HomeMy WebLinkAbout07-25 PC Work Session Staff Report REZONING #07-25
Madison 277 (Madison II LLC)
Staff Report for the Planning Commission
Prepared: October 27, 2025
Staff Contact: M. Tyler Klein, AICP, Senior Planner
Executive Summary:
Meeting Schedule
Planning Commission: November 5, 2025
Planning Commission: December 3, 2025
Action: Work Session
Action: Pending (Public Hearing)
Board of Supervisors: January 14, 2026 Action: Pending (Public Hearing)
Property Information
Property Identification Number (PIN) 87-A-15
Address 1702 Fairfax Pike, White Post
Magisterial District Opequon
Acreage +/- 149.02
Zoning & Present Land Use Zoning: RA (Rural Areas)
Land Use: Agricultural
Proposed Zoning R4 (Residential Planned Community District)
Adjoining Property Zoning & Present Land Use
North: RA (Rural Area) Land Use: Residential & Vacant
South: R5 (Residential Recreation
Community District)
Land Use: Residential (Lake Frederick)
East: R5 Land Use: Residential (Lake Frederick)
West: RA Land Use: Vacant
Proposed Use
This is a request to rezone one (1) parcel totaling approximately +/-149.02-acres from the RA
(Rural Areas) Zoning District to the R4 (Residential Planned Community) Zoning District with
proffers to enable the development of residential and commercial uses.
Positives
Concerns
The proposed rezoning proposes a zoning
district, R4, which may be associated with the
Plan identified land uses in the
Comprehensive Plan for “neighborhood
village” and enables uses that could be
associated “mixed use office/commercial
(MUOC).”
The proposed rezoning is not fully consistent
with the adopted Plan policy for the Lake
Frederick UDA regarding the mix of
commercial uses and residential units. The
proffer statement does not restrict the use of
commercial areas to “medical uses” as
envisioned in the Plan and could develop with
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The proposed design modifications offer
alternative standards to Zoning Ordinance
requirements that aid to better achieve Plan
policy specific to the Lake Frederick UDA.
The proffer statement fully implements
Capital Impact Model (CapIM) monetary
contributions for residential housing types,
addressing capital impacts to county services
for schools, fire and rescue services, parks
and recreation.
B1 (Neighborhood Business), B2 (General
Business) or RP (Residential Performance)
uses.
The proffer statement allows for the
development of up to 866 residential units, up
to 50% of which may be constructed before
any commercial square footage is developed.
This conflicts with plan policy that envisions
residential uses as an accessory component of
a neighborhood village commercial center.
The proffer statement does not address plan
policy specific to “quality of construction and
type of land use patterns desired in this area.”
Absent from the proffers is commitment to
high-quality site design, building materials
and building design.
The proposed natural surface trail specified in
Proffer F-1 and depicted on the GDP does not
extend to the property line and otherwise may
not be able to be connected to existing natural
surface trails in the Lake Frederick
community.
A signal justification report (SJR) was not
conducted during the preliminary comment
phase of the rezoning. Proffer G-3 specifies
that the applicant will install only a traffic
signal and related improvements, if stipulated
by the Signal Justification Report (SJR) at the
development entrance intersection with Route
277. However, the SJR could require other
improvements that, as currently proffered,
would not be required to be installed by the
Applicant.
Proffer G-6 specifies the owner agrees to pay
the amount of $2,000,000 for transportation
improvements to the off-site intersections in
the vicinity of the subject property. Physical
improvements are typically preferred to cash
contributions particularly due to the
likelihood that this amount would not cover
the improvements required under the TIA.
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Review Agency Comments:
Review Agency
Comment
Date
Comment Summary Status
Virginia
Department of
Transportation
(VDOT)
09/16/2025 See comment letter. Not fully addressed.
Frederick Water 10/04/2025 See comment letter.
Frederick County
Public Works
09/25/2025 “We offer no comment at this time.”
Frederick County
Parks and
Recreation
09/30/2024 See comment letter.
Frederick County
Fire Marshal
11/01/2024
“Future development shall comply
with the Frederick County Fire
Prevention Code and other applicable
codes pertaining to life safety.”
Frederick County
Attorney
01/23/2025 Legal form. Addressed.
Frederick County
Public Schools
10/07/2024 See comment letter.
Planning & Zoning Staff Analysis:
Site History:
A Comprehensive Policy Plan Amendment (CPPA*) #01-23 was approved by the Board of
Supervisors on January 10, 2024. The CPPA created a new non-contiguous Urban Development
Area (UDA) to encompass the subject property and Lake Frederick community and designated
the subject property with a “mixed-use industrial office (MUIO)” and “neighborhood village”
land use designation.
