HomeMy WebLinkAbout09-24 Impact Analysis Statement
MIDDLETOWN, LLC
REZONING
IMPACT ANALYSIS STATEMENT
Tax Parcel 84-A-78
Back Creek Magisterial District
Frederick County, Virginia
July 29, 2022
Revised August 6, 2024
Current Owner: Wendell Hester Trust
Brian J. Hester, Trustee & Jason G. Hester, Trustee
Applicant: Middletown, LLC
Contact Person: Christopher Mohn, AICP
Greenway Engineering, Inc.
151 Windy Hill Lane
Winchester, VA 22602
540-662-4185
Greenway Engineering July 29, 2022 Middletown, LLC Rezoning
Revised August 6, 2024
File #0127E Impact Statement/CMM
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MIDDLETOWN, LLC
REZONING
IMPACT ANALYSIS STATEMENT
EXECUTIVE SUMMARY
This report has been prepared for the purpose of assessing the impact to Fredrick County of
the proffered rezoning of 101.25± acres from RA, Rural Areas District to TM, Technology
Manufacturing Park District, as proposed by Middletown, LLC (Applicant). The subject
property is identified as Tax Parcel 84-A-78 and located on the east side of Valley Pike (U.S.
Route 11 South) roughly 3,000 feet north of the Town of Middletown Corporate Limits. The
subject property is currently owned by the Wendell Hester Trust, Brian J. Hester Trustee and
Jason G. Hester Trustee.
The Applicant proposes to rezone the subject property to allow development of a mix of
technology-related industrial and public uses as permitted by the TM District. Specifically,
as shown on the proffered General Development Plan (GDP), the Applicant seeks to establish
an Industrial Use land bay totaling approximately 70.85± acres, within which data center or
other technology-related industrial uses would be permitted to develop. The maximum
development intensity will be limited by weekday trip generation, with industrial uses
allowed to generate up to 3,239 weekday trips, consistent with the traffic impact analysis
prepared for this application. Limiting development intensity by weekday trip generation is
appropriate for the TM District as it will provide flexibility to accommodate the building and
floor area scenarios possible with the district’s permitted uses.
The Applicant further proposes a Public Use land bay comprised of approximately 10± acres
that will be reserved for future dedication to Frederick County for development of public or
quasi-public uses. Ultimate use of this acreage will be at the discretion of Frederick County.
That said, the site’s proximity to Interstate 81 and adjacency to Middletown Elementary
School make it well suited for parks and recreation uses, such as, but not limited to, an indoor
aquatic center, ice rink, or other passive or active facilities to meet community needs.
The Applicant has proffered to mitigate the impacts attributable to the proposed rezoning
through a combination of design features and monetary contributions. To minimize impacts
to adjoining uses, extensive buffers will be provided along Valley Pike, Mustang Lane, and
the site boundary with Middletown Elementary School. Additionally, vehicular access to the
Industrial Use land bay will be prohibited on Mustang Lane, with access for such traffic
instead limited to two entrances on Valley Pike served by dedicated right and left turn lanes.
The combination of these features will ensure the physical integration of the proposed
industrial uses into the surrounding community with minimal disruption to established
residential and institutional uses.
Greenway Engineering July 29, 2022 Middletown, LLC Rezoning
Revised August 6, 2024
File #0127E Impact Statement/CMM
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The traffic analysis prepared by Wells + Associates (Wells) for this application indicates that
intersections impacted by the projected industrial trips will function at acceptable level of
service conditions, assuming signalization of the Interstate 81 northbound ramp/Reliance
Road and the Valley Pike/Reliance Road intersections. The latter signalization is proffered
to be completed by the developer of the Village at Middletown project when requested by
VDOT. The Wells analysis indicates that signalization of the Interstate 81 northbound
ramp/Reliance Road intersection will be needed regardless of this rezoning application, as
this improvement will be required to address the impacts of regional traffic growth and
construction of previously approved developments. Indeed, trips generated by the rezoning
application are projected to constitute up to a maximum of only 15% to 20% of the traffic at
this intersection. While not solely responsible for the need for this regional transportation
improvement, the Applicant has proffered a proportional monetary contribution of $200,000
for use by Frederick County and VDOT in funding the signalization project. Alternatively,
this contribution could be combined with other funding sources by Frederick County and
VDOT to complete other needed improvements in and around the interchange area. In either
case, the Applicant’s proffered contribution will ensure that any potential impacts attributable
to the rezoning application to the surrounding road network are effectively mitigated.
