The request to rezone this property before a specific proposal is in place is due to the fact that regional economic development partners will not list or show property that is not properly zoned. The domino effect of possible revenues gained through the Holland tract is important. The major point of discussion this past year was addressing concerns with aging hotels and commercial development surrounding the exit. The Town will need to play a role in spurring

Town Council Town of Ashland, Virginia of 34 redevelopment of this corridor and can use the revenues gained to achieve reinvestment goals. 3. What limitations or requirements can we place on the property to mitigate impact

and encourage best use of property? Limiting Business Types The recently updated M-1 zoning regulations (see attached) are a terrific tool to limit or prohibit negative impacts to surrounding property. The following businesses would not be allowed under the current zoning: Paper mill Coal or oil refinery Basic metal manufacturing Testing jet engines or rockets Open air chemical storage Mulch processing plant Wood fired pottery production Natural gas fracking

The Applicant has proffered that the following businesses not be allowed: Truck stop or terminal Mini-storage Automobile, truck, or motorcycles sales, new or used Automobile, truck, or motorcycles service station Car wash Drive-in theater Feed mill Outdoor sawmill, planning or wood cutting Firework sales Taxicab stand No animal slaughtering on-site for food manufacturing No driving ranges or outdoor motocross parks

Research and Development Bio-Safety Labs Zoning is not a tool used to delineate research and development types by biosafety levels in any other locality in our research (see attached research sheet). These labs are heavily regulated at the federal and state levels, along with on-site protocol required by the public or private operator. Fairfax County, which is the location of many high-tech research and development facilities, sets additional protocol for outdoor storage, landscaping, and setbacks. These tools are already in place with Ashland’s zoning, thus additional proffer language to limit types of research and development would not be necessary. Enforcement protocol is already in place at the federal, state, and industry-levels.

Town Council Town of Ashland, Virginia of 34 Providing Buffers to Limit Noise, Sound, and Sight The buffers provided to residential development on this property would be the largest required of any development in Ashland. Common practice for buffers between industrial and residential, which is now required by zoning, is a 50’ buffer and 100’ building setback. Due to the Holland tract’s existing natural buffer, the railroad, and major roads (Archie Cannon Drive and Route 1), the closest major residential development (Ashland Park) will have between 310’ and 450’ of mature, tree planted buffer, with an additional 50’ of building setbacks, as seen in the image on the following page. To reduce noise and sound, the Applicant has proffered that loading bays within 500’ of the Ashland Park border shall not face west and that the buffer between the Holland tract and Ashland Park be improved with evergreens where non-is provided.

Town Council Town of Ashland, Virginia of 34 A concern was raised that the buffer to Ashland Park, although mature, was comprised of deciduous trees and that evergreens (e.g. Leyland Cypress) would be preferred. Staff agrees that evergreens serve as a greater buffer. In inspecting this buffer, the images provided below display an existing mix or a solid planting of evergreens in the buffer area. The presence of these trees existing in the mature buffer would provide a sufficient composition. Well-Landscaped Entrances to Enhance View The landscaping setback to Route 1 is the same that was approved for Republic National Distribution Company, and exceeds standards in the Comprehensive Plan. The Applicant has proffered a 50’ landscape setback that could be reduced to 25’ with additional street tree, parking area, and ground plantings. Additionally, the Applicant has proffered that external entrances would provide a minimum 100’ landscaped boulevard into the site and that 20’ landscape setback is provided for all internal public roads.

Town Council Town of Ashland, Virginia of 34 View from Route 1 In addition to the landscaped setbacks and entrances, the Applicant has proffered that loading bays not face Route 1 on buildings adjacent to Route 1. Attractive Building Construction, Lighting, and Signage The architecture proffers are a best practice for industrial rezonings in Ashland, as we have accepted the same standards for the Virginia Truck Center (RNDC and The Vitamin Shoppe) and Concrete Pipe and Precast. These proffers include: minimum quality materials from view of public right-of-way and no-blank walls from view of public right-of-way. Outdoor lighting should not be seen off the property as the regulations require that all freestanding and building light be contained to the premises. Lighting from trucks and cars on the property will be mitigated with buffer and proffering orientation of loading bays. The signage proffers fulfill the exact policies recommended in the Comprehensive Plan that freestanding signage be monument style. Safe Transportation The transportation proffers provide the Town technical knowledge and leverage to require necessary and planned improvements whose cost is solely on the private developer. This would work through the requirement of a Traffic Improvement Analysis (TIA) to be completed at the time of site plan. Staff would review the TIA and transportation improvements would be constructed before private development would occur. The Town has past examples where rezonings occur with the TIA being deferred until the site plan with Concrete Pipe and Precast (2013) and Gilman Lumber (1997). Access points to property would be in general conformity with Exhibit A (see next page). This would align with the Future Transportation Plan where local roads are throughout the development and connection to adjacent roadways, such as Jamestown Road. In response to the proposed traffic generated, the following comments were provided: Public Works There are future plans to widen Archie Cannon Drive to accommodate future traffic from

the Holland Tract, and development on this property should provide right-of-way and possible construct the road widening.