*The CPPA was requested by the same owner seeking a rezoning.
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Comprehensive Plan Conformance:
The Comprehensive Plan (adopted November 2021) and the Southern Frederick Area Plan
(SOFRED, amended 2024) provide guidance on the future development of the subject property.
The Plan identifies the subject properties with a land use mix of “mixed use commercial/office
(MUCO)” and “neighborhood village.” The subject property is within the limits of the Sewer and
Water Service Area (SWSA) and the Urban Development Area (UDA). Further, the SOFRED plan
identifies the subject properties within the “Lake Frederick Urban Development Area” sub
planning area. The plan states:
“Lake Frederick Urban Development Area serves as a focal point to the 277 Triangle;
Centers of Economy and as a gateway feature for the Shenandoah/Lake Frederick
community and on a broader scale, a gateway feature for Frederick County as citizens and
visitors approach the County from the east. This development area should promote a strong
positive community image. Residential land uses would be permitted only as an accessory
component of the neighborhood village commercial land uses. Previously, a small area of
neighborhood village commercial was identified on the south side of Route 277 in the
general vicinity of the future entrance of Shenandoah and the existing Sandy’s Mobile
Home Park. The 2014 update to the Plan provides for an overall greater area and greater
mix of uses in this area that is reflective of a stronger desire to create a more substantial
focal point for activity. This is primarily based on the growth and development of the Lake
Frederick Community and the involvement of new residents from this area. The existing
Lake Frederick community is included in order to serve as the core area of this new Urban
Development Area, and to demonstrate the quality of construction and type of land use
patterns desired in this area.”
The Plan further states: “in order to serve the needs of the growing residential community in and
around the Lake Frederick Urban Development Area, medical uses should be considered within
the core commercial areas around the Route 277 corridor.”
The proposed rezoning proposes a zoning district, R4 (Planned Residential Community District),
which is typically associated with the Plan identified land uses in the Comprehensive Plan for
“neighborhood village” and enables uses that could be associated “mixed use office/commercial
(MUOC).” However, the proffer statement allows for a maximum total of 866 residential units,
which would not appear to implement residential uses as greater than an accessory component of
a neighborhood village commercial center. The proffer statement enables the owner to construct
up to 433 residential units before a minimum of 20,000 square feet (SF) of commercial buildings
are constructed (Proffer D-2). This is 50% of the total residential units proposed and may not fully
achieve the envisioned “mix” of uses.
The proffered “land use and land use matrix” (Proffer B-1) does not specify the uses allowed in
the proposed B1 (Neighborhood Business) and B2 (General Business) zoning districts or speak to
the Plan envisioned uses for this area of the County. The proffers do prohibit B3 (Industrial
Transition), TM (Technology-Manufacturing Park), and M1 (Light Industrial) zoning districts.
Finally, the proffer statement does not address Lake Frederick UDA plan policy specific to “quality
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of construction and type of land use patterns desired in this area.” Absent from the proffers is
commitment to high-quality site design, building materials and building design.
In this respect, the proposed rezoning is not fully consistent with the adopted Plan policy
regarding the mix of commercial uses and residential units and is otherwise silent on a commitment
to “medical uses.”
Transportation & Site Access:
Route 277 (Fairfax Pike) is identified in the Comprehensive Plan as an “improved minor arterial”
roadway. Further the Plan envisions a new “minor arterial” roadway across the subject property
(identified as future “South Frederick Parkway”). Access to the site, as shown on the proffered
generalized development plan (GDP, dated 12/06/2024) is proposed from Fairfax Pike (Route 277;
two (2) entrances) and from a future inter-parcel connection with the Lake Frederick community
to the east. The proffer statement commits to:
• Signalization*, if warranted, to the proposed new site entrance and Route 277 (Proffer G-
3);
• Construction of portions of the future four-lane roadway (South Frederick Parkway) and
dedication of 105-feet (FT) of right-of-way (ROW) for the future extension to the west by
others (Proffer G-4);
• Dedication of ROW along Route 277 frontage for future widening and construction of a 10
FT wide multiuse trail within the proposed ROW (Proffer G-5); and
• Cash contributions for off-site improvements to Hudson Hollow Road/White Oak
Road/Route 277 intersection and improvements to the intersection of Route 522/Route
277/Route 340 intersection (Proffer G-6).
*A signal justification report (SJR) was not conducted during the preliminary comment phase of
the rezoning.