Basic Site and Application Information
Location: East side of Valley Pike (U.S. Route 11), approximately
3,000 feet north of Town of Middletown
Magisterial District: Back Creek District
Property ID Numbers: 84-A-78
Current Zoning: RA, Rural Areas District
Current Use: Undeveloped
Proposed Zoning: TM, Technology Manufacturing Park District with
proffers
Proposed Use: Industrial and Public, with potential Data Center Use
Total Rezoning Area: 101.25±-acres
Rezoning Area Breakdown: 70.85± acres – Industrial Use Development Area
10± acres – Public Use Development Area
18.7± acres – SWM/BMP and Proffered Buffer Areas
1.7± acres – Mustang Lane Ingress-Egress Easement
Greenway Engineering July 29, 2022 Middletown, LLC Rezoning
Revised August 6, 2024
File #0127E Impact Statement/CMM
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COMPREHENSIVE POLICY PLAN
Sewer and Water Service Area
The Sewer and Water Service Area (SWSA) is generally consistent with the UDA, but also
extends outside of the UDA to accommodate areas of the County in which commercial,
industrial, and institutional land uses are desired, but residential development is not. The
subject property is currently located wholly within the SWSA as established by the
Middletown/Lord Fairfax Sewer and Water Service Area Plan and is therefore properly
situated for development served by public water and sewer.
Comprehensive Plan Conformity
The subject property is a component of the Middletown/Lord Fairfax Sewer and Water
Service Area Plan, which is a small area plan within the Frederick County Comprehensive
Plan (Comprehensive Plan). The Area Plan designates the subject property for future Mixed-
use Industrial/Office land use. Neither the Area Plan nor Comprehensive Plan describe the
intended characteristics of this land use designation, meaning there are no policy guidelines
for how industrial and/or office uses are expected to be configured or allocated on properties
designated Mixed-use Industrial/Office. However, in practice this land use designation is
meant to provide areas for development of Economic Development Authority (EDA)
targeted industries, data centers, offices, and low-impact industrial uses, which aligns with
the intent of the TM District.
The proffered General Development Plan (GDP) designates an approximately 70.85±-acre
land bay for development of industrial land uses, identified as the Industrial Use development
area. Additionally, the Applicant has proffered to reserve approximately 10± acres of the
subject property for future development of public uses, identified as the Public Use
development area. While Frederick County will have discretion regarding the ultimate use of
the acreage, the site is well situated as a potential location for a regional parks and recreation
facility that includes an indoor aquatic center and/or ice rink. Regardless of the type of
public facility ultimately developed, by combining the proffered reservation of land for
public use with the wide array of uses permitted in the TM District, this rezoning provides a
framework for ensuring the subject property develops with a diverse mix of land uses as
envisioned by the Comprehensive Plan.
SUITABILITY OF THE SITE
Access
The subject property has approximately 2,275± feet of frontage on the east side of Valley
Pike (U.S. Route 11) and is bifurcated by Mustang Lane, a private access easement roadway
that provides access to Middletown Elementary School. To avoid impacts to the adjoining
school use, the Applicant has proffered to prohibit access to the Industrial Use land bay from
Mustang Lane. As such, only public uses will be accessed via Mustang Lane. Access to the
Industrial Use land bay will be provided by two commercial entrances on Valley Pike served
Greenway Engineering July 29, 2022 Middletown, LLC Rezoning
Revised August 6, 2024
File #0127E Impact Statement/CMM
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by a dedicated right turn lane and the existing center left turn lane. The traffic analysis
prepared by Wells + Associated for this application indicates that this access arrangement
will adequately serve the planned industrial uses, and further that VDOT entrance spacing
requirements can be satisfied .
Flood Plains
The 101.25±-acre subject property does not contain areas of floodplain as demonstrated on
FEMA NFIP Map #51069C0320E Effective Date January 29, 2021.
Wetlands
A Wetland Delineation Report was prepared for the subject property by Greenway
Engineering, Inc., dated April 7, 2021. The delineation identified one Pond (Pond A) and
three stream channels (Stream A, Stream B, and Stream C) within the site area. Stream A is
approximately 1-2 feet wide located in the northeast corner of the site. Stream A flows from
the west and feeds into Pond A and then outfalls from Pond A and flows east offsite to a
culvert under I-81. Stream B is located roughly in the eastern center of the project boundary
and is approximately 1-3 feet wide. Stream B flows from the north to the southeast south
before flowing offsite to the east into a culvert under I-81. Stream C is approximately 1-2
feet wide and flows into stream B. Stream C was mostly dry during field investigation.
Sporadic erosional channels were observed on the southwest portion of the property most
likely the result of receiving stormwater runoff from the adjacent school and Mustang Lane.
These features were not deemed streams based on field observations. Pond A is
approximately 0.23 acres in total size in the northeastern portion of the site. One data point
was collected during the wetland delineation behind the dam of the pond to demonstrate that
no wetlands were in that area. The U.S. Army Corps of Engineers confirmed these findings
upon issuance of Jurisdictional Determination NAO-2021-01189, dated July 27, 2021. Any
impacts to delineated wetland areas can be mitigated during site development.
Greenway Engineering July 29, 2022 Middletown, LLC Rezoning
Revised August 6, 2024
File #0127E Impact Statement/CMM
6
Soil Types
The subject property contains soil types as demonstrated by the Soil Survey of Frederick
County, Virginia and the Frederick County GIS Database. The following soil types are
present on site:
1C - Berks Channery silt loam 8 to 15 percent slopes: these soils are described as
having a moderate infiltration rate when thoroughly wet. These consist chiefly of
moderately deep or deep, moderately well drained or well drained soils that have
moderately fine texture coarse texture. These soils have a moderate rate of water
transmission.
3B - Blairton silt loam 2 to 7 percent slopes: these soils are described as having a
drained area of slow infiltration rate when thoroughly wet. These consist chiefly of
soils having a layer that impedes the downward movement of water or soils of
moderately fine texture or fine texture. These soils have a slow rate of water
transmission.
3B - Blairton silt loam 2 to 7 percent slopes: these soils are described as having an
undrained area of very slow infiltration rate (high runoff potential) when thoroughly
wet. These consist chiefly of clays that have a high shrink-swell potential, soils that
have a high-water table, soils that have a claypan or clay layer at or near the surface,
and soils that are shallow over nearly impervious material. These soils have a very
slow rate of water transmission.
5B - Carbo silt loam 2 to 7 percent slopes: these soils are described as having a very
slow infiltration rate (high runoff potential) when thoroughly wet. These consist
chiefly of clays that have a high shrink-swell potential, soils that have a high-water
table, soils that have a claypan or clay layer at or near the surface, and soils that are
shallow over nearly impervious material. These soils have a very slow rate of water
transmission.
6C – Carbo-Oaklet, very rocky silt loams 2 to 15 percent slopes: these soils are
described as having a very slow infiltration rate (high runoff potential) when
thoroughly wet. These consist chiefly of clays that have a high shrink-swell potential,
soils that have a high-water table, soils that have a claypan or clay layer at or near the
surface, and soils that are shallow over nearly impervious material. These soils have a
very slow rate of water transmission.
8B - Chilhowie silty clay loam 2 to 7 percent slopes: these soils are described as
having a very slow infiltration rate (high runoff potential) when thoroughly wet.
These consist chiefly of clays that have a high shrink-swell potential, soils that have a
high-water table, soils that have a claypan or clay layer at or near the surface, and
soils that are shallow over nearly impervious material. These soils have a very slow
rate of water transmission.
Greenway Engineering July 29, 2022 Middletown, LLC Rezoning
Revised August 6, 2024
File #0127E Impact Statement/CMM
7
8C - Chilhowie silty clay loam 7 to 15 percent slopes: these soils are described as
having a very slow infiltration rate (high runoff potential) when thoroughly wet.
These consist chiefly of clays that have a high shrink-swell potential, soils that have a
high-water table, soils that have a claypan or clay layer at or near the surface, and
soils that are shallow over nearly impervious material. These soils have a very slow
rate of water transmission.
32B - Oaklet silt loam 2 to 7 percent slopes: these soils are described as having a
slow infiltration rate when thoroughly wet. These consist chiefly of soils having a
layer that impedes the downward movement of water or soils of moderately fine
texture or fine texture. These soils have a slow rate of water transmission.
32C - Oaklet silt loam 7 to 15 percent slopes: these soils are described as having a
slow infiltration rate when thoroughly wet. These consist chiefly of soils having a
layer that impedes the downward movement of water or soils of moderately fine
texture or fine texture. These soils have a slow rate of water transmission.
41D – Weikert-Berks channery silt loam 15 to 25 percent slopes: these soils are
described as having a very slow infiltration rate (high runoff potential) when
thoroughly wet. These consist chiefly of clays that have a high shrink-swell potential,
soils that have a high-water table, soils that have a claypan or clay layer at or near the
surface, and soils that are shallow over nearly impervious material. These soils have a
very slow rate of water transmission.
Other Environmental Features
The property does not contain areas of steep slope, lakes or natural stormwater retention
areas as defined by the Frederick County Zoning Ordinance. The subject property is also
located in the geographic portion of the County that is underlain by karst geology. This
environmental feature will not constrain development of future TM District uses and will be
managed during final engineering design in accordance with all applicable ordinances and
regulations.
SURROUNDING PROPERTIES
Adjoining property zoning and present use:
North: RA, Rural Areas District Use: Agricultural/Residential
South: RA, Rural Areas District Use: Institutional
East: RA, Rural Areas District Use: Agricultural/Residential
West: RA, Rural Areas District Use: Agricultural/Residential
Greenway Engineering July 29, 2022 Middletown, LLC Rezoning
Revised August 6, 2024
File #0127E Impact Statement/CMM
8
TRANSPORTATION
Wells + Associates (Wells) prepared a traffic impact study (TIS) for the development of
industrial uses on the subject property. Pursuant to initial VDOT review of the TIS, Wells
prepared an Operational and Safety Analysis Report (OSAR) for the interchange at Interstate
81 and Reliance Road as well as a Signal Justification Reports (SJR) for both the northbound
(NB) and southbound (SB) interchange ramps and the Reliance Road/Valley Pike (U.S.
Route 11) intersection. The OSAR and SJR have been approved by VDOT.
The existing conditions analysis indicates that all study intersections currently operate at an
acceptable level-of-service (LOS) “C” or better during the weekday AM and PM peak hours.
With the addition of regional traffic growth and the construction of pipeline developments
(e.g., background traffic growth), the I-81 NB Ramp/Reliance Road and the Valley Pike
(U.S. Route 11)/Reliance Road intersections are projected to operate beyond capacity and
require signalization to maintain acceptable levels-of-service.
The Industrial Use land bay is planned to be developed in phases based on market demand.
This land bay is proposed to develop with TM District uses, which vary in terms of possible
building/floor area composition, trip generation rates, and trip characteristics. That said, for
the purposes of the TIS, OSAR, and SJR, the land bay was assumed to develop with 848,000
square feet of general industrial uses that are estimated to generate 580 AM peak hour trips
(510 in and 70 out), 188 PM peak hour trips (26 in and 162 out), and 3,239 average weekday
(24-hour) trips when fully occupied. The Applicant has proffered to limit the intensity of
development in the Industrial Use development area based on this weekday trip generation
scenario to accommodate the varied building/floor area possibilities associated with TM
District uses while ensuring traffic impacts are effectively mitigated.
With the addition of the site’s industrial traffic, acceptable levels-of-service at I-81 NB and
SB Ramps at the Reliance Road interchange and the Valley Pike (U.S. Route 11)/Reliance
Road intersections would continue to be maintained assuming the installation of traffic
signals. Installation of the traffic signal at the I-81 NB Ramp intersection should be
prioritized. All proposed traffic signals would satisfy warrants for signalization and have
been previously recommended in other area traffic studies, and therefore represent existing
improvement needs. All other study intersections are anticipated to operate at an acceptable
level of service.
Acceptable levels of service would be maintained at the site driveways whether one or two
entrances are provided. The proposed access would meet VDOT spacing standards but would
warrant exclusive right and left turn lanes, with the existing center-left turn lane being
sufficient for such access.
The Applicant has proffered to make a monetary contribution in the amount of $200,000 for
use by Frederick County and VDOT to address projected signalization requirements at study
area intersections and related improvements. The signal at the Valley Pike/Reliance Road
intersection is proffered to be installed by the developer of the Village at Middletown project
when requested by VDOT. Trips directly attributable to the proposed rezoning and possible
Greenway Engineering July 29, 2022 Middletown, LLC Rezoning
Revised August 6, 2024
File #0127E Impact Statement/CMM
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TM District uses are projected to comprise no more than 15% to 20% of total traffic at the
interchange intersections. Based on recent design experience, Wells estimates the cost of
signalization to be approximately $350,000 per ramp intersection, or roughly $700,000 in
total. As such, the Applicant’s contribution reflects and exceeds the project’s maximum
proportional share of overall impacts and can be targeted to ensure acceptable level of service
conditions at the I-81 NB Ramp/Reliance Road intersection or leveraged by Frederick
County and VDOT to complete other improvements in and around the interchange area.
Coupled with access-related improvements, the monetary contribution toward regional road
improvements will ensure that all traffic-related impacts of the proposed rezoning are
effectively mitigated.
PUBLIC WATER AND SEWER
The subject property is located within the Sewer and Water Service Area (SWSA) and is
therefore entitled to be served by public water and sewer pursuant to applicable County
policy. Existing development within the Middletown/Lord Fairfax SWSA obtains public
water from the City of Winchester and public sewer from the Town of Middletown.
However, with a 2014 update to the Area Plan, the Board of Supervisors identified Frederick
Water as the required service provider for any new development within the Middletown/Lord
Fairfax SWSA, even though the nearest Frederick Water infrastructure is located roughly 5
miles north of the SWSA boundary. The Applicant engaged with Frederick Water, the Town
of Middletown, and Frederick County to determine the agreements and system requirements
necessary to serve the subject property in conformance with this policy, to no avail. Recent
guidance received from Frederick County indicated the Board of Supervisors may modify
this policy with an affirmative action on the rezoning application, thereby allowing the site to
be served by entities other than Frederick Water. Assuming ultimate approval of this
rezoning application, the Applicant will proceed with serving the site with public water and
sewer through the City of Winchester and the Town of Middletown, respectively.
Water Supply
The City of Winchester previously provided a “will serve” letter to the Applicant indicating
sufficient capacity to serve the proposed industrial development on the site. A 24-inch water
main owned by the City of Winchester extends along the length of the site frontage within
the Valley Pike right-of-way. A meter extends off this main into the subject property, from
which an 8-inch water line extends within the Mustang Lane private access easement to
Middletown Elementary School.
Sewage Conveyance and Treatment
The subject property contains existing sewer infrastructure that includes a privately
maintained sanitary sewer pump station and 8-inch gravity sewer main. Such infrastructure
currently conveys effluent flows from Middletown Elementary School to the Town of
Middletown system via inter-connected 4-inch and 6-inch force mains extending along
Valley Pike. In addition to flows originating from the elementary school, the 6-inch segment
of the Valley Pike force main also conveys effluent from Lord Fairfax Community College
(LFCC). Upon reaching the Town of Middletown’s system, the flows convey via gravity
mains to the Town’s wastewater treatment plant.
Greenway Engineering July 29, 2022 Middletown, LLC Rezoning
Revised August 6, 2024
File #0127E Impact Statement/CMM
10
Development of the Industrial Use land bay is anticipated to require peak flow capacity of 35
gpm. Per the design plans, the existing pump station is operating (per the design plans) at 93
gpm. The existing school utilizes in their peak month a flow of 18 gpm (3,420 GPD over an
8-hour period). Flow calculations show the existing pump station and subsequent force main
has appropriate capacity to handle the anticipated flows from the proposed industrial uses.
Given these capacities, the Applicant has proposed using these existing systems to connect to
the Town of Middletown’s system.
SITE DRAINAGE
The topographic relief on the subject property generally follows a northeast to southwest
pattern which directs drainage from the subject property towards the front of the property
towards Valley Pike (Route 11). A complete stormwater management plan will be designed
at the time of final engineering design. All associated stormwater quantity and quality
measures will be designed in conformance with all applicable state and local regulations;
therefore, site drainage and stormwater management impacting adjoining properties and the
community will be mitigated. Based on preliminary analysis, the Applicant has identified the
location of regional SWM/BMP facilities on the GDP that will be designed and constructed
to serve both the Industrial Use and Public Use development areas.
HISTORICAL SITES AND STRUCTURES
The Frederick County Rural Landmarks Survey identifies the presence of the Jeff Henson
House (DHR ID 034-1030) on the subject property but does not indicate any potential
significance. Three other surveyed resources exist in proximity to the site, identified as the
Abel Tract (DHR 032-0237), Sunnyside (DHR 034-1028), and Valley View Farm (DHR
034-1029). The Abel Tract is associated with the Cedar Creek Battlefield and is subject to an
easement held by the Board of Historic Resources.
The National Park Service Study of Civil War Sites in the Shenandoah Valley identifies the
subject property as being located within the Battle of Cedar Creek study area boundary (DHR
ID 034-0303); however, the subject property is located well outside of the defined core
battlefield area and is also defined as having lost integrity due to existing development
patterns. That said, due to the Civil War history in the Middletown area and proximity of the
resources noted above, the Applicant commissioned Dovetail Associates to complete a
Cultural Resources Survey to validate these conditions. The findings of Dovetail’s report
confirm that the site did not play a significant role in the Battle of Cedar Creek or other Civil
War action, and further that no other potentially significant resources are located on the
subject property. Therefore, the proposed rezoning of the subject property will not generate
negative impacts associated with historic resources.
Pursuant to comments received from the Historic Resources Advisory Board (HRAB), the
Applicant has proffered a monetary contribution of $3,000 for installation of interpretive
signage on or adjacent to the Public Use development area. This contribution reflects the
Greenway Engineering July 29, 2022 Middletown, LLC Rezoning
Revised August 6, 2024
File #0127E Impact Statement/CMM
11
current cost of procuring such signage through Civil War Trails, whose existing network
includes sites in Frederick County and the City of Winchester.
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NOTE: THE ENTIRETY OF THE AREA SHOWN IS ZONED RA (RURAL AREAS DISTRICT)
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Parcel Boundary
Stream
Wetland (NWI)
Delineated Streams
Lake or Pond
100 Year Floodplain
10' Contours
µMIDDLETOWN LLC.NATURAL FEATURES EXHIBITCIVIL ENGINEERING | LAND PLANNING | GIS | LAND SURVEYING | ENVIRONMENTAL | ANALYTICAL LABORATORY | QUALITY CONTROL TESTING & INSPECTIONS WINCHESTER, VA | ASHBURN, VA | MARTINSBURG, WVNOTE: CONTOURS ARE SHOWN AT A 10' INTERVAL UNLESS OTHERWISE NOTED.
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34-1023Downes,Al House
34-1028Sunny Side
34-1029ValleyView Farm
34-131KendrickHouse
Map Data Source: Frederick County, VA. GIS Department, 2021 Data. 2019 Aerial Image.HISTORIC FEATURES EXHIBITMIDDLETOWN LLC.FREDERICK COUNTY, VIRGINIADATE: 07-26-2022PROJECT ID: 0127EDESIGNED BY: DJCSCALE:1 inch = 625 feet625 0 625
Feet
Legend
Subject Parcel
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! ! ! !!!!Middletown Town Limits
Parcel Boundary
[e Landmark
Civil War Battlefields
Cedar Creek
µMIDDLETOWN LLC.HISTORIC FEATURES EXHIBITCIVIL ENGINEERING | LAND PLANNING | GIS | LAND SURVEYING | ENVIRONMENTAL | ANALYTICAL LABORATORY | QUALITY CONTROL TESTING & INSPECTIONS WINCHESTER, VA | ASHBURN, VA | MARTINSBURG, WV