A traffic light at Archie Cannon Drive and Route 1 may be necessary when the connection of West Vaughan Road to route 54 in the northwest corner of town is made, as this would become the northern thoroughfare for crossing traffic.

Connections to Route 1 should align with existing road on the western side (Jamestown Road and The Vitamin Shoppe Way) if possible.

TIA should be conducted for future development. Internal roads will have to meet VDOT standards for design and construction.

Town Council Town of Ashland, Virginia of 34 Fire/EMS • A subdivision shall have two

separate entrances • It would be preferred that

commercial traffic enter and exit on Route 1

• A fire access lane that is aligned with the Fire Station would be recommended for any development on the property

• If access is needed on Archie Cannon, it would be recommended that it is restricted to private vehicles, not commercial vehicles

• If access is granted from Archie Cannon, it would be best to require a traffic light at the intersection of Route 1 & Archie Cannon; the traffic light could be activated from the fire station during emergency calls

Hanover County Public Schools • If Archie Cannon Drive is widened in

front of Gandy Elementary, an additional turn lane for busses would be preferred • If Archie Cannon Drive stays two-lanes, this development will have no impact on schools Parks and Trails Trails are shown along the railroad tracks connecting to the open space/pond in the northern section and crossing Route 1 below the currently zoned industrial property. Trails are also shown along any new internal local roads. Although not offered in proffers, the Applicant has expressed interest in providing a park or trail amenities on the property, but is still working through how this might be accomplished (see attached email). There is concern with the specificity of proffers and unknowing nature of future business needs for property security. Staff will continue to work with the Applicant on developing amenities that could be incorporated into the larger recreation system. Strategic Economic Development Revenue impact projections for the future land use scenarios have been revised. These projections do not include all additional economic benefits of adding businesses or residences to Ashland. Business and homeowners will shop, eat, and stay in hotels, thus providing additional revenues to the Town. Homeowners will send children to schools, thus sustaining the need for education investment. Larger business will provide jobs for residents

Town Council Town of Ashland, Virginia of 34 and support other businesses that connect up- or down-stream in their supply chain. With the fact that these multiplier impacts will be impossible to capture in an economic projection, the numbers presented below represent the isolated project of direct impact to Town revenues from a commercial or residential future: Stormwater and Environmental Quality Potential and confirmed wetlands exist on the property in the northern and southeast corner of the property, as seen in the environmental features map. The Applicant is currently conducting an environmental study to identify and confirm location of wetlands with the Army Corp of Engineers. This would be required through the site plan process. RMA and RPA area exists along the pond and small creek area in the north and north central section of the property. Development that could encroach upon these features would be identified through the site plan process where current regulations would need to be fulfilled. Stormwater runoff from new development will be addressed through the site plan process where regulations require that all new water generated from development be captured and treated for quality

Revenue/Acre Expenditure/Acre +/- per Acre

Residential 419.67$ 1,519.54$ (1,099.87)$

Commercial 3,177.23$ 1,767.19$ 1,410.04$

Other -$ 8,704.95$ (8,704.95)$

Built-Out (Year 1) Built-Out (Year 10)

Current FLU Residential/Commercial (106,660.72)$ (1,066,607.21)$

Proposed FLU Commercial 380,712.00$ 3,807,120.01$

Difference 487,372.72$ 4,873,727.23$

Holland Tract

Town Council Town of Ashland, Virginia of 34 DEPARTMENT COMMENTS: Police, Fire/EMS, and the Building Department commented that they will want to review again in the future when specific development proposals are submitted. Department of Public Utilities (DPU) provided the following comments: The applicant is further advised of the following requirements regarding the extension and connection to public water and sanitary sewer to support the development of this site: 1. All water and sanitary sewer design

will be consistent with the Hanover County Water and Wastewater Capacity Fee Model, as updated or revised. This shall include oversizing of lines and dedication of easements for future water and/or sanitary sewer facilities and pipe construction, as applicable.

2. All water and sanitary sewer design and construction shall be done in conformance with

Hanover County Department of Public Utilities Water and Sanitary Sewer Standards. 3. The owner developer will be responsible for all costs associated with the design,

construction, and easement acquisition of any required water or sanitary sewer extensions, adjustments, or improvements necessary to support the development of the site.

4. All water and sanitary sewer design/facilities will be subject to DPU formal

review/approval.

august 12, 2003 - granicus

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