Capital Impacts & Levels-of-Service (LOS):
When evaluating capital costs of new residential development, the County projects per unit costs
through the Capital Impact Model (CapIM). The model has been designed to project fiscal impacts
that may result from land use change decisions. The Board of Supervisors updated the County’s
adopted Capital Impact Model on October 9, 2024. Cash proffer categories (enabled by the Code
of Virginia) are limited to public safety facilities, school facilities, and parks and recreation
facilities. Below is the projected capital impact by unit type from the County’s adopted Capital
Impact Model (CapIM) for single-family detached, single-family attached units (townhomes) and
multifamily units and the proffered values.
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Housing Type Capital Impact Model
(CapIM) Output
Proffer Statement
10/01/2025
Single-Family Detached $17,332 $17,332
Single-Family Attached
(Townhome) $15,596 $15,596
Multifamily $9,985 $9,985
Age-Restricted $1,387 $1,387
As proffered (10/01/25), the rezoning fully implements CapIM monetary contributions for
proposed residential housing types.
The proposed 866-unit residential development is projected to generate up to 203 students (91
elementary school children, 50 middle school children, and 62 high schoolers). This student
generation projection assumes a minimum of 228 age-restricted units, however, as proffered they
could generate more age-restricted units, further reducing the anticipated students generated.
The current public schools’ level of service (LOS, October 2025) for facilities that would serve
the proposed development are as follows:
Public Schools Level of Service (LOS)*
School Program
Capacity (2020)
Current
Enrollment
(2023)
% CapIM
% with
proposed
development
generated
students**
Armel ES 580 589 101.5% 117%
Aylor MS 914 806 88.3% 93.6
Sherando HS 1,323 1,634 123.3% 128%
*CapIM Output – October 2025
** Planning and Development staff generated
Note: The LOS analysis above reflects a point-in-time (2025). It does not include pipeline projects (unbuilt
residential units) generating new students in the vicinity of the above schools, future redistricting of school service
areas, or capital project planning, such as the 4th high school, that may alleviate strain on school capacity.
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Proffer Statement, Generalized Development Plan (GDP), & Impact Analysis:
Proffers
(Revision Date 10/01/2025)
Staff Comment
Proffer A – Generalized Development Plan No comment.
Proffer B – Design Modification Document The Zoning Ordinance (§165-501.06(O))
permits modifications of other regulations as
part of an application for rezoning to the R4
District.
The proposed design modifications offer
alternative standards to ZO requirements that
aid to better achieve Plan policy specific to
the Lake Frederick UDA.
Proffer C – Land Use and Land Use Matrix Any uses allowed in the B1 (Neighborhood
Business), B2 (General Business) or RP
(Residential Performance) zoning districts
could be developed. For the B1 and B2
districts, this includes gas/convenience uses,
auto repair, self-storage facilities, etc. The
Plan envisions “medical uses” within the
Lake Frederick UDA as contemplated during
the CPPA process.
Proffer D – Land Use Phasing Proffer D-2 limits the total residential units to
433 until a certificate of occupancy is
obtained for a minimum of 20,000 sf of
commercial buildings constructed in Land
Bay # 1. This does not appear to fully
implement Plan policy regarding the
envisioned mix of uses, specifically where the
Plan notes residential land uses should be an
“accessory component” of the Lake Frederick
UDA.
Proffer E – Monetary Contributions No comment. Proposed contributions align
with CapIM outputs (2025).
Proffer F – Recreation Facilities
The proposed natural surface trail specified in
Proffer F-1 and depicted on the GDP does not
extend to the property line and otherwise may
not be able to be connected to existing natural
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surface trails in the Lake Frederick
community.
Proffer G – Transportation A signal justification report (SJR) was not
conducted during the preliminary comment
phase of the rezoning. Proffer G-3 could
further specify that the applicant will install a
traffic signal, or other improvements if
stipulated by the SJR at the main entrance
intersection with Route 277 as required. At
the onset of this project, staff indicated to the
owner the above approach, committing to a
signal or other improvements, as warranted,
would be to only way in which we could
support not conducting the SJR prior to the
rezoning being processed and decided.
Proffer G-6 specifies the owner agrees to pay
the amount of $2,000,000 for transportation
improvements to the intersection of Hudson
Hollow Road/White Oak Road and Fairfax
Pike and the intersection of Route 522/Fairfax
Pike and Route 340. Physical improvements
are typically preferred to cash contributions.
VDOT has stated this proffered amount may
not cover the full improvements implicated by
the TIA.
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Generalized Development Plan
The generalized development plan (GDP) revised December 6, 2024, is included below and
reflects proffered improvements, site access, circulation, open space, recreation amenities, and
residential land bays.
This item is presented at a work session for information and discussion only.
A separate public hearing will be held on December 3, 2025.